House of Lords: Size

Debate between Lord Hunt of Kings Heath and Lord Tyler

Thursday 12th December 2013 Lords Chamber

[Lord Tyler (LD)]

My Lords, I congratulate my noble friend Lord Norton of Louth on this very timely debate. He and I gave evidence to the Select Committee of the other place that looked at this issue, and I shall briefly refer to its report because it was rather useful for people outwith this House to look in, although it has to be said that very many distinguished Members of this House gave evidence to that committee. My noble friend referred to some of the issues looked at—for example, the proposal that there should be legislation to expel Peers who have been convicted of a serious offence. I do not think that reform would produce a serious decrease in the size of the House; I would hope not.

The committee recorded strong agreement that action should not be taken in two areas: first, in relation to the introduction of a long-term moratorium on new Peers, and secondly, in relation to the introduction of a compulsory retirement age. It specifically said that it did not think either of those things were appropriate or would receive proper support in either House. The committee went on to say that there seemed to be some widespread support for no longer replacing hereditary Peers in the House of Lords when they died. That has proved very contentious in this House, so maybe there was a certain naivety at the other end of the building on that issue. On the other hand, the committee quite sensibly pointed out that tackling the issue of persistent non-attendance is by definition not particularly useful in dealing with problems of overpopulation in this House. It is a classic non-solution. Finally, it said that it thought that the evidence about introducing fixed-terms appointment for Peers suggested that it would prove to be just as controversial as some of the more major reforms that both Houses have been looking at in recent years.

The chairman of that Committee, Mr Graham Allen MP, said in introducing the report:

“Establishing a consensus about the principles that should determine the relative numerical strengths of the different party groups in the House of Lords, and for codifying such principles, is probably the most contentious of all the issues we considered in this inquiry, but it is also the most crucial to any further progress. We call upon the Government and political parties in the Lords to set out their positions on this matter and to engage in dialogue that will establish a consensus before the next General Election, so that both Houses can act upon an agreed reform”.

My noble friend the Leader of the House may be able to respond to that challenge. I was disappointed that the committee did not see fit to take evidence from my noble friend because on a number of occasions in this House he has given a very effective, robust and rigorous analysis of the issue of active membership of this House, which is not fully explored in the Library note, which is otherwise excellent.

The search for consensus is fascinating in politics, not least in this building. My very good friend Dr Chris Ballinger of Exeter College, who has given evidence to a number of committees, said recently that,

“seeking a perfect reform through consensus is a fast track to inertia”.

I suspect that is where we are again today. Already we can see that Dan Byles’s Private Member’s Bill, which has now come to our House and is based on the previous Bills introduced in this House by my noble friend Lord Steel of Aikwood, whose Bill was passed by this House, and the noble Baroness, Lady Hayman, is likely to be squeezed out in the current Session by the Conservative high command’s insistence on giving precedence to the European Union (Referendum) Bill. Is there really a chance of making progress in this Session—I doubt it—or the next Session, a few months before a general election? Presumably we can now confidently assume that all three major parties will reiterate their previous and repeated manifesto commitments to full reform of this House. It would presumably be perverse if Labour failed to commit itself to legislation which incorporated all the main features of Jack Straw’s White Paper of July 2008, including specific recommendations on the transitional, steady reduction in the size of the House. I am delighted to see the noble Lord, Lord Hunt of Kings Heath, in his place this afternoon. He was not only a crucial author of those proposals; I think that he was really the godfather—I mean that in the nicest sense, not the Italian sense.

[Lord Hunt of Kings Heath (Lab)]

I just say to the noble Lord that I continue, with him, to seek consensus in this matter.

[Lord Tyler]

We may both of us lose more hair before that happens; even so, I welcome his support.

There was in both Jack Straw’s White Paper and the Bill a specific, careful, planned reduction in the size of the House. Can we expect those proposals in the Government’s 2012 Bill to see the light of day again? There is a mystery here. I heard just recently in your Lordships’ House a distinguished Member—indeed, a distinguished former Member of the other place—say that the Government’s Bill had been defeated. Not so: that is a myth. It was not defeated. On 10 July 2012, the House of Commons gave the coalition government Bill a record majority at Second Reading of 338 votes. Even more significantly, there was a substantial majority of supporting MPs in all three major parties: 193 to 89 Conservatives; 202 to 26 Labour; and 53 to zero Liberal Democrats.

