28 Feb 2012 : Column 1171
28 Feb 2012 : Column 1171
28 Feb 2012 : Column 1171
Tuesday, 28 February 2012.
2.30 pm
Prayers-read by the Lord Bishop of Liverpool.
Middle East: Quartet
Question
2.36 pm
Asked By Baroness Falkner of Margravine
To ask Her Majesty's Government what is their assessment of the role and future of the Middle East quartet.
The Minister of State, Foreign and Commonwealth Office (Lord Howell of Guildford): My Lords, the Government remain determined to do everything possible to achieve a comprehensive peace in the Middle East. We believe the quartet still has an important role in achieving this.
Baroness Falkner of Margravine: Given the breakdown of talks on 26 January, in the last iteration, and given that one side to the talks has no confidence whatever in the representative of the quartet-to the extent that they will not even shake his hand at the meetings-and that the other side in the talks flagrantly disregards the representative's deadlines for submissions and proposals, can the Government really stick to the view that they have complete confidence in the future of the quartet? Is my noble friend aware of President Sarkozy's comment that the quartet is dead-
"Let's stop kidding ourselves"?
Will my noble friend tell the House what proposals the Government have to put the quartet on a new footing under new leadership?
Lord Howell of Guildford: We all share my noble friend's disappointment at the slowness of progress in the Middle East peace process and the difficulties that are being encountered-as well as at the suspension of the talks in Amman, although they have only been suspended and not abandoned altogether. However, I think that she is a shade harsh in her general judgment. We pay tribute to the efforts of Mr Blair and others in improving the situation on the ground in occupied Palestine, but one must be realistic: the quartet alone cannot achieve the progress that we all want to see. Such progress can happen only if the will is there, but the will is not present on all the necessary sides in the peace process to make progress along the road map. If the will is not there, the quartet cannot achieve the impossible.
Lord Anderson of Swansea: Does the noble Lord agree that the quartet is divided-for example over Syria, given Russia's view on it-and that it has been ineffective, save marginally at the lower infrastructure level; but that we cannot kill it because there is no alternative, and one day there may be a role for it?
28 Feb 2012 : Column 1172
Lord Howell of Guildford: I think that the noble Lord is realistic. The quartet is not in a position to achieve the magic progress that we want to see, but the moment may come when its usefulness can be developed. In the mean time, we retain confidence in it as a part of the mechanism for taking things forward. Clearly, however, many other aspects need to be improved and strengthened.
Lord Lea of Crondall: My Lords, how does the effect of the Iranian nuclear weapons crisis on Israel bear on the ostensible agenda of the quartet? Is there not a lack of reality in the timescale as regards the urgency of various matters? Will that have a bearing on the present agenda of the quartet?
Lord Howell of Guildford: The noble Lord is asking about the broader issue of Israel and Iran and the very tense situation that clearly exists. I think it was President Obama who, on becoming President, was advised that everything in the Middle East is connected with everything else. Israel's concerns about Iran, and all our concerns about Iran's attempt to move to nuclear weapons, are part of the Middle East imbroglio. However, we must not let that take our eye too much off the need for the Middle East peace process to go ahead and for the road blocks along that process-including the building of settlements, which is clearly a major obstacle-to be overcome.
Lord Low of Dalston: My Lords, with the rate of Israeli settlement in Palestine continuing apace and apparently unchecked, in precisely what respect has the situation improved on the ground?
Lord Howell of Guildford: As far as settlements are concerned, it has not improved at all. On the contrary, although the Jerusalem municipality has told the British representatives who make constant representations that for the moment it does not plan any further settlements, or any further demolition in east Jerusalem either, the settlements seem to continue. So there has been no improvement there. I was referring to Palestine industry and enterprise and some beginnings-even in the miserable conditions of Gaza-of advance in enterprise, thanks to some noble and dynamic contributions by British businesses.
Lord Hannay of Chiswick: My Lords, if the Palestinian parties, Fatah and Hamas, reach agreement in the coming weeks on constituting a technocratic Government with Mahmoud Abbas as both President and Prime Minister, will the British Government use their influence to deal directly with the Government who emerge from that process and not be impeded from doing so by any objections from elsewhere?
Lord Howell of Guildford: The answer is yes, provided that Hamas shows some readiness to conform to the quartet principles, renounces violence and plays a constructive role. Provided that that happens, we could then move forward, and certainly the British Government would use all their influence and support to ensure that that process did move forward.
28 Feb 2012 : Column 1173
Lord Alderdice: My Lords, from my visit there last week, I have come away with the sense that some important changes are taking place. Indeed, on the Palestinian side, there is a sense of confidence which is perhaps partly to do with the application to the United Nations and other developments. However, is it not clear that the efforts of the quartet itself are resulting in little more than nugatory negotiations and arbitrary deadlines? Given that elections are now in the air so widely among the participants both inside and outside, would it not be better for the quartet to pull back and analyse how it could produce a strategy that over the next three to four years will produce serious negotiations, rather than to continue kicking at a door that will not lead it anywhere in the very short term?
Lord Howell of Guildford: I think that my answer has to be the same as the one that I gave to my noble friend earlier. The quartet is part of the mechanism, but many other things need to change and improve. There is the question of the recognition of Palestine as a state. The British Government believe that Palestine has fulfilled most of the conditions for that although we think that the ultimate statehood will be acquired when the occupation ends and when peace is achieved. These things must all be pressed together. I do not think that it would be wise at this stage to say that the quartet must be put on the back burner and not play any role at all-it could play a role. At the moment, there are obviously major difficulties in the way.
Baroness Tonge: My Lords, I have just returned from a conference called by the Arab League in Qatar on the subject of Jerusalem. At the end of that conference a resolution supported by the Arab League was passed to ask the United Nations to try to stop Israel's annexation and Judaisation of east Jerusalem. Will the British Government and the quartet support this move?
Lord Howell of Guildford: That is part of a jigsaw, the aims of which would certainly have our full support. The position is that after the suspension of the Amman talks, Mahmoud Abbas and others have made it quite clear that the aims are: border security, on which Israel is supposed to report back by the end of March on what it does; a freeze on the settlements, which certainly has not occurred; and that if neither of those things happens, then indeed the whole process will go back to the United Nations-and we shall continue to use our best efforts to make progress there.
Local Authorities: Standards
Question
2.44 pm
To ask Her Majesty's Government what impact the new arrangements for monitoring standards in English local authorities will have on the incidence of vexatious and frivolous cases and on potential whistleblowers.
28 Feb 2012 : Column 1174
The Parliamentary Under-Secretary of State, Department for Communities and Local Government (Baroness Hanham): My Lords, the Standards Board regime actively encouraged vexatious complaints, often for political point-scoring. Councillors were often put through a lengthy investigation process before the matter was resolved. A councillor should not be found to be in breach of the code of conduct if, in highlighting fraud, waste or incompetence, they do so in a proper way. Our reforms will enable councils to deal with complaints expeditiously, and require them to seek the views of an independent person.
