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House of Lords: Working Practices

My Lords, we, too, very much welcome the initiative of the noble Lord, Lord Strathclyde, and I am happy to reiterate what my noble friend Lady Royall said many hours ago that we will play a constructive role in reviewing our working practices, under the auspices of a Leader’s Group. That will be valuable in itself, but could also lay a good foundation for the more fundamental reform of your Lordships’ House that we are promised. As the noble Lord, Lord Cope, said, it is likely that a fully elected House would need very different procedures; but as there is likely to be a transition period, we will need working practices that help us now, see us through at least the first part of the transition and perhaps make a substantial contribution to the more substantive reforms that we are promised. My noble friends Lord Brooke and Lady McIntosh put it well, so I ask the noble Lord, Lord McNally, how he sees discussions on working practices feeding into the wider reform process. Any reform of our working practices will command the general support of this House only if they are seen as improving its overall effectiveness as a revising Chamber. The noble Lord, Lord Strathclyde, has long championed the value of this House in acting as a check on government. Most commentators feel that we have become increasingly effective in that since the reforms of 1999. That has much to do with the quality of our debates and the undoubted calibre of noble Lords. The noble Lord, Lord Strathclyde, pointed to the large number of amendments made in the previous Session. Of course, some of them were routine tidying up, but I suggest that the House’s reputation is not unconnected with the number of defeats suffered by the previous Government—more than 500 since 1997. Those defeats gave the House considerable leverage and caused the previous Administration to think again on many occasions. That is why the House became so effective. I suffered more than my share of those defeats and make no complaint: that is what the House is here to do. We come now to the circumstances of the coalition Government. As the noble Lord, Lord Elton, said, it is the job of Parliament to control the Executive. It is early days, but there is a genuine question about how the House will continue to control the Executive in the circumstances of the coalition. I would be very interested in the views of the noble Lord, Lord McNally. What role does he expect the House to perform if he and his colleagues on the Front Bench are determined to force through every clause of every piece of legislation that they put before us? We are coming to the closing stages of the Academies Bill. If ever a piece of legislation fitted the description of "ill digested legislation" made by the noble Lord, Lord Strathclyde, this is it. It has been rushed through your Lordships' House at an unseemly pace because Mr Michael Gove, in one of a number of misjudgments for which he is becoming so well known, insisted that some academy schools had to be up and running by September. That is why the noble Lord, Lord Skelmersdale, was forced to stay so long last week. As the noble Lord, Lord Lucas, said, on Report three amendments were voted on. They were defeated by the Government, which had the votes to do so. Fair enough—but if the future pattern is that the Government will win every vote, the House will begin to lose some of its hard-won reputation. Again I ask the noble Lord, Lord McNally, how he sees the House acting as a check on the Executive in those circumstances. The noble Lord, Lord Lucas, put his finger on it. When it comes to working practices, we are not short of material. The Wright committee’s work in the other place is of equal significance. I agree with noble Lords who talked about the relationship between the two Houses being of great importance when it comes to changes in working practices. I should be interested in the Minister’s response on how he thinks the Houses might work together. I should also like him to respond to questions raised about the role of the Lord Speaker. Clearly, among some noble Lords, there is a sense of frustration about self-regulation and how it works. Self-regulation depends on Members observing the spirit of the Companion. I say to the noble Lord, Lord Skelmersdale, that I am not sure that it is new Members who do not observe the spirit of the Companion. I fear that it is often very experienced Members. The problem is most clearly seen at Question Time. It is a very important occasion. The House is full, Ministers are on their mettle and it sets the tone for the day; but not all noble Lords are happy with the way in which it proceeds. Supplementary questions are often read, are long-winded and exceed the two points that are permitted, and some ministerial responses are equally lengthy. My noble friend Lady Jones identified that nearly half the supplementary questions were asked by only 8 per cent of our Members, and that the current shouting match may not create an encouraging environment for all Peers to take part. The noble Lord, Lord Luce, shared that view. There is a case for looking at whether the Lord Speaker should perform the role currently performed by the Leader at Question Time, perhaps for a trial period. I should say that I have no criticism of the way in which the noble Lord, Lord Strathclyde, has conducted himself in that matter since he became Leader of the House. Having performed that role myself for about 20 months, I am well aware of the pressures all round the House. Like my noble friend, I, too, have the statistics from my time discharging that awesome responsibility. During that time, the Government batted under its weight. The Conservatives were a little bit over, the Liberal Democrats were an awful lot over and the Cross-Benchers batted quite a lot under their weight. My current statistics show that the Government and the Opposition are getting roughly equal treatment in terms of the number of supplementary questions, with the Cross-Benchers again batting under their weight. As far as concerns the gender balance, so far about 28 per cent of supplementary questions have been asked by women, who make up less than 28 per cent of the House. Question Time is a crucial part of what the House does. It is important that the spontaneity and liveliness of Question Time is not lost with any change that we might make. Many Members have mentioned Lord Williams of Mostyn and the reforms that he made. One of those reforms, to increase the number of Questions to six Questions, did not work; nor do I believe that the Questions to the Secretaries of State worked. We must be prepared to try these things, but it is important that the central focus of Question Time is not lost. I know that many Peers are reluctant to see the departure of self-regulation, but self-regulation will not survive an elected House. At the very least, the Leader’s Group will have to discuss these matters. I want to comment briefly on a number of other matters which have been raised. My noble friend Lord Brett asked some searching questions about debates and particularly about how the Government should respond. That is a very relevant matter indeed. On the suggestion of the noble Lord, Lord Butler, that Statements might be made in Grand Committee, I am not at all convinced. I believe that major Statements of government policy ought to be made in this Chamber; for example, the announcement made today about the NHS, agree with it or not, was a very important Statement. Surely, such Statements ought to be heard in prime time in the Chamber. Frankly, the problem during the Statement was that experienced Members did not observe the spirit of the Companion. However, I agree with the noble Lord, Lord Skelmersdale, that it might be useful to circulate to all noble Lords a pocket guide of the three or four essential points in the Companion.