As we all know, the Labour leadership, understandably perhaps, refused to support a programme Motion—any programme Motion—so the Leader of the House had to announce that no progress could be made. The Prime Minister sought agreement to press on but failed to achieve it. The Bill was pulled, not defeated. Indeed, had Labour not sacrificed its principles and manifesto promises on the altar of temporary expediency, there would now be a reform Act, or one on its way, as a result of the Parliament Act. The problem of the long-term size of the House would have been solved, but by the votes of our fellow citizens rather than by the contrived patronage or blackballing of party bosses.

We can all speculate about the outcome of the next general election in May 2015. Maybe there will be a dramatic swing to the right. Maybe it will end up with a coalition between UKIP and the Conservatives, but I think that that is unlikely. It therefore seems to me that in May 2015, which is not that far ahead, the noble Lord, Lord Hunt and I may well see a consensus in the other place that we should make progress on a Bill with that considerable support. This problem, so well identified by my noble friend Lord Norton of Louth, may therefore be on its way to a solution, not because of what the parties say but because of what the people say.

Winston Churchill was once a great Liberal—some people think that he lost his way later on in life—and at one point he said, “Let’s trust the people”. I think that that would be my position.

Draft House of Lords Reform Bill

Debate between Lord Hunt of Kings Heath and Lord Tyler

Tuesday 1st May 2012 Lords Chamber

[Lord Hunt of Kings Heath]

My Lords, my noble friend Lady Andrews is right to say that this has been a fascinating debate. I, too, pay tribute to my noble friend Lord Richard, his committee and the clerks for the work that they have done. However, we are also indebted to those members of the Select Committee who produced the alternative report. Taken together, they provide an invaluable reference point for our future debates on reform of your Lordships’ House.

In this excellent debate many noble Lords have questioned the priority that the Government are giving to Lords reform when our economy is in such a perilous position. I agree with that. Over these two days of debate some noble Lords have argued that reform of the second Chamber cannot be considered in isolation from other constitutional issues such as a referendum in Scotland and other changes that the Government are making or have made. I agree with that. However, we will have further ample opportunity to debate those wider issues when we discuss the Queen’s Speech. I would like to focus my remarks on the role and powers of an elected second Chamber and its relationship with the Commons. The Joint Committee has identified this, as have most other noble Lords, as going to the heart of the controversy over Lords reform.

The noble Lord, Lord Tyler, teases me about my position and that of the Opposition. I make it clear that the Official Opposition support reform of your Lordships’ House. We are proud of the legislation that we introduced in 1999, which removed most of the hereditary Peers. In the years since, this House has become ever more effective as a House of scrutiny and revision. It is this House that has held Ministers properly to account and has so often saved Governments from themselves. Would the other place have acted similarly? I want to see reforms make us better still. The Official Opposition support an elected House. However, that must not be at the expense of primacy of the Commons, nor must it threaten gridlock or detract from our role as an effective revising Chamber. Further, these changes should take place only with the specific consent of the British people.

Mr Clegg told the other place on 20 March 2012 that nothing in his plans would change the primacy of the Commons. Remarkably, he denied that there was an automatic link between changing the composition of the Lords and changing the balance of power between the two Houses.

[Lord Tyler]

My Lords, I would like to refer to the noble Lord’s work on this issue as we have been through so many of these discussions together. The 2008 White Paper on an elected second Chamber states:

“There is no reason why any further increase in the authority and effectiveness of the second chamber following elections should undermine the primacy of the House of Commons”.

I suspect that the Prime Minister and Deputy Prime Minister are quoting the noble Lord. If he would like me to go through all the other ways in which he has endorsed what is now in the draft Bill—for example, as regards the 80:20 ratio—I would be very happy to do so, but he should reread his own work.

[Lord Hunt of Kings Heath]

My Lords, I am most grateful to the noble Lord for reminding me of the heroic efforts that I, other noble Lords and Members of the other place made in producing that White Paper. However, that was work in progress. We tried to reach consensus. The problem we have is that when Mr Clegg took over responsibility for this matter he convened a joint group of all the parties and when my noble friend raised the issues of powers and a referendum, that group met no more. We now have the benefit of the work of the Select Committee and of the alternative group, which has taken the debate on powers and primacy further than it has ever been taken before. We need to listen to what those reports say.