Lord Tyler: My Lords, I am grateful to my noble friend for her very helpful response. During the Committee stage of the Localism Bill, I referred to the particular case of Councillor Esmond Jenkins, who was pursued to the Standards Board for England after he had blown the whistle on corruption in Cotswold District Council. Does my noble friend recall that the Minister then responsible, our noble friend Lord Taylor of Holbeach, rightly said that such complaints to the board could be petty, malicious, vexatious or politically motivated? I am grateful to my noble friend for reiterating some of those points.
I have already established that the Standards Board for England spent in excess of £63,000 of taxpayers' money on that case. Can my noble friend assure your Lordships' House that the replacement regime to maintain the standards of integrity and behaviour in local government will avoid wasteful expenditure on persecution of that sort? In particular, is she satisfied that councillors who investigate and expose wrongdoing will not be accused of bringing their authority into disrepute?
Baroness Hanham: My Lords, the changes we made to the standards committees and standards support were made, as the noble Lord will recall, as a result of concern in this House. Our thrust has always been to ensure that this matter is run at a local level so the decisions made on how the system is set up will be left to local authorities. But I assure the noble Lord that we will be monitoring what happens as a result of those changes and looking to see how local authorities are dealing with allegations about the conduct of councillors-just to avoid, we hope, the problems that he mentioned and to find out the views of councils about the new arrangements.
Lord Alton of Liverpool: My Lords, has the noble Baroness had a chance to reflect on the recent High Court decision in the case of Bideford Council? Does not she agree that it is "vexatious and frivolous"-the words in the Question-when local authorities are taken to court for arranging voluntary sessions before council meetings where members are invited to say prayers, as we do in this House?
Baroness Hanham: My Lords, that was a legal decision which was interpreted, I think, as part of European Union law. It is clear that councillors can voluntarily attend prayers if they wish. There is no
28 Feb 2012 : Column 1175
Lord Palmer of Childs Hill: My Lords, is the Minister aware that under the new legislation the sanctions being considered and imposed by local authorities are only as draconian as asking the leader of the group to have words with the offending member? Has my noble friend any observations as to how the sanctions can be more biting than those being imposed by a cross-section of councils that I have been observing?
Baroness Hanham: My Lords, I think the noble Lord slightly underplays what the sanctions can be. There can be censure. If it is a trivial matter, it can be dealt with by the leader of the group. It can be much more seriously dealt with. It can be taken to the council for formal censure. Someone who is found to have transgressed can also be removed from a committee for a certain length of time. We have not allowed local authorities to suspend councillors as a result of such decisions, but I think we have put forward a perfectly reasonable set of sanctions.
Lord Tomlinson: As the noble Baroness has suggested that the genesis of this legal judgment was European, will she given an undertaking to write to me to explain precisely which part of European legislation is alleged to have been breached?
Baroness Hanham: My Lords, I said that I thought it was; if that is not correct, I will write to the noble Lord.
Lord Hunt of Kings Heath: My Lords, perhaps coming back to the issue, I am sure that the noble Baroness is right to say that the Standards Board did not fulfil the task in the way that it was thought that it would, but there are instances where action should be taken against councillors where they have behaved inappropriately. The noble Baroness mentioned monitoring. Can she give more substance on that? Will there be a review after a certain period of time so that we can see whether the new system is working? There need to be some safeguards for the public interest on this.
Baroness Hanham: My Lords, the impact assessment for the new arrangements on standards provides for a review within three to five years. That will take into account all the matters that the noble Lord has mentioned.
Devolution: Wales
Question
2.50 pm
Asked By Lord Roberts of Llandudno
To ask Her Majesty's Government what steps they are taking to resolve issues arising from the devolution of powers to the National Assembly for Wales.
28 Feb 2012 : Column 1176
The Advocate-General for Scotland (Lord Wallace of Tankerness): My Lords, the National Assembly for Wales is now able to pass laws in all 20 devolved subjects. The Commission on Devolution in Wales-the Silk commission-is looking at how the Welsh Government can be made more accountable for what they spend and at any modifications to the present constitutional arrangements that would enable the Welsh devolution settlement to work more effectively.
Lord Roberts of Llandudno: I thank the Minister for his reply. With an increasing number of powers being devolved to the Assemblies in Wales and Northern Ireland and the Parliament in Scotland, what means are there to inform us of what decisions are taken at that level in Wales, Scotland or Northern Ireland? Moreover, with increasing devolution, what role does the Minister see for this House when it is composed of Members from Northern Ireland, Scotland, Wales and England?
Lord Wallace of Tankerness: My Lords, there are regular exchanges at official and ministerial level where information is given as to legislation passing through this Parliament which has relevance for Wales, Scotland and Northern Ireland, and there are close links the other way. With regard to parliamentary and assembly exchanges, the Calman commission, on which I sat, thought that it would be advantageous if there was a greater flow of information between parliaments and assemblies, but recognised that that would be a matter for the parliaments and assemblies and not for government. On the role of your Lordships' House in relation to Scotland, Wales and Northern Ireland, it clearly has a role in examining matters which in the case of Wales are non-devolved. We have done so since 1999 and I can imagine that we will continue to give it the scrutiny that we would expect of a revising Chamber.
Lord Wigley: My Lords, will the Minister accept that, whereas the outcome of the referendum almost a year ago to this week was quite clear-cut, the degree of devolution in various portfolios remains more unclear? In Wales, unlike Scotland, a portfolio is not devolved in its entirety but is dependent on interpretation of legislation. In order for people to understand better how the devolution settlement is working, will he arrange for this to be reviewed so that we might have more clear-cut devolution that is better understood by civil servants, by the press and media, and particularly by the electorate?
Lord Wallace of Tankerness: My Lords, I recall taking through your Lordships' House prior to the referendum an order in which we sought to try to bring together all the different parts which had been the subject matter of legislative competence orders over a number of years with the objective of achieving greater clarity. However, I note what the noble Lord said. The Silk commission perhaps gives an opportunity for some of these issues to be aired. Obviously, the Government will have to consider what that commission proposes in due course.
28 Feb 2012 : Column 1177
Baroness Gale: My Lords, when the Government established the Commission on Devolution in Wales-the so-called Silk commission-it was surprising to learn that reform of the Barnett formula was excluded from its remit, despite it being a flagship manifesto commitment of both coalition parties. Are the Government still committed to reform of the Barnett formula and, if so, when will it happen?
Lord Wallace of Tankerness: My Lords, I am sure that the noble Baroness will reflect that the Barnett formula has implications for all parts of the United Kingdom and therefore it would not have been appropriate for the Silk commission to look at it in relation to Wales in isolation. That is why the Calman commission, looking at Scottish devolution, did not feel able to look at the Barnett formula. This Government have indicated that, while there is a case for looking at the Barnett formula, it is important that we first bring the finances of the United Kingdom under control. That is a precondition for any movement on the Barnett formula. For noble Lords who are keen to talk about the Barnett formula, the noble Lord, Lord Barnett, has tabled an amendment to the Scotland Bill which I very much hope will be debated later this evening.
Lord Roberts of Conwy: My Lords, one of the remaining issues after more than a decade of devolution is the dire state of the Welsh economy after the Welsh Labour Government have ruled the country. They have got rid of the Welsh Development Agency, which has cost us a great deal, and one Welsh academic has described it as,
Does my noble and learned friend agree with that verdict?
