House of Lords: Working Practices

Lord Kirkwood of Kirkhope Excerpts

Monday 12th July 2010 Lords Chamber

[Lord Rooker]

Only after the event, and that is the difficulty. The argument for taking Statements in Grand Committee is powerfully made. Five minutes were taken up by one person when there are only 20 minutes for questions because there is no mechanism for getting some order into the system. If there was, I would not say anything, but going into Grand Committee is important.

I want to raise an issue which I know from some of the speeches is controversial. By the way, I agree with everything that has been said, but the role of the chair, particularly at Question Time, is not an unimportant matter. Between 2005 and 2007, the noble Baroness, Lady Amos, was the Leader of the House and I was the Deputy Leader, I had responsibility for Question Time. I have kept all the daily papers from that time. I have got them in a box, and I know exactly who got called, when they were called, and their party, for every Question Time for those two years. I can produce the figures. They were difficult to do, but nevertheless I kept all the papers because I just walked out of here and chucked them into a box.

[Lord Kirkwood of Kirkhope]

Those papers are bound to have a value on eBay.

[Lord Rooker]

No, no. There was almost a competition between us. My noble friend Lady Amos would say, “I once got 36 supplementary questions through. How many did you get today?”. I usually managed 24 or 25 supplementaries in half an hour, which is pretty good going when you think about what happened during the Statement today. I want to repeat a point I made last October in the debate on the Queen’s Speech. There is a serious problem in that with the expertise in this House and the range of Questions that can come up on a daily basis—we are not constrained like the other place—I think that there are hundreds of Members of this House who are reluctant to try to ask a supplementary question. That is because the method of doing so is to enter a bear pit.

I have no experience of it. In fact, last week I stood up for the first time ever and asked a supplementary question at Question Time. I had never done it before, and it was an easy one because no one else stood up. However, it can be a bear pit and many people just will not do it. But if you were to ask them whether they had something to say, they would reply, “Yes. I had a good point to make but I wasn’t prepared to join in. If I could have been called, I would take my luck with everyone else”. I know that this is a tricky one because, in a way, it would give the chair the authority of the Leader. It is important because I do not think there is another legislature anywhere in the world where the Executive decides who is asking the questions that scrutinise the Ministers. That is intrinsically wrong for a start. It has got to be a bad principle in terms of democracy. The Government decide which Member can ask the Government a question. I know it is done fairly because for two years I supervised it myself, but it looks wrong. The Lord Speaker could do it in terms of the blocks as people stand. My noble friend Lady Jones is not here, although I am pleased to see my noble friend Lord Grocott in his place.

When I referred to this last October, I said that I had not done any research on it, but I did say that we keep hearing from the same noble Lords at Question Time. After that, someone did some work on the figures, and we had them today. Over a whole Session, half of the supplementary questions—over 1,500 of them—were asked by 8 per cent of Peers, which is 57 Peers. The same people asked all those questions because they are prepared to bully and shout and intimidate others into sitting down. That cannot be conducive to proper scrutiny at Question Time. A few people dominate, and we know who they are because we see them all the while—the same 57 people ask half the supplementaries. So I appreciate the fact that that research was carried out.

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[Lord Kirkwood of Kirkhope]

My Lords, it is a great pleasure to follow my noble friend Lord Rooker. I say that because he and I have been studying these things across both Houses for a number of years. I enjoyed his speech and I concur with absolutely everything he said. What I want to try to do with the short time allocated to me is argue that we really do have a new set of circumstances surrounding this debate. Whether or not it was a shot fox, as the noble Lord, Lord Filkin, said, I welcomed the announcement as soon as the coalition was formed that we were going to have a Leader’s Working Group. I hope it will give consideration as to whether it should be a standing group; the noble Lord, Lord Norton, is right about that. I am relatively new here. I have never experienced a Leader’s Working Group and I therefore do not know what the rules of engagement are or how its members are selected. I suspect the answer is “through the usual channels”, which takes us back into the loop we heard about earlier and whether or not they will have influence. I hope that the style and approach of the work of the Leader’s Group will be open and transparent. There is a case for electing Back-Benchers to the group; otherwise it will be far too easy for party political groupings to put forward members who may have grudges and form on issues.

There is a majority for change in this House if it is handled properly. At my first political demonstration, I followed Jo Grimond, marching towards the sound of gunfire. What was the chant? It was, “What are we for? Moderate change. When do we want it? In due course”. I am now in the coalition and a holy warrior for change: I want change and I want it quite soon. I can put a time on it now because the difference with this debate today is that we know we are going to have five-year Parliaments. There is high risk that this House, this important institution, could be facing profound change by 5 May 2015. That does not sound a long time and we have a great deal of work to do if we are to have a modern legislature that is capable of anticipating that change, facing it and planning for it. We do not know what will happen to us, but if we do nothing it will be worse.