We should remember that very few noble Lords agree with Mr Clegg’s view. There is now an overwhelming consensus that an elected House would affect the balance of power. Whether it affects primacy is another question but it would certainly affect the balance of power between the two Houses. We heard the noble Lord, Lord Ashdown, say yesterday that he would like an elected second Chamber to be able to veto the UK going to war. We heard a statesmanlike speech from the noble Lord, Lord True, but even he, too, talked about Houses that are co-equal. The problem that we have comes back to Clause 2 of the draft Bill, which states:

“Nothing … affects the status of the House of Lords … the primacy of the House of Commons … or the conventions governing the relationships between the two Houses”.

The problem, as the Select Committee itself pointed out, is that, “a major difficulty” with Clause 2 is that it,

“seeks to establish a series of negative propositions”,

in relation to “key terms”, such as,

“status, primacy, powers, rights, privileges, jurisdiction and conventions”.

There is no existing body of statute defining these key terms.

The Government have clearly rejected at this point proposals to set out in statute the powers and relationships between the two Houses, and to amend the Parliament Acts. The reason is that a complete statutory codification would lead to tensions as to where the boundary lay between Parliament’s own processes and the courts’ interpretation of statute law. I understand that argument, but my point is this: those tensions will be nothing as to the tension between two elected Houses vying for supremacy—and they will vie.

We are clear that Clause 2 will not do. My noble friend Lord Richard tells us that Clause 2 will not do. I hope that the Minister, when he responds, will not simply say that we can tinker around with Clause 2. The overwhelming argument put to him in this debate is that the Government have to go away and think again about how to define the powers of and relationship between the two Houses.

I should like to come back to the Parliament Acts and the preamble to the 1911 Act. It suggested that for a Chamber constituted on a popular basis new proposals would be needed,

“limiting and defining the powers of the new Second Chamber”.

Why have the Government not made such proposals for limiting or defining those powers? What does the Minister have to say in response to the evidence of my noble and learned friend Lord Goldsmith and the noble Lord, Lord Pannick, that the drafters of the 1911 Act did not intend its provisions to apply in the event of a second Chamber being constituted on a popular basis? The Leader of the House, the noble Lord, Lord Strathclyde, rather ducked that point in his opening speech—but it is a crucial point. It is perhaps the most crucial point of all. Yesterday, my noble and learned friend Lord Morris of Aberavon regretted the absence of the Attorney-General’s advice to the Select Committee on the Parliament Acts. I ask the Minister why that advice was not made available, and will it be put at the disposal of Parliament if a Bill is introduced following the Queen’s Speech?

I turn to the conventions. The committee of the noble Lord, Lord Cunningham, said that in a formal sense the Lords has equal status with the Commons as a House of Parliament in initiating Bills and passing them, subject to financial privilege and the Parliament Acts, and equal status in approving delegated legislation. In reality, as that committee said, the formal position has come to be moderated by conventions reflecting the primacy of the Commons, and those conventions are “flexible and unenforceable”. Indeed, the Joint Select Committee comments that:

“It is paradoxical and self-defeating to refer to conventions in statute”,

as the draft Bill does. The report continues,

“once the meaning of a convention had been legally determined, it would no longer be a convention”.

The committee’s solution is that the two Houses should, following reform,

“establish a means of defining and agreeing the conventions … by the adoption of a ‘concordat’”.

However, by that time it will be too late. What if there were no agreement? In any case, do conventions have anything to offer between two competing elected Chambers, each claiming equal legitimacy?

Meg Russell, of the Constitution Unit at UCL, said that,

“elected chambers … feel free to use their powers to the full, in a way that the House of Lords currently does not”.

The Joint Committee said that if the Lords,

“chose to use its powers, it would be one of the most powerful second chambers in the world”,

and that the reformed second Chamber,

“should have an electoral mandate provided it has commensurate powers”.

However, few would want to see both Chambers locked into endless conflict, and the logical outcome of this is that the role, functions and powers of the House should be determined and agreed before any change is made to its composition.

On the question of a referendum, surely the British people should have the final say. An elected second Chamber would be a major constitutional change. Surely no one could disagree with that. It is rather more important, I suggest, than decisions on mayors—even on the Mayor of Birmingham—or the minutiae of European legislation. It is as important as voting systems for the House of Commons. On all these matters, the Government have recognised the need for the people to decide through a referendum. The Joint Select Committee has so recommended, yet Mr Clegg dismisses it out of hand. What is the Deputy Prime Minister so frightened of?