Lord Wallace of Tankerness: My Lords, I am not in a position to agree with that, not having read that particular report. Clearly the economy of Wales is a matter in which your Lordships' House has a legitimate interest, concerning, as it does, both devolved and non-devolved matters. I understand that on St David's Day later this week the House of Commons will be debating Welsh affairs generally, and I strongly expect the economy to dominate and not least the Welsh Development Agency and the point made by my noble friend.
Lord Elystan-Morgan: Does the noble and learned Lord accept that, although as a constitutional precept this Westminster Parliament can, even in relation to any matter delegated to any one of the constituent parliaments, still legislate as it would wish in relation to any devolved area, in relation to Scotland some 14 years ago a convention was kindly agreed to the effect that this House would not dream of doing that unless so specifically requested by the Scottish Parliament? Particularly now in the context of the added powers enjoyed by Wales since the referendum, will such a convention be considered by Her Majesty's Government in relation to Wales?
28 Feb 2012 : Column 1178
Lord Wallace of Tankerness: My Lords, I think that the legislative consent Motion, originally described in Scotland as the Sewel convention after the noble Lord, Lord Sewel, who announced it, has worked well in practice. It is my understanding that if legislation which has implications for Wales is brought before your Lordships' House and the House of Commons, it will be the subject of a similar convention. After each Queen's Speech there is an obligation on the Secretary of State for Wales to consult the National Assembly for Wales about UK government proposals that may have an impact on Wales, not least since the further devolution on devolved matters.
Lord Touhig: My Lords, loath as I am to be in disagreement with my colleague on the Front Bench so far as concerns the Barnett formula, I say to the Minister, "Review the Barnett formula but don't rush it".
Lord Wallace of Tankerness: I hear the noble Lord and he may wish to make that point in the debate later.
Lord Foulkes of Cumnock: As regards the anomalies in relation to Welsh devolution and some of the problems arising from Scottish devolution, which we will be discussing at length later today, as well as the West Lothian question, on which the Government have set up a commission, would those matters not all be better dealt with if we were to look at the English dimension and devolution within or to England?
Lord Wallace of Tankerness: My Lords, I think that there has been some history of that, not least pioneered by the Government of whom the noble Lord was a member. I do not seem to remember that there was huge enthusiasm for it in the north-east of England, but it is still a very pertinent point and one which I am sure will be raised again in debates on this issue in the future.
Schools: Curriculum
Question
2.59 pm
To ask Her Majesty's Government whether they will take steps to prevent the booklet Pure Manhood: How to Become the Man God Wants You to Be being used as part of the school curriculum.
The Parliamentary Under-Secretary of State for Schools (Lord Hill of Oareford): My Lords, the Government take the issue of homophobia in schools very seriously. This and other forms of bullying or discrimination are of course covered by the Equality Act 2010. However, in passing the Equality Act, curriculum materials were
28 Feb 2012 : Column 1179
Lord Rennard: My Lords, can the Minister then tell us what specific actions the Government might consider to prevent the distribution in any school of literature that is clearly homophobic, undermines HIV prevention campaigns and is likely to incite further homophobic bullying?
Lord Hill of Oareford: My Lords, the Government are extremely clear that material used for the purpose of inciting homophobic bullying would be completely improper. The Government would want to take action; it would fall foul of the Equality Act and various other pieces of legislation. The question is whether we should ban all materials, whatever they are, to which any of us individually might take exception. The position that was reached in 2010 on the Equality Act seems to me right. It draws a distinction between how children are taught and what goes on in schools-and it is clear that there should not be that kind of behaviour-and the use of different kinds of material from which, used properly, people could conclude that material of the sort my noble friend mentioned was full of all sorts of errors of the kind to which he referred.
Lord Howarth of Newport: My Lords, have I been wrongly under the impression that in this country we no longer ban books or, indeed, burn them? If equality legislation, while enacted in the name of social progress, has the effect of dragging us back to that illiberal state of affairs, may there not be a case for reviewing the relevant aspects of the legislation?
Lord Hill of Oareford: The point that I was trying to make-perhaps not very clearly-was that the precise point reached about curriculum materials in connection with the Equality Act in 2010 was that it would not lead to the conclusion which the noble Lord and I would want to avoid: that is, that materials to which individuals might take exception would be banned. We absolutely do not want to get to a point where that happens; those days-from whatever point of view that is taken-are fortunately past. Because of the exemption in the Equality Act, that situation does not arise.
Baroness Walmsley: My Lords, is not using this particular document in schools not completely contrary to the department's guidance, which bans the use of inappropriate materials in sex education classes? In a country where three young men have recently been jailed for distributing leaflets promoting hatred of homosexual people, is it not clear that this document is inappropriate and therefore against the department's guidance?
Lord Hill of Oareford: My noble friend is right that the Government issue clear guidance as to what materials are appropriate. If parents, pupils or others are concerned about the use to which particular materials are put, then they have every right to complain to the school,
28 Feb 2012 : Column 1180
Baroness Jones of Whitchurch: My Lords, I think it is important to clarify this. Is the Minister aware that the Explanatory Notes written by his own department to accompany the Equality Act made it clear that the curriculum is covered by the Act? This would obviously outlaw any activity-such as the document we have been talking about this afternoon-which could lead to discrimination on the grounds of sexual orientation or potentially encourage homophobic bullying. Can he please clarify once and for all the status of this document? A public clarification on this could, perhaps, lance the boil of some of the controversial debate taking place on this subject .
Lord Hill of Oareford: I hope I have explained, but if I have failed I will try to make it clearer. My understanding is that there is a clear distinction between what is able to be taught in schools and teaching that encouraged homophobic bullying or inappropriate behaviour of any sort, which would clearly fall foul of a range of different pieces of legislation. That is clearly wrong and we would deplore it. However, the ban on that kind of behaviour and what is done in lessons does not extend to particular source material. For example, there may be people who think that the "Merchant of Venice" as a script, a text or a document encouraged anti-Jewish sentiment. Should that be outlawed? No, it clearly should not. That is the distinction I am seeking to draw between the use to which materials are put and the materials themselves.
Lord Adonis: My Lords, has the Minister read the book and does he have a personal view on it?
Lord Hill of Oareford: As it happens, I have read the material to which the noble Lord referred. Many views expressed in it are not ones to which I would subscribe. However, there are many pieces of information, material and literature that contain views to which I do not subscribe, and I do not have a great desire to ban people who hold views different from mine.
Lord Avebury: My Lords, is it not taking a sledgehammer to crack a nut to ask parents or others who object to homophobic material being used in schools to apply to Ofsted or take action under the Equality Act?
Lord Hill of Oareford: I am sorry; I did not hear the beginning of that question.
Lord Avebury: The noble Lord implied in an earlier answer that the only remedy that a parent had if they objected to the use of homophobic material in the
28 Feb 2012 : Column 1181
Lord Hill of Oareford: I hope that I said that there was a range of routes. Those options are at the extreme end of the routes. Complaints may also be made to the school, the governing body and the department, and to the YPLA on behalf of the department.
St Albans and Welwyn Hatfield (Boundary Change) Order 2012
Motion to Approve
3.07 pm
Relevant document: 38th Report from the Joint Committee on Statutory Instruments, considered in Grand Committee on 14 February.