There is a new urgency about what the Leader’s Group will bring to the House. The noble Lord, Lord Rooker, is right. We need to pilot things and think carefully about them. I am very pleased to be the chair of the Information Committee. I was fingered by a Whip and told that I was to be chair of the Information Committee, which was very interesting. I thought, “Do I not need to face an election?”. “Oh no. Nothing as bizarre as that”, I was told. My role is to try to help in outreach, which is a horrible word. My predecessor, the noble Lord, Lord Renton of Mount Harry, produced a fantastic report called Are the Lords Listening? Creating Connections between People and Parliament, and noble Lords such as the noble Lord, Lord Puttnam, and the Lord Speaker are doing wonderful outreach work in explaining the House to people. The noble Lord, Lord Luce, said that there is “profound ignorance” among the public about what we do here. He is not exaggerating; that is an absolute statement of the current position. If that is the case, we should spend 25 per cent of our time—I shall certainly spend 25 per cent of my time—in Parliament for the next five years trying to explain to people what we do here.

It is not difficult. I have visited one or two schools as part of the schools outreach programme, which I recommend to noble Lords. You get mostly positive feedback, some of which is amusing and entertaining, and you always bring back anecdotes to tell down the pub on a Friday night. It is worth doing. We need to get into a position where people understand that we are legislators. That is all we need to say: “We are legislators”.

I think it was the noble Lord, Lord Luce, who made the point that substantive debates were influential on government policy. People say to me that it would be helpful to use the IT and social networking sites that are available as these could provide the opportunity for an effective dialogue. People want propositions tested. For example, if they are against the genetic modification of crops, or whatever, they would want to raise a debate but not, for heaven’s sake, move for Papers and then withdraw the Motion. Try explaining that to a 15 year-old. I have tried and failed. We have to get the terminology, the language and the formality of this place in tune with people who do not know what Papers are because everything is done digitally. The noble Lord, Lord Puttnam, and his colleagues have done an enormous amount of viable work in this direction but we must do more. Explaining how we work and what we do should not be difficult. However, we do not have an endless amount of time in which to do it.

The Information Committee organises and supports the work in the Library and we need to consider extra resources to support the working practices. There are 400 active Members of the House. How do I know that? Because the lists are in the Library. People are in and out of the Library, calling on resources and using them productively on the Floor of the House in order to do the work they are bidden to do in Parliament. Those 400 people need better support. Why? Because we are getting bigger in number and the facilities need to be properly promoted. The struggle for resources is a constraint on us all. We get valuable assistance from the Library and we need to keep up its quality. However, I warn the House that, unless we put resources in over the next five years, that quality is bound to slip and become diluted. There are plans for extra members in the Library in the new island site when it comes on stream but, as chair of the Information Committee, I give notice that I will be making a robust but sensible application for continuing support for individual Members who are trying to do their work in this House. I shall also look for support from colleagues to do outreach work.

We have to consider how we shape the perception of the House. The Robert Burns quote of the noble Baroness, Lady McIntosh, was apt but she missed the last two lines:

“O wad some Pow’r the giftie gie us

To see oursels as others see us!

It wad frae money a blunder free us,

And foolish notion:

What airs in dress an’ gait wad lea’e us

And ev’n devotion!”.

It is an old, superior Scottish culture and I could not resist it. I had to refer to the book to get the quote right, but I hope the accent was better.

I was lucky to be part of the governance committee under the noble Baroness, Lady Murphy. Again, the noble Lord, Lord Luce, set the tone of the debate when he said that there needs to be an independent review of governance. I was a House of Commons Commissioner for a long time and I was very nervous about this. I was the external spokesman for the commission during my time in the Commons and, when we had the Braithwaite review, the scales fell from my eyes. Someone from outside—no one particularly special—came in, sat down, went round, asked some quiet questions with no axes to grind and produced a devastating report on what was happening externally and where we were deficient. We should not be frightened of doing that. although we shall have to do it quietly and sensibly and we cannot throw the baby out with the bathwater and so on. We need an internal standing committee, as suggested by the noble Lord, Lord Norton, to look, with external help, at the issue of governance.

The noble Lord, Lord Cope, busily defended Whips—the poor souls—and said that people speak to them every five minutes. That is a great shame; what a load it must be if people talk to you a lot. I was a Whip and I know that Whips look after party interests. However, those are not the only interests here. The government Chief Whip and the Leader of the House look after the executive interest but in the House of Lords there is also the holy grail of the institutional interest which the Lord Speaker should hold tightly in his or her grasp. I think that the usual channels do not take a sufficient overview of the institution and have too much influence. However, you always think that if you are not a Whip and think the reverse if you are and nothing much will change in that direction. However, it is not sufficient to say it is okay; that the usual channels have got it fixed and it all works. It does—and I am grateful to the people who do it—but we need to have a completely new transparency and consider how it looks from the outside. People need to see what is happening so that they can be confident that what they are being told is fit for purpose.