[Lord Hunt of Kings Heath]

Democracy, ah! He told the House of Commons on 20 March that a referendum was not appropriate because he proposed to reform the composition of the House, rather than abolish it. Surely that is disingenuous. Whatever our arguments about reform, elections or non-elections, these proposals are fundamental and change the second Chamber. In fact, Mr Clegg’s arguments have moved on since 20 March —understandably perhaps. We are now told that we cannot have a referendum because Lords reform was in the three party manifestos at the last election. However, my party’s manifesto said that we would have a referendum. The noble Lord, Lord Forsyth, reminded us that the Conservative Party manifesto pledged to work towards a consensus for a mainly elected House. I imagine that it related to a consensus in the normal sense of the word, rather than the interesting interpretation made by the noble Lord, Lord Strathclyde, yesterday. The coalition agreement, to which we all dutifully pay obeisance committed only “to bring forward proposals” on Lords reform. Mr Clegg’s arguments are as thin as his draft Bill.

As for the remarks of the noble Lord, Lord Tyler, about his own heroic role on this question, I refer him to page 163 of volume 1 of the Joint Committee’s report, which records the vote that took place on the issue of whether the Government should submit to a referendum the decision on changes to the second Chamber. There were 13 contents and 8 not-contents, and the not-contents included the noble Lord, Lord Tyler.

[Lord Tyler]

The noble Lord is really kind, but it was quite clear from the discussion—and of course he was not present—that that was intended to refer to a referendum on the Government’s proposals. I have always said, in common with most of the other decisions taken by this country in referenda, that they should be post-legislative. That was what I was referring to very clearly in my speech today.

[Lord Hunt of Kings Heath]

My Lords, what the report says is:

“The Committee recommends that, in view of the significance of the constitutional change brought forward by an elected House of Lords, the Government should submit the decision to a referendum”.

That is pretty clear. The noble Lord is being rather pedantic on that point.

Time moves on. We have debated many other issues and I wanted to pick just three from our debates. First, on the question of representation, the noble Lords, Lord Trimble and Lord Dubs, made some excellent points that elected Lords will expect to represent their constituents and should be resourced to do so. That must be part of their accountability to the electorate. We cannot have a situation whereby elected Members of Parliament are discouraged from direct contact with their constituents and almost inhibited from helping them with constituency cases.

On hybridity, I sense strong concern in our debate. One can see why it would be attractive to retain an independent element in an elected House, but I suspect that the 20 per cent appointed Members would feel increasingly uncomfortable and isolated in a House dominated by elected politicians. If the votes of the appointed Members helped to thwart the views of a majority of elected Members, I doubt that they would last very long. I well remember when we were in government, particularly in the early days, that when we lost votes, we put out press notices which showed that it was because of the way that hereditary Peers had voted. The temptation for any political bloc to do that would be overwhelming. Hybridity is a nice idea. One understands why it is being put forward, but I sense that in two days of debate, the argument has fallen.

House of Lords: Reform

Debate between Lord Hunt of Kings Heath and Lord Tyler

Wednesday 22nd June 2011 Lords Chamber

[Lord Hunt of Kings Heath]

My Lords, the noble Lord said that we should all represent something. I suppose that I represent the long list of Lords Ministers who have dabbled in Lords reform, but without, alas, much success. We come to the end of this long but invigorating debate. I start by congratulating the noble Lord, Lord Strasburger, on his excellent maiden speech—it seems a long time ago. He said that in the few short weeks he had been in your Lordships’ House he has moved from a position of supporting a wholly elected House to endorsing a mostly elected House. I wonder where the noble Lord’s voyage of discovery will end. We await his next contribution to a debate on Lords reform with eager anticipation—he will have further opportunities.

There have been many reports on Lords reform, none better than the royal commission report chaired by the noble Lord, Lord Wakeham, who spoke so eloquently yesterday. The noble Lord, Lord Armstrong, and other noble Lords argued at some point for indirect elections. This is, of course, not a new idea. Viscount Bryce chaired a conference of Peers and MPs appointed by the Prime Minister in 1917 on the reform of the second Chamber, which made proposals for the indirect election of Members of the second Chamber by MPs in regional groupings. Alas, it went the way of many such proposals. I have much greater hopes for my noble friend Lord Richard.