Public Services (Social Value) Bill
Third Reading
3.07 pm
Scotland Bill
Bill Main Page
17th Report from the DPC
17th Report from the CC
Committee (3rd Day)
Relevant documents: 17th Report from the Delegated Powers Committee, 17th Report from the Constitution Committee.
3.08 pm
Clause 22 : Scottish Crown Estate Commissioner
44B: Clause 22, page 15, line 8, leave out "Scottish Crown Estate Commissioner" and insert "Crown Estate Commissioner for Scotland"
Lord Browne of Ladyton: My Lords, I am sure that your Lordships' House is delighted to return to Committee on the Scotland Bill. It seems some time since we discussed these matters-and indeed it is, so we are glad of the opportunity to debate this important piece of constitutional legislation.
The amendments I will move and speak to today are probing in nature. Amendments 44B, 45A and 45B seek to explore the apparent inconsistency between the names and the appointment processes of the Scottish
28 Feb 2012 : Column 1182
I will say also that I welcome Amendment 45 in the name of the noble Lord, Lord Selkirk of Douglas. I put my name to it as it exactly replicates an amendment tabled in another place by my honourable friend the Member for Rutherglen and Hamilton West, Tom Greatrex, but not debated because of insufficient time.
Amendments 44B and 45A amend the title given in Clause 22 to the new commission role from the "Scottish Crown Estate Commissioner" to the,
I recognise that in itself this is a minor change to the Bill, but it raises a wider point about the consistency of the new roles for Scotland that are created by this Bill. The proposal for the change in title is derived directly from the format established in Clause 20 with the,
not the "Scottish BBC Trust member". We believe that there should be consistency in the Bill in the naming of the new executive roles in Scotland and we ask the Minister why the decision was taken to use a different configuration for the title of the "Scottish Crown Estate Commissioner".
The point about inconsistency becomes more important with the issue raised by Amendment 45B. The appointments process for the BBC Trust member for Scotland is that:
"A Minister of the Crown must not exercise without the agreement of the Scottish Ministers functions relating to selection for a particular appointment".
However, the appointments process proposed for the "Scottish Crown Estate Commissioner" is in,
in consultation with Scottish Ministers. This is the exact point that my noble friend Lord Sewel raised in the debate on 2 February. I am looking now at the Official Report and the words of the noble Baroness, Lady Rawlings, in seeing off my noble friend's amendment. She said that,
So does the role of the Crown Estate Commission. She went on to say:
- "does not give the Scottish Government sufficient involvement in the appointment process. Securing the agreement of the Scottish Government is the appropriate way of involving them in the appointment process for the BBC Trust member for Scotland. The existing provision gives the Scottish Government an important and appropriate power and the UK Government do not wish to weaken this. I hope that this satisfies the noble Lord, Lord Sewel, and I urge him to withdraw his amendment".-[Official Report, 2/2/12; col. 1786.]
28 Feb 2012 : Column 1183
I draw exactly on that argument and wish to apply it to the appointment of the new Scottish commissioner for the Crown Estates.
Amendment 45B brings the appointments process for the Scottish commissioner closer into line with that of the BBC Trust member by proposing that Scottish Ministers should make the recommendation,
These are not issues on which I will seek to test the opinion of the House. I raise them in an effort simply to elicit further information from the Minister about the reasons for these inconsistencies. I am fully prepared to accept that there may be good ones, but I cannot for the life of me at the moment think of what they are, but I wait with bated breath.
I would also like to speak in support of Amendment 45, which replicates a provision tabled by my honourable friend the Member for Rutherglen and Hamilton West to probe the appointments criteria intended for the new role of the Scottish Crown Estate commissioner. At present, there has been no discussion and no detail presented about the sort of qualifications expected of this important role. I look forward to hearing from the noble and learned Lord what conversations the Government have had with the Crown Estate Commission with regard to the proposed new role and the appointments process and qualifications expected. In anticipation of this debate, I had inquiries made of the commissioner's office as to what qualifications would be expected. With all due respect to the answer I received, it did not make it any clearer to me exactly what would be expected of a commissioner, never mind the one who represented Scotland.
3.15 pm
As I am on my feet-and on a more general note-I want to raise another issue. The Secretary of State for Scotland told the Scotland Bill Committee last September that the Crown Estate Commission's operations in Scotland are,
In the context of the Scotland Bill I would like to ask the Minister what he believes the Secretary of State meant by this comment, and whether we might see any significant changes to the Bill in relation to the administration of the Crown Estate in Scotland before the Bill passes through the House. I know also that the Scottish Affairs Select Committee is currently undertaking an inquiry into the management of the Crown Estate and the role and working practice of the Crown Estate Commission in Scotland, and is expected to produce a report in mid-March.
I would have passed over that without comment, but for the comments reported by the Prime Minister in his recent visit to Scotland. I would be grateful if in this context the Minister could inform the House whether the Government are open at least to the possibility of implementing any of the recommendations that may arise from the report of that committee in this Bill.
The Scotland Bill Committee majority report sets out a detailed proposal for the devolution of wide competency over the Crown Estate. Again, in the context of the comments made in Scotland by the
28 Feb 2012 : Column 1184
I close by reminding the Minister that the Calman Commission was crystal clear in its opposition to the devolution of legislative competence for the Crown Estate in Scotland. I hope that the Minister will be able to give this House his assurances that the Government would not seek to go against this recommendation at this late stage in the legislative process.
Lord Selkirk of Douglas: My Lords, I want to address Amendment 45, to which the noble Lord has just referred. This amendment inserts into Clause 22 a commitment to ensure that before a person finds himself or herself in the role of Crown Estate Commissioner for Scotland, that person should be well qualified to do the job. The reason for this is that the resources and responsibilities of the Crown Estate Commission in Scotland are very great-its value is believed to be about £207 million-and I understand that last year, its revenue surplus was more than £9 million, to which the Treasury was entitled under the Civil List Act 1952. The actual Crown Estate is very considerable in Scotland, and has many responsibilities for farms, forests and estates, some of which have many sites of special scientific interest. But the responsibilities do not stop there.
The various Crown regalia include the areas on the coast between high and low tide, and it is no surprise that the Crown Estate has the rights to the foreshore and the seabed, as well as rights for minerals and for salmon fishing. The Minister, the noble and learned Lord, Lord Wallace of Tankerness, may be one of the few in this House who will be aware that in Orkney and Shetland, which he used to represent as an MP, the Crown Estate had absolutely no salmon rights at all. This is because in the past feudal law did not apply there, but udal law did. However, I must say that the Crown Estate has been extremely busy elsewhere, and is actively helping to develop ports and harbours which will benefit the tourist industry which is so important to Scotland. It has, in addition, many major investments in renewable energy, and may invest up to £20 million more during the next few years.