[Lord Cope of Berkeley]

There are differences between the way in which Whips in this House and Whips in the other House operate. Of course, Whips in this House look after the interests of their party among other things, and they also have a great responsibility, as they do in the other House, for the institution as a whole, but the Whips in this House have in addition a great responsibility for the members of their group, be it their party or the Cross Benches. If they do not look after them, they do not get on very well. They are also extremely open to both public and private scrutiny.

[Lord Kirkwood of Kirkhope]

I defer to my noble friend’s greater experience: I have never been a Whip here nor do I intend to apply to become one. The usual channels need somebody to oversee what they do. There needs to be more constructive tension between the Government, the Whips, the usual channels and the Lord Speaker. We need some sensible, adult thought about that.

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[Lord McNally]

It says here: “Did the House vote on these examples? Yes, it did”. It must have been when the noble Lord, Lord Rooker, was not here. I could go on. My point is simply that we have been steadily adding to the armoury of tools and as we move forward we need to recognise that, although there is a considerable appetite for further reform to our practices and procedures in many parts of the House, notably among those who have contributed to today’s debate, others take a different view—and we have heard a few of those today.

There is little time left tonight, save to say that we will set up the Leader’s Group, which will have the widest of wide agendas. We will then see what it reports back to us. That will be a very exciting time. The noble Lord, Lord Rooker, asked what we are here for. In my 15 years in this House, I have never had any doubt that I am a parliamentarian. The noble Lord, Lord Kirkwood, said that we are here as legislators. The noble Lord, Lord Elton, said that we are here to check the Executive. The noble Lord, Lord Luce, said that he used topical debates to influence government policy. The noble Baroness, Lady Howe, said that she goes about making a nuisance of herself. That combination is what we are here for, and we want the procedures to fulfil those roles. We do not need to agonise too much about this; the task is to find the working practices to facilitate that work.

Some themes have come through. It is interesting that about 10 speakers referred to a revised role of the Lord Speaker. I am sure that the Leader’s Group will look at that but, as the noble Lord, Lord Campbell of Alloway, and others have said, there are doubts about it. We have said before that powers to the Lord Speaker would be a slippery slope. Well, let the Leader’s Group look at that.

I have always been a great advocate of pre- and post-legislative scrutiny, and I hope that we can look at that very quickly.

The noble Lord, Lord Rooker, talked about Questions being a bear pit. I am not too sure about that. This is a Parliament, and I worry about what people who are invited to join a Parliament expect it to be. I also listened to the point made by the noble Lord, Lord Parekh. I know a place where people come in, read their speeches and go out. Has anyone seen the American Congress being televised? It looks like a funeral parlour most of the time. One of the things that I like about this place is the courtesy of people staying and listening to speeches. I know that Members harbour suspicions about my intentions for this House. I am even a bit suspicious of the noble Lord, Lord Butler, wanting us to get rid of the ermine. We wear it only once a year, and I think that we should keep some of the old courtesies and perhaps some of the old clothing. I have said once before, and got into terrible trouble when I did so, that if we start to look like Croydon Council we will be treated like Croydon Council. I had forgotten that there is a complete mafia of Croydon councillors in this House, who stopped me the next day and said “Oi!”. One of the constructive things about this place is that it retains those courtesies, which are part of its power.

The noble Lord, Lord Brooke, asked what our approach would be to trial and pilots, the point made by the noble Lord, Lord Rooker. That is a very good suggestion, but it is a matter for the Leader’s Group, which I hope it will take on board.

I turn to other points that I can cover in the time left. The noble Lords, Lord Rooker and Lord Filkin, referred to whether the Leader’s Group remit would extend to the governance arrangements of the House. The terms of reference will be widely drawn. The group will need to set priorities and will take its own decisions on what it wants to cover, but it is setting itself a big agenda.

A large number of noble Lords pointed out that we cannot consider our practices and procedures in isolation from those of the House of Commons. The House of Lords and the House of Commons keep their separation up to a point. We should learn from what they have done. There have been several good references to the work of the Wright committee. I do not think that we have been standing still even while the Wright committee has been working, but the Leader’s Group gives an impetus to what has been going on here. As a first step, my noble friend might talk to Sir George Young, the Leader of the House of Commons. I cannot remember who mentioned this point, but striking up a dialogue with the House of Commons is not always as easy as colleagues might think. However, knowing the two men I have just mentioned, some soft soundings might help in meshing what is going on at both ends of the building.

[Lord Kirkwood of Kirkhope]

It would be helpful to the House if my noble friend could give some indication of how long this might take. My noble friend Lord Goodlad is a serious man who I am sure will take this very seriously. But is there any chance of getting an interim report by, say, the end of the calendar year?

[Lord McNally]

Again, that would be both impudent of me and unfair to my noble friend Lord Goodlad and his group. From what has been said today, this will not be a speedy process. There is a big agenda and a lot to be considered. As has been said, the group will look for advice not only from within this Chamber but from bodies outside which have studied these matters.