Of course, this debate is rather more significant than many in recent years. We have a draft Bill, far-reaching proposals, pre-legislative scrutiny to come and a pathway towards the first elected Members setting foot in the second Chamber in 2015. How determined the Government are to meet that date is, perhaps, open to question. The noble Lord, Lord Strathclyde, the Leader of the House, yesterday reaffirmed the 2015 goal, yet in his highly entertaining interview in the Financial Times this weekend he seemed to have lost a little of his reforming zeal. Perhaps he was looking for St Augustine for inspiration. “Oh, Lord”, the Leader seemed to be saying, “deliver me an elected second Chamber, but not quite yet”. We will all be interested to hear whether the noble Lord, Lord McNally, takes a similar view. Indeed, does he think he can take his Members of Parliament with him, to say nothing of the noble Lords behind him?

The caution that the noble Lord, Lord Strathclyde, expressed over the weekend is, I think, entirely understandable. He must know that the Government are being disingenuous in presenting these proposals as a stand-alone measure with little consequence for our overall constitutional arrangements. He must know that, if enacted, the Bill would have a profound impact on Parliament and our democracy. I regret that, because the Government’s failure to admit this risks the whole reform process. I am a reformer, I support an elected House, I have always voted for it, but I want that reform to enhance our democracy. I do not want changes which threaten a fight between this House and the other place. I do not want changes that detract from the Lords’ role as a revising Chamber. Time and again it has been this House that has improved legislation, held Ministers properly to account and saved Governments from themselves—my own included. Would that the other place could say the same.

It is noticeable how many noble Lords in the past two days have commented on the performance of the Commons and their concern to strengthen Parliament as a whole. The noble Lord, Lord Elton, made a telling point about the overweening power of the Executive and of his fear that the Bill would extend that. Nowhere is that more to be seen than in paragraph 68 of the White Paper where a Prime Minister can at a whim throw a Member of the new second Chamber out of Parliament. That is the rub of it. As my noble friend Lord Whitty has said, the Government have simply not put the groundwork into the draft Bill. Yet they had plenty of time. The draft Bill was published on 17 May but the cross-party committee, chaired by Mr Clegg, has not met since 24 November. Almost six months has been wasted.

It is pretty arrogant on the part of the Deputy Prime Minister to think that he can waltz this reform through Parliament, as the noble Baroness, Lady Boothroyd, reminded us, on the whim of a hunch or a best guess and to do so without so much as a genuflection to the complexities with which governments and parliamentarians have wrestled for these past 100 years. Why that should be so has become clear during our debate. The Government seek to strive for a second Chamber that replicates most of what the House of Lords does now but with electoral legitimacy. We are told that the reformed House of Lords would have the same functions as the current House and that no change is envisaged in the fundamental relationship with the House of Commons, which would remain the primary House.

In Clause 2 of the draft Bill, we are pointed to the relationship between the two Houses. It is worth restating. It says that nothing in the Bill,

“affects the status of the House of Lords … the primacy of the House of Commons, or … the conventions governing the relationship between the two Houses”.

My noble friend described that as nonsense and I think that he was being kind. That is my response to the noble Lord, Lord True, who also criticised Clause 2. But does he not recognise that Clause 2 goes to the heart of the Bill? Nowhere is that more illustrated than in the conventions which govern the relationship of this House with the Commons.

The Cunningham committee was clear that, in a formal sense, the Lords has equal status with the Commons as a House of Parliament in initiating and passing Bills, subject to Commons financial privilege and the Parliament Acts, and equal status in approving delegated legislation. In reality, as Cunningham said, the formal position has come to be moderated by conventions reflecting the primacy of the Commons. The moment that elected Members walk into this Chamber, those conventions will evaporate.

[Lord Tyler]

My Lords, I do not know whether the noble Lord would like to comment on how precisely that clause differs from his recommendation in his own White Paper, which I quoted to your Lordships’ House earlier. It said:

“There is no reason why any further increase in the authority and effectiveness of the second chamber following elections should undermine the primacy of the House of Commons”.

[Lord Hunt of Kings Heath]

My Lords, I am always grateful to the noble Lord, Lord Tyler, for reminding the House of my heroic efforts on the cross-party group chaired by my right honourable friend Jack Straw, and very enjoyable it was too. I say two things to the noble Lord. First, we produced a White Paper for consultation. We did not produce a draft Bill. Secondly, I am not arguing about primacy. I am arguing about the issue of an elected House of Lords using the powers that it formally has within the context of primacy. I believe that even within the context of primacy, the clash between two elected Houses will bring profound constitutional changes.