I have a very high regard for the Crown Estate commissioners and wonder whether it might be appropriate to recognise in this legislation their expertise in carrying out their important duties. At present, no detail is put forward in the Bill relating to the qualification of the person who might be appointed. This probing amendment would ensure that the holder of this office will remain highly qualified. I am grateful to the noble
28 Feb 2012 : Column 1185
It has not escaped us that the Secretary of State for Scotland recently made a significant statement about the Crown Estate. He established a coastal communities fund, a grant-giving body, which comes into effect from April. He is hoping for innovative bids. This is funded from the Crown Estate's marine activities. The fund is UK-wide and relates to charities, businesses, social enterprise and local organisations. It allows for the support of economic development relating to the environment, education and health. I understand that £4 million will be allocated every year in Scotland. That is an indication of revenues raised in Scotland being put to very good use. Is it not the case that, with the Crown Estate Commission having such an important role, the person who looks after its interests should be properly qualified? If the Minister in his wisdom considers this amendment is not strictly necessary, I hope that he will give us all satisfactory reassurances.
Lord Forsyth of Drumlean: My Lords, I support the amendments in the name of the noble Lord, Lord Browne of Ladyton. This may appear to be simply a matter of terminology, but a very important point is being made and it is not one just of consistency. The use of the phrase "Scottish Crown Estate Commissioner" in the Bill implies that there is a Scottish Crown. It is not a Scottish Crown estate; it is the Crown Estate in Scotland. The amendment in the name of the noble Lord, Lord Browne, makes that clear by suggesting that the commissioner should be referred to as the "Crown Estate Commissioner for Scotland".
That is deeply worrying and I do not know what is going on in the Scotland Office. This sloppy attention to language is creeping in. It has a sort of nationalist feel about it. I should check with the clerk that it is within the rules of order to refer to the Crown here, but it might be appropriate to point out that the English Crown was taken over by the Scottish Crown in 1603 in a reverse takeover.
On an issue related to this use of language, the First Minister the other day referred to how after independence there would still be a United Kingdom, which is absolute nonsense. The United Kingdom was created in 1707 when the kingdom of Scotland and the kingdom of England-
Lord Foulkes of Cumnock: Does the noble Lord mean 1606, not 1707?
Lord Forsyth of Drumlean: It is nice to have something on which to disagree with the noble Lord. In 1603, we had the union of the Crowns. In 1707, we had the union of the Parliaments. The kingdom of Scotland and the kingdom of England ceased to exist in 1707 because the United Kingdom was created. Therefore, it is illiterate as well as misleading to suggest that there would still be a United Kingdom. If Scotland were to leave the United Kingdom, the United Kingdom would cease to exist. Whether or not the monarch went on to become the head of Scotland as head of state, the
28 Feb 2012 : Column 1186
To return to the subject of the amendment, the use of the terminology "Scottish Crown Estate Commissioner" is wholly wrong, and I hope that my noble friend will feel able to accept the amendment from the noble Lord, Lord Browne, which seems entirely sensible and very necessary.
The Earl of Mar and Kellie: My Lords, I am not certain that I fully agree with my noble friend.
A noble Lord: That is a first.
The Earl of Mar and Kellie: Indeed. Let us try to identify what we are talking about. The Scottish Crown Estate is a pre-union institution. It was put together over many hundreds of years, developed particularly by King James IV, and one of the things that Scotland brought to the union. Therefore the reference to a Scottish Crown Estate commissioner sounds wholly correct. As regards the BBC-
Lord Forsyth of Drumlean: I hate to mention this, but since then we have had the union of the Crowns and the union of the Parliaments. When the Scottish Crown Estate came into that union, it became part of the United Kingdom with a single monarch, and it is the Crown Estate in Scotland. I know that the noble Earl has very considerable historical roots, but we have to use the terminology that is appropriate for our time. Does he not agree?
The Earl of Mar and Kellie: No, I do not. No matter what the noble Lord says, the Scottish Crown Estate existed. I was going to make a point about the BBC. That is undoubtedly a British, 20th century creation, and therefore the idea of a BBC Trust member for Scotland is quite appropriate, but I do not think it is right to enter into the pretence that the Crown Estate is a British institution in Scotland.
Lord Maxton: My Lords, I wonder whether I can clarify the history on this. The union of the Crowns in 1603 formed the kingdom of Great Britain. The United Kingdom was formed in 1800 when a separate treaty with Ireland was also brought in. That gets the history absolutely correct.
Lord Sanderson of Bowden: My Lords, I wish to intervene in this debate particularly in relation to Amendment 45, tabled in the name of my noble friend Lord Selkirk. The qualifications of the Crown Estate commissioner for Scotland are absolutely vital. I have a certain amount of knowledge of this, having worked
28 Feb 2012 : Column 1187
In the past few years, two of the recent members from Scotland have become first commissioners for the Crown Estate. However it is decided who should be the Scottish commissioner, one must bear in mind that if someone is very good, they will probably go right to the top. Although I am happy to see changes made to bring the Scottish Parliament more into the loop, if you like, we have had a good example recently. We do not need to look at the crystal, we have the book. We have these experienced men who have carried out their work on behalf of the Crown Estate extremely well. I for one would urge a little bit of caution as to how the person is chosen.
3.30 pm
Lord Curry of Kirkharle: I do not for one moment want to contribute to the history lesson but can contribute on the basis that I served on the Crown Estate for eight years. I was actively involved when commissioners from England, Scotland or Wales were appointed to the board of the Crown Estate and can assure noble Lords that it takes the process of appointment very seriously indeed. Advice is taken on the process itself, but it is a deliberate policy of the Crown Estate to appoint someone of stature from Scotland, who is going to contribute on behalf of Scotland, has a good understanding of the Scottish rural and fisheries scenes, and as far as possible will build a good relationship with the Scottish Parliament. I am reasonably relaxed about the precise qualifications that the amendment suggests. It is quite possible to encourage a CPD programme, once the commissioner has been appointed, to ensure that the commissioner is fully equipped to represent all the interests in Scotland.
I should just add that the Crown Estate has been very active in investing in Scotland. The whole commission is very committed to the Scottish agenda and will no doubt continue to be committed to it. I will also correct an earlier comment-the Crown Estate certainly has fish-farming interests in both Orkney and Shetland. I have visited both of them on a number of occasions wearing my Crown Estate hat and tried to build reasonable relationships with the fishing communities there.
The Duke of Montrose: My Lords, the noble Lord, Lord Curry, has talked about fishing in Scotland, and my noble friend Lord Mar and Kellie talked about the Crown Estate Commission being set up before the Act of Union. There are some areas of the foreshore of Scotland and some fishing areas that do not belong to the Crown Estate because of historical precedent.
Lord Lyell: I am most grateful to my noble friend Lord Selkirk for his amendment and strongly support it. I had the honour to be the apprentice of the Earl of
28 Feb 2012 : Column 1188
The Advocate-General for Scotland (Lord Wallace of Tankerness): My Lords, I thank all noble Lords who have taken part in this debate. It has been an interesting and useful curtain-raiser to our debates today and important points have been made. I do not intend to go down the history-lesson route but I will deal with the point made by my noble friend Lord Forsyth. It is an opportunity to explain why different terminology and a different process of appointment have been used. Quite clearly, there is genuine need for clarification of that matter and I hope I will be able to do that.
I will first take the issue of the qualification of the person who will be appointed as the Scottish Crown Estate commissioner. I thank my noble friend Lord Selkirk for his amendment. When I was Member of Parliament for Orkney and Shetland, I had many dealings with the Crown Estate on issues of udal law, not least as to whether certain marina berths should have charges levied on them by the Crown Estate, or whether slipways passed over land that belonged to the Crown Estate or to the udal landowner. Some I won, some I did not. However, it indicates the breadth of the work the Crown Estate undertakes, including fish farming and marinas. Inshore and offshore renewable developments are, of course, becoming increasingly important within the area covered by the Crown Estate.
