Freedom of Information

Debate between Richard Shepherd and Elfyn Llwyd

Thursday 24th January 2013 Westminster Hall

[Mr Elfyn Llwyd (Dwyfor Meirionnydd) (PC)]

It is a pleasure to see you chairing this session, Mr Hollobone. It is also a great pleasure to follow the right hon. Member for Berwick-upon-Tweed (Sir Alan Beith), who chairs the Justice Committee with great aplomb and ability. He has eloquently summed up the Committee’s work vis-à-vis scrutinising the Freedom of Information Act 2000 and, although there will inevitably be some repetition, I hope that my remarks do not duplicate his too much.

The Act was the product of many years of campaigning, discussion and commitment from various political spheres. When the Act came into force in 2005, it proved, I believe, to be a landmark piece of legislation. I do not think that it would be hyperbole to say that the Act revolutionised how the public were able to engage with public authorities and with local and central government. It presented a radical development in the extent to which the public were able to engage, and I emphasise that because whether the Act has fulfilled that purpose is a matter of some debate.

In December 2011, the Justice Committee, of which I am a member, called for submissions to its inquiry into post-legislative scrutiny of the Freedom of Information Act. Those giving evidence were asked to consider whether the Act worked effectively, what its strengths and weaknesses were, and whether it was operating as intended. As our report sets out, the Committee received 140 pieces of written evidence and recorded oral evidence from 37 witnesses.

If we are to adjudicate on whether the legislation operates effectively, it is necessary to set out the primary motivation for introducing it in the first place. The Ministry of Justice’s memorandum on post-legislative scrutiny of the Act identifies four objectives: increasing openness and transparency, improving accountability, facilitating better decision making, and increasing public involvement in the decision-making process. In its evidence to the inquiry, the constitution unit based in University college London identified another objective—to promote better understanding of the Government’s decision making. The Committee broadly agreed with that delineation.

On the Act’s first objective, that of increasing openness and transparency, before the Act’s provisions came into force in 2005, information on decision making in central and local government and in other public- facing organisations was obtainable only through official documents and leaked information that had made its way into the press. By contrast, the new legislation provided for a statutory right to gain access to information held by public authorities, and placed a duty on the authorities to establish a proactive publication scheme that was subject to the approval of the Information Commissioner. It sought to make public authorities more transparent in a reactive sense, in that anyone would have the right to put questions to such an authority via an FOI request, and by encouraging a more general cultural change through proactively publishing information.

In our report, we quote from the speech made in the Bill’s Second Reading debate by the then Home Secretary, the right hon. Member for Blackburn (Mr Straw). He said, about the Act:

“It will transform the default setting from ‘this should be kept quiet unless’ to ‘this should be published unless’. By doing so, it should raise public confidence in the processes of government, and enhance the quality of decision making by the Government.”—[Official Report, 7 December 1999; Vol. 340, c. 714.]

In practice, of course, the proposed publication schemes did not work as the then Government intended. The duty to produce publication schemes in section 19 of the Act is accompanied by extensive guidance from the Information Commissioner’s Office on what exactly would constitute a model scheme.

[Sir Richard Shepherd (Aldridge-Brownhills) (Con)]

The right hon. Gentleman touched on the role of the right hon. Member for Blackburn (Mr Straw). We were all present, and we have lived through the development of the Act and are very familiar with it—those of us who were friends of it and those who were not. The now Lord Clark was the initiator of the Bill. The members of the Cabinet, including the right hon. Member for Blackburn, all signed every single word of the pledge. David Clark was then dropped and despatched to the House of Lords, and the right hon. Member for Blackburn has now given us several versions of his position on the matter. I have tried to coax him to say that it was the greatest thing that the Labour party ever did while in office. He has repudiated that. He has adopted it. He has changed his view. And he was the agent who tried to limit the whole Act. So I do not hold him as the flame bearer of that essential part of the Act, and I think that that will be the view of anyone who has had any dealing with the right hon. Member for Blackburn on the question of freedom of information.

[Mr Llwyd]

I am very grateful to the hon. Gentleman for that intervention. He has been intimately involved in this matter for many years and I defer to his greater knowledge. He will see from other remarks I shall make that although I usually hold the right hon. Member for Blackburn in high esteem, in this instance the hon. Gentleman is, I think, right. It seems, from some of the right hon. Gentleman’s utterances of late, that he is rowing like nobody’s business away from the mother ship on this issue, and I am not too sure why. Many people across the political spectrum have worked hard to get us even to where we are now. I do not attribute that progress to one particular person; it has been a joint effort by all the parties over a long period, and I know that the hon. Gentleman has played a pivotal role in that.

The view of many of those who gave evidence to the inquiry was that most public authorities had failed to make full use of the schemes into which they were supposed to enter. There was also much inconsistency across Departments. One of the principal reasons why so few schemes were successful, according to Dr Ben Worthy of the University college London constitution unit, was that technological advances have made proactive disclosure redundant. He said that

“one of the reasons why publication schemes have not taken off in the way that many had hoped is that it has been superseded by the internet search engine and the fact that people can find a way of asking a question rather than looking for the information.”

The right hon. Member for Berwick-upon-Tweed has already touched upon that.

Whereas an authority or organisation may be selective about the data that are released through a publication scheme, modern technology, as we know, has allowed anyone with an internet connection to search for the information themselves. When the Act was drafted, it did not take into account the fast-developing nature of the world wide web.

Roger Gough, the cabinet member for business strategy and support on Kent county council, said that the notion of a publication scheme was “fairly antiquated.” The Information Commissioner’s Office is holding a consultation on the publication schemes, the outcome of which I am sure we all look forward to reading.

But it is not only the internet as a medium that has altered in the years since the Act was first published. Through being used to having information almost literally at the touch of a button, the public now expect more information more rapidly. For that reason, it is doubtful that the Freedom of Information Act has improved public participation in decision making. More often than not, it is those who are already engaged in public life, or those who are acting in a professional capacity, such as journalists and campaigners, who lodge FOI requests. Lord Falconer told the other place that the Act aimed to show citizens

“how government works—and to show them how decisions are taken.”

But as the constitution unit said in its evidence to the Select Committee,

“FOI is used by people already engaged in the political process, rather than bringing new participants into it.”

By contrast, for the vast majority of the UK’s population, and certainly for those under the age of 35, the principal means of obtaining information appears to be via the Google search engine. Here, too, we see why many believe that the Act was doomed to fail in increasing public confidence in public authorities. News stories disseminated online tend to sensationalise information and to focus on the negative aspects of any given story—no surprise there. One is unlikely, for example, to read a long piece online dedicated to congratulating a local council or organisation on its commendable bookkeeping.

Perhaps unsurprisingly, Maurice Frankel, representing the Campaign for Freedom of Information, told our Committee that he had witnessed a surge in trust among those who directly seek information from public bodies but that the majority of the population were more likely to read the outcomes of freedom of information searches through the media.