Noble Lords could argue that we should not worry about that, which is a perfectly legitimate point to put across. But the one thing that I have learnt from my three years of dabbling in this subject is that unless a Government are explicit about the powers of an elected second Chamber, any attempt at reform will always be doomed to failure. I speak as someone who has always supported legitimate reform of your Lordships’ House. When elected Members enter this House, the conventions will evaporate because they are voluntary constraints on an unelected House in their relationship to the elected House. Once you have an elected House, what is the need for restraint?

The noble Lord, Lord Thomas of Gresford, was eloquent yesterday in favouring a strong second Chamber to stand up to the Executive. His noble friend Lord Ashdown reminded us that there are many examples around the world of bicameral systems with two elected bodies which manage to sort out their relationships. As the noble Lord, Lord Kakkar, remarked, that is because the relationship between those houses is set out in some form of written constitution that will usually provide for dispute resolution between the two houses. I acknowledge that the implications of a written constitution in the UK are profound. However, as my noble friend Lord Elder suggested, they have to be considered when introducing major constitutional change.

Fixed-term Parliaments Bill

Debate between Lord Hunt of Kings Heath and Lord Tyler

Tuesday 15th March 2011 Lords Chamber

[Lord Tyler]

The noble Lord and I both served for many months on the working group chaired by his colleague, Mr Jack Straw, when we looked in very considerable detail at the various proposals for reform of your Lordships’ House. At not one single moment through the whole of that White Paper’s preparation did he or his colleagues suggest that it was necessary for those proposals to be put in a referendum for the public to take a view. Why is there suddenly this interest in making that proposal the subject of a referendum?

[Lord Hunt of Kings Heath]

It is because it is part of a series of measures of constitutional change. The noble Lord, Lord Tyler, will also know that the intention was always to produce that White Paper, which we did, then to ensure that it was in the manifestos of the three parties at the last election, which it was, then to bring forward proposals. For myself, I believe that a referendum ought to be considered in the context of the current Government’s decision to go for a referendum on AV and their other constitutional changes; and because it is abundantly clear, from all that I have read and heard, that they are not prepared to deal with the issue of powers when it comes to Lords reform.

My noble friend Lord Grocott and I do not always see eye to eye on Lords reform, but I certainly agree with him when he challenges the naive assumption that an elected senate will simply carry on in much the same way as your Lordships’ House does, without any impact on the House of Commons. I do not accept that; an elected second Chamber is bound to impact on the Commons and on our constitution in a major way. In many respects, it will be a new House even though there may well be a transition period between where we are and where we get to in the end. The same applies to the Bill. As a result of the Bill there will be less accountable Parliaments, because they will last longer, and a legislature with a more limited ability to evict a Government who have lost the confidence of the Commons. I say to the noble Lord, Lord Marks, that that is pretty fundamental to me. At the very least the Minister, whom we all value for his contributions on constitutional issues, ought to have a shot at showing where the consistency is between those constitutional changes which are to be subject to a referendum and those which are not.

Queen's Speech

Debate between Lord Hunt of Kings Heath and Lord Tyler

Thursday 27th May 2010 Lords Chamber

[Lord Hunt of Kings Heath]

My Lords, I am sure that the House will learn lessons from that experience. It all looks different from this side of the House. I can assure the noble Lord that we shall certainly scrutinise the legislation carefully.

I now turn to the alternative vote. Will the noble Baroness tell us in her winding-up speech when we can expect legislation on the proposed referendum and when the referendum is intended to be held? Will a threshold be set in terms of the turnout and the size of the majority that is required for a yes vote in the referendum to succeed? Fifty-five per cent, perhaps?

Why is the coalition bent on reducing the number of Members of Parliament? I have yet to see any persuasive arguments for that. Are 70,000 electors really too small a number for an MP to represent? The intention for more equal constituency sizes will create some unnatural constituencies, as the Electoral Commission pointed out in February. Constituencies will change more frequently, destabilising the link between MPs and constituents. Again, I suggest that the answer is bound up with a narrow, partisan interest and the proposed speeding up of individual voter registration.