The position of the Crown Estate commissioner requires experience of operating at a senior board level as well as knowledge of one or more of the business sectors and activities in which the Crown Estate operates. These points were very forcibly made by my noble friend Lord Sanderson of Bowden and by the noble Lord, Lord Curry, who obviously speaks from his own experience of having been a Crown Estate commissioner.
The fact that my noble friend's amendment relates specifically to land management and law would put an unnecessary restriction on who could be appointed. Of course, as we have already heard in this debate, there are areas of the Crown Estate's business other than property or law with which it may well be an advantage for an appointee to have familiarity. The Bill provides for the person who should be appointed as a Scottish Crown Estate commissioner to have knowledge of Scotland and conditions there, but that person might in addition have a much broader range of experience and expertise that he or she can bring to the board. There might also already be commissioners on the board with expertise and experience in the areas specified by the amendment.
On the second leg of my noble friend's amendment-the experience of the functions of the Crown Estate-I think it is fair to say, and I am sure the noble Lord, Lord Curry, will correct me if I am wrong, that few if
28 Feb 2012 : Column 1189
Lord Foulkes of Cumnock: The Minister mentioned the appointments process, but is there a clear understanding or requirement that the process must be carried out according to the principles of public appointments throughout the United Kingdom? I know that there are growing fears in Scotland, because of the dominance of the First Minister and the way in which he seeks to impose his views on institutions and organisations, that it is vital that there is a properly constituted appointments process for all public appointments.
Lord Wallace of Tankerness: I certainly believe that there should be transparency in the appointments process. Of course, we will come on to the actual mode of appointment of the Scottish Crown Estate commissioner, which would involve consultation with Scottish Ministers. It is fair to explain why, in terms of nomenclature and mode of appointment, we have different arrangements for the Crown Estate commissioner as opposed to BBC Trust members, for example.
Lord Forsyth of Drumlean: I should say in support of the noble Lord, Lord Foulkes, that I think he was asking for rather more than that. I think he was asking for an assurance that the appointment would be subject to the normal Nolan rules and procedures, not just transparency.
Lord Wallace of Tankerness: I give way to the noble Lord, who may be able to shed light on this.
Lord Curry of Kirkharle: As the first Crown Estate commissioner who will be appointed under Nolan rules, I can say that those rules apply absolutely to the appointments to the Crown Estate. It is a very open and transparent process and, in Scotland, an agency would be used and it would be publicly advertised to try to attract the best people to that post. If there are those who are considered appropriate, the agency would try to approach and encourage those with suitable skills to apply for the position.
Lord Wallace of Tankerness: I am grateful to the noble Lord for that explanation. Indeed, the commissioners are appointed under the Office for the Commissioner for Public Appointments code. I hope
28 Feb 2012 : Column 1190
Lord Foulkes of Cumnock: Can we have assurances that, after the Bill is enacted, they will continue to be appointed under the Nolan code? A lot of us fear-and this applies to the Crown Estate commissioner and even more to the BBC Trust representative-that if there is any undue political interference in that appointment, a lot of people in Scotland would have grave concern.
Lord Wallace of Tankerness: My Lords, there is no intention to change the manner of appointments under the Office of Public Appointments code. However, I will come on to talk about the consultation process that is due to take place, which by its very nature, as it is between the Chancellor of the Exchequer and the Scottish Ministers, will have a political dimension to it. One of the purposes of appointments under the Office of Public Appointments code is to ensure that there is indeed transparency and open competition and to achieve, as well, a balance of skills and backgrounds and avoid any potential conflicts of interest.
The amendment would change "Scottish Crown Estate Commissioner" to,
Perhaps I may explain to my noble friend that "Scottish" is not intended to qualify "Crown", or indeed to qualify the two words "Crown Estate", but to qualify the three words "Crown Estate Commissioner". There are Crown Estate commissioners and therefore "Scottish" is the adjective to be applied to them. Unless we put commas in, I am not quite sure how we could make it clearer than that.
Lord Maclennan of Rogart: But the problem about "Scottish" being used as an adjective to qualify three words, or two words, is that it is not at all clear. It is extremely ambiguous as to whether the individual has to be Scottish and, if so, what definition is being applied. I think, for example, of the Duke of Atholl, who might be said to be Scottish but who spends practically no time in Scotland. Admittedly, his knowledge of Scotland may be quite considerable, but what does Scottish mean? I remember having a discussion about this with the Lord Lyon when I was gazetted. He claimed that I was Scottish because I had a Scottish name. Frankly, this is not sufficiently clear and the proposed amendment is much clearer.
Lord Wallace of Tankerness: My Lords, the position is that it must be a person who knows about conditions in Scotland as they relate to the functions of the commissioners but it does not say that the person has to be of Scottish ancestry or indeed has to have a Scottish name. As we have already discussed and debated, they may have a number of other qualities and it should not be restricted simply to a knowledge of land management or the law. If we were to start to pin it down more than that, we would start to get into difficulties as we might be excluding people who have
28 Feb 2012 : Column 1191
Lord Forsyth of Drumlean: I am a seeker after truth here, but the intervention of my noble friend illustrates the absurdity of the wording. It never occurred to me that "Scottish" would apply to the commissioner. What is being proposed by the noble Lord, Lord Browne, which is,
gives absolute clarity that this is the person who will be responsible for Scotland in the Crown Estate. My concern related to the fact that it was suggesting that it was the Scottish Crown Estate whereas my noble friend thinks it might be the Scottish commissioner. Therefore, we have in this debate illustrated why the noble Lord, Lord Browne, is absolutely right. I hope that my noble and learned friend will accept his amendment.
Lord Wallace of Tankerness: I am sorry to disappoint my noble friend but the problem with,
is that it would suggest that the Crown Estate commissioner's role was restricted to Scotland. That is not the case. The person is expected to play a part in the board as a whole and the person's responsibility should not be physically restricted to Scotland. That is why we believe that to use the,
would restrict the role which that person could play on the board. That would be a very unfortunate thing to do. As we already heard, some of the previous Crown Estate commissioners who had a Scottish remit have gone on to be the first Crown Estate commissioner. It would be very disappointing indeed if we were to use a terminology that suggested that this person could not actually contribute to the work of the board when it related to matters outwith Scotland-or furth of Scotland, if I can use that expression.
Lord Forsyth of Drumlean: If my noble and learned friend will allow me, if that argument stands then how have we managed to get away with the present incumbent being called the Scottish commissioner?
Lord Wallace of Tankerness: I am not sure that we are getting away with it. I am actually trying to propose that it is the commissioner who will have knowledge about conditions in Scotland. There is a distinction, if one chooses to reflect for a moment-
3.45 pm
Lord Maxton: If you follow the logic of the argument that the noble and learned Lord has just put, it implies that the representative for Scotland on the board of the BBC could contribute only if the discussion was about Scotland. That is nonsense and we all know it.
Lord Wallace of Tankerness: My Lords, I shall explain. The BBC Trust is constituted in a very different way and using the expression "the BBC trustee for
28 Feb 2012 : Column 1192
Lord Browne of Ladyton: I am grateful to the noble and learned Lord the Advocate-General for Scotland for giving way. When I came into the Chamber of your Lordships' House today, the Advocate-General for Scotland was answering a Question about Wales.
Lord Wallace of Tankerness: Because I have been asked to answer to your Lordships' House on matters relating to the Wales Office, as indeed I am asked to answer on matters relating to the Scotland Office, although I am not a Scotland Office Minister, and on matters relating to the Attorney-General's Office as well. It would be unfortunate if it were suggested that the Crown Estate commissioner for Scotland was only for Scotland and did not have responsibilities. To answer the noble Lord's point, I do not exercise any functions as Advocate-General for England because it does not have an Advocate-General.
Lord Sewel: Would a way out be to change it to the "Crown Estate Commissioner from Scotland"?
Lord Wallace of Tankerness: For the reasons given by my noble friend Lord Maclennan of Rogart, the Duke of Atholl may not actually have come from Scotland but may have had a lot to contribute. If someone has a bright idea that squares all these circles, I would be interested to hear from them.
Lady Saltoun of Abernethy: My Lords, would perhaps "Crown Estate Commissioner with special responsibility for Scotland" solve all the problems?
Lord Wallace of Tankerness: The noble Lady's suggestion certainly sounds much more promising. It could mean that we were not putting an artificial restriction on the role that that person could play on the board as a whole. As other noble Lords have indicated in this debate, the contribution made by the Crown Estate commissioner who currently has responsibilities of a Scottish nature has been very important to the overall working of the board. If we were to limit it by territory, there are parts of the United Kingdom where the Crown Estate does not necessarily have any activity and therefore it would become very unfortunate. I shall reflect on what the noble Lady has said. It was a helpful suggestion that reflects the fact that the person ought to have a knowledge of Scotland and be able to make a contribution on it, but they should also have a broader expertise that they can bring to the work of the board. That is what we are seeking to achieve.
Lord Forsyth of Drumlean: I apologise for interrupting my noble and learned friend so frequently, but his argument needs a bit of shoring up. As I understand it, the argument is that if the Crown Estate commissioner were the Crown Estate commissioner for Scotland, he would not be able to participate on the board because he would appear to be concerned solely with Scottish interests. Can I take it, then, that the Government are
28 Feb 2012 : Column 1193
Lord Wallace of Tankerness: I am grateful to my noble friend for the shoring up. The very fact that we have had this debate on the wording suggests that if we had proposed something else, I can imagine that he would have been one of those saying, "Of course, you mean that this person can make a contribution only in respect of Scotland and that is not acceptable as that person needs to have a wider remit". As I indicated to the noble Lady, Lady Saltoun, her suggestion is worthy of further consideration and I shall consider it. If it answers the key point, which is that the person should have knowledge of Scotland and should not be restricted in terms of their qualifications-the broad totality of what is required for the board should be a factor in that person's appointment, but the person might also have a special responsibility for Scotland or particular interests there-then that might well address the need without being unduly restrictive or indeed giving a misleading description of what that person's role would be. I thank the noble Lady for that suggestion, to which I will most certainly give consideration.
Because of that wider responsibility, it is important that the appointment of all commissioners should be made by the sponsoring Minister, in this case the Chancellor of the Exchequer. I reassure noble Lords that he will make a recommendation for the appointment of this particular commissioner only after consulting Scottish Ministers and listening carefully to what they say. That appropriately balances the need for both a Scottish interest and a UK-wide perspective on the appointment process.
There is particular concern over why there has been a different process for that appointment from that for the Scottish member of the BBC Trust. The BBC Trust has a different constitution from the Crown Estate. Under its charter, the BBC has obligations to broadcast to all parts of the United Kingdom and to have a member of its trust for each of the nations that make up the United Kingdom. That is very distinct from the position of the Crown Estate, which has no such requirements. Indeed, as I indicated a moment ago, it does not even have to have a presence in any particular part of the United Kingdom.
The appointment of all Crown Estate commissioners is by Her Majesty on the recommendation of the Chancellor, reflecting the UK-wide responsibility of every commissioner. The UK Government will still need to discuss the Scottish appointments of both organisations with Scottish Ministers to ensure that the best people to represent Scottish interests are appointed.
The noble Lord, Lord Browne, asked about the status of the Crown Estate in the Bill. It is certainly the Government's intention to consider the report of the Scottish Affairs Committee alongside the request that was made by the Scottish Government for further
28 Feb 2012 : Column 1194
Particular to that is the coastal communities fund, which was mentioned by my noble friend Lord Selkirk. The Chief Secretary to the Treasury announced the establishment of that fund, which will be financed by the Government through the allocation of funding equivalent to 50 per cent of the revenue from the Crown Estate's marine activities. It is linked to revenue that is raised by the Crown Estate's marine activities each year and the funding will be available on a bid basis. The Government will welcome bids from charities, businesses, social enterprises and local organisations. In that way, we can build a stronger link between the activities of the Crown Estate, particularly in coastal communities, including those that are affected by such activities. It is a very positive step, which recognises the role of the Crown Estate.
I have indicated that I will certainly give further consideration to nomenclature and thank the noble Lady for her helpful suggestion. However, I have also indicated that there is a distinction between the constitution of the Crown Estate on the one hand and that of the BBC Trust on another. The latter has a specific requirement to serve specific parts of the United Kingdom, which is why not only the nomenclature but the mode of appointment is different. On that basis, I urge the noble Lord to withdraw his amendment.
Lord Browne of Ladyton: I am very grateful to all noble Lords who have taken part in what proved to be a much more interesting debate than I expected. I made clear in my introductory remarks that these are probing amendments, which implied that I had no intention of dividing the House. Having listened to the argument, I am severely tempted to do so because it may turn out to be the high point of my career in the House of Lords but I will resist the temptation.
I am grateful to the noble Lord, Lord Forsyth of Drumlean, who immediately got the point that underpinned the argument about nomenclature. However, I agree with the noble and learned Lord, Lord Wallace of Tankerness: I always thought that the adjective qualified the "Crown Estate" commissioner, rather than "Crown", which is exactly what led to the confusion that has been apparent in the debate. I have to say that I am far from totally persuaded that,
bears the narrow interpretation or function that the noble and learned Lord has attributed to it. Try as I might to apply that argument consistently to many other titles, at least one of which I have held as a former Secretary of State for Scotland, it did not seem to me to stand the test of that destructive analysis.
However, I am pleased that the noble and learned Lord has, on behalf of the Government, indicated that he is prepared to take away the issue of nomenclature and think about it. There needs to be clarity of language in the politics of Scotland. We may sometimes misinterpret
28 Feb 2012 : Column 1195
I am persuaded by the noble and learned Lord's explanation of the reason for the different phraseology as regards the process of identification, selection and appointment. I was not aware of that difference and had not uncovered it in my researches. I am grateful to all noble Lords, and particularly to the noble Lord, Lord Selkirk of Douglas, for tabling an amendment, the style of which may have been influenced by one of my colleagues. That was helpful as it gave the noble and learned Lord the opportunity to put on the record information about the appointments process which will benefit that process and the openness of government. This has been a worthwhile debate. As usual with this Bill, issues which are apparently comparatively straightforward turn out to be interesting and educational. I beg leave to withdraw the amendment.