We passed legislation to provide for a carefully staged transition from household registration to individual voter registration in a way that would reduce the risk of people falling off the electoral register, as happened in Northern Ireland. If that careful process is ripped up and the rollout made prematurely, millions of people could fall off the register. I remind the House that that is extremely important because constituency boundaries are drawn on the basis of registered electors. We know from the Electoral Commission that 3.5 million eligible voters are missing from the register today. They are predominantly missing in areas of poorer, younger, mobile populations. It would be wholly unacceptable for seats to be cut and boundaries redrawn on the basis of an electoral register from which millions of our fellow citizens are missing.

I am pleased that the Government are supporting the implementations of the Wright committee’s proposals to make the House of Commons more effective, but what of your Lordships’ House? I noted with interest the remarks made on Tuesday by the noble Lord, Lord Strathclyde, who said:

“I also believe that we should look afresh at our working practices. I do not think we should lose sight of the remarkable privileges that Peers already enjoy, such as the right, not given to Back-Bench Members in another place, to table amendments at three stages of a Bill, and to have each one heard and replied to. We should always keep our working practices up to date”.—[Official Report, 25/5/10; col. 22.]

The noble Lord’s rather late conversion to procedural reform is, on the face of it, most welcome, but I say to him that any attempt to restrict the right of Back-Benchers to scrutinise legislation will be firmly resisted. I am happy to discuss the report of the Labour Peers’ working group, which was in the context of a wider debate about the conventions and the pressing against the boundaries of those conventions by the party opposite at the time.

Finally, I come to reform of your Lordships’ House. The coalition parties have agreed to establish a committee. That is progress indeed. The noble Lords, Lord McNally and Lord Strathclyde, and I have already spent many happy hours in such a committee. I must put a question to the Minister, as I am not sure what the committee is going to be asked to do. It seems that the outcome of its work is already known. He has already said it today: a mainly or wholly elected upper Chamber under PR and a system of grandfathering for the current Peers. So what is left for the committee to do? What will the composition of the committee be? Will its outcome be a White Paper and will a draft Bill be published for pre-legislative scrutiny?

Grandfathering is not really about the transition; it is a term used in the regulation of professions and essentially it means that existing practitioners go forward into the new qualified regulated profession. It is clear that grandfathering means that existing Members become Members of a reformed House. I ask the noble Baroness to confirm my interpretation.

In the mean time, as the noble Lord, Lord McNally, confirmed, we are faced with the apparent intention of the coalition to appoint dozens, if not hundreds, of new Peers. Why is this being done, given that the Government already heavily outnumber the Opposition, with 258 Members compared to our 211? There has long been an understanding that there should be rough parity between the Government and the main Opposition. The noble Lord, Lord Strathclyde, has eloquently put the case for a strong second Chamber. In his Politeia article, he argued:

“The executive may not want a second opinion, but every country needs a Parliamentary system that provides one. Part of that must lie in a strong, independent House of Lords”.

Are those the words of a leading Member of a coalition that advocates swamping the Lords to give the Government an inbuilt and overwhelming majority?

Then there is the question of the conventions. I ask the noble Baroness to confirm that the committee will look at how the current conventions will be underpinned and the primacy of the Commons assured in an elected House. I remind her of the committee of the noble Lord, Lord Cunningham, on the conventions, which made it clear that firm proposals for changing the composition of the House would require a re-examination of those conventions.

The coalition professes that it wants to strengthen Parliament to create a new politics. I would have thought that this should have been grounded in promises that the parties made to the public in the recent election. However, when we look at the proposals to be brought before us, how many do we see that were in the manifestos of the two parties? The Conservatives were certainly silent on a referendum on the alternative vote. They were also silent on fixed-term Parliaments. The Conservatives were silent on the intervals between elections to be fixed at five years, as were, incidentally, the Liberal Democrats. The Conservatives were silent on the 55 per cent super-majority required for the Dissolution of Parliament, as were the Liberal Democrats. The Conservatives were silent on their intention to give the Executive a massive majority in the Lords, as were the Liberal Democrats. We see proposals for major constitutional change that were not put to the British people at the recent election. They were cobbled together behind closed doors. They amount to a lack of trust between the two parties and they will do little—

[Lord Tyler]

Does the noble Lord now resile from all the promises made by Mr Gordon Brown before, during and since the general election on AV, on fixed-term Parliaments and on implementing the White Paper produced by Mr Jack Straw? Is the Labour Party’s position now that it does not stand on any of its manifesto commitments?