45: Clause 22, page 15, line 9, leave out from "who" to end of line 11 and insert-
"(a) is qualified in land management or the law of Scotland; and
(b) has experience of the functions of the Commissioners."
Lord Selkirk of Douglas: In view of the reassurances given by my noble and learned friend, I shall not move the amendment.
Amendments 45A and 45B not moved.
46: Clause 23, page 15, line 28, at end insert-
"( ) Regulations applying in Scotland may only be made if the Secretary of State has consulted with such persons as he or she considers appropriate."
Lord Selkirk of Douglas: My Lords, I wish to speak to this amendment briefly as it is a probing amendment. It would ensure that the Secretary of State must consult on regulations made under Section 10 of the Misuse of Drugs Act. The reason for this is that the drugs concerned are controlled drugs and licensing provision should have proper consultations. If the
28 Feb 2012 : Column 1196
I hope the Minister in his wisdom will feel able to look favourably on this matter and that he will stress the importance of good practice and best practice. I beg to move.
Lord Maclennan of Rogart: I hope my noble and learned friend will agree that it would always be appropriate in these circumstances to consult NICE.
4 pm
Lord Browne of Ladyton: My Lords, I speak only because of my support for a previous amendment that was withdrawn, and I shall explain that position. As the noble Lord, Lord Selkirk of Douglas, explained, the effect of the amendment is to impose upon the Home Secretary an obligation to consult,
I suppose in this case it is "she"-when making regulations under Section 10 of the Misuse of Drugs Act but, peculiarly, only when such regulations apply to Scotland.
At first, I was attracted to the idea of a statutory requirement to consult. I was so attracted that I and my noble and learned friend sought to move a complementary amendment imposing a similar obligation on Scottish Ministers in the exercise of the new powers relating to licensing that they will enjoy when the Bill in enacted. However, after more detailed research, I have come to the conclusion that the imposition of such an obligation is not necessary in either case, which is why I have withdrawn from the Marshalled List the amendment that stood in my name and that of my noble friends.
I will not detain the House further, but the reason for that is because my research has revealed an extensive commitment to consultation by the UK and Scottish Governments and the Scottish Parliament that it would appear has been rigorously observed over a long period. As noble Lords would probably agree, whether voluntarily or by practice that does not require regulation or legislation, good practice can be developed and it is best left that way. That is my view but I shall leave the noble and learned Lord, Lord Wallace, to explain the detail.
Lord Wallace of Tankerness: My Lords, Clause 23 gives Scottish Ministers the power to license Scottish doctors to prescribe three controlled drugs-cocaine, diamorphine and dipipanone-for the treatment of addiction. The Calman commission recommended that responsibility for the licensing of controlled substances used in the treatment of addiction should be devolved to Scottish Ministers as part of their responsibility for health and well-being. The UK Government consider
28 Feb 2012 : Column 1197
I am grateful to my noble friend Lord Selkirk for his interest in this clause. As I have indicated, the Government certainly want to ensure that the Scottish Government have the necessary powers and abilities to tackle drug misuse effectively. That is why we have introduced Clause 23. However, it is perhaps important to indicate that while Scottish Ministers can consider the particular circumstances in Scotland when deciding which doctors based in Scotland should assume the responsibility to prescribe or administer specific drugs, they do so pursuant to regulations made under the Misuse of Drugs Act 1971 by the Secretary of State-the Home Secretary.
My noble friend's amendment would require the Secretary of State to consult the appropriate persons before such regulations were made. The power to make regulations and the responsibility for the form of those regulations is reserved to the Secretary of State. The Secretary of State is already required by statute to consult the Advisory Council on the Misuse of Drugs before making regulations made under the 1971 Act. As a matter of good practice, the Secretary of State will consult key partners, and often the public, before implementing changes to regulations made under the 1971 Act. The Home Office has recently completed a three-month public consultation on proposed changes to, and the consolidation of, the Misuse of Drugs Regulations 2001. I am afraid that I cannot tell my noble friend Lord Maclennan whether NICE was consulted but, as I can ascertain, that would seem to be one of the bodies that might have been consulted. In the context of the consultation, officials from the department met their counterparts from the Scottish Government to discuss the proposals.
The Bill is devolving the licensing function to Scottish Ministers, and they will consult whoever they think appropriate while exercising that function to license doctors in Scotland. The making of the regulations remains reserved to the United Kingdom and the Home Secretary and I respectfully ask my noble friend to withdraw his amendment. I am sure that this point will have been noted by others, not just in the UK Government but by Ministers in the Scottish Government.
Lord Selkirk of Douglas: I thank my noble and learned friend Lord Wallace of Tankerness very much for his reassurances and I beg leave to withdraw the amendment.
Amendment 46A had been withdrawn from the Marshalled List.
28 Feb 2012 : Column 1198
Clause 24: Power to prescribe drink-driving limits
47: Clause 24, page 17, line 6, at end insert-
"( ) Section 89 of the Road Transport Act 1988 (tests of competence to drive) is amended as follows.
( ) After subsection (3) insert-
"(3A) The Secretary of State shall ensure that tests under this section reflect the content of regulations relating to drink driving limits made by Scottish Ministers under section 9(3) or 11(2).""
The Duke of Montrose: My Lords, in moving Amendment 47, I shall speak also to Amendment 50 in this group. We are dealing here with two further areas in which the Calman commission has taken up the wishes of the Scottish Executive to exercise more power: the setting of drink-driving limits and the setting of speed limits. Amendment 47 amends the Road Transport Act 1988 and would provide for regulations made by Scottish Ministers on drink-driving limits to be referred to in the regulations made by the Secretary of State with regard to the driving test-which, presumably, should still be the same across the United Kingdom. The amendment was suggested by the Scottish Law Society, among others, and is more or less a tidying-up exercise.
I notice that some of the other amendments have been tabled by noble and learned Lords opposite, and I feel slightly in awe of such learned names as appear attached to them. My amendments are directed solely at the Road Transport Act. It is interesting that none of those noble and learned Lords has objected to the devolution of powers on drink-driving, but some of the amendments in the group concern the devolution of speeding. It will be interesting to see what is brought up on that front. Of course, any variation will immediately bring complications for both learner drivers and visitors. The reason for my amendment is that any regulations made by Scottish Ministers with regard to drink-driving limits should be made known to any person submitting himself to a test of competence to drive.
Amendment 50 would provide that any regulations made by Scottish Ministers with regard to traffic regulation on special roads, general provisions as to traffic signs and temporary speed limits would appear in the driving test in a similar way to the issues I raised under my previous amendment.
Section 38(2) of the Road Traffic Act, which lays down the provisions affecting the Highway Code, gives the Secretary of State sufficient powers on his own to carry out the changes proposed in the amendments tabled by the Opposition Front Bench. I should not have thought that all those details about the Highway Code need to be in the Bill. I have received a briefing that may have emanated from my noble and learned friend on the Front Bench which seems rather to agree with that; he may have a similar view, and I look forward to hearing what that is. I beg to move.
Lord Forsyth of Drumlean: My Lords, I think it is in order for me to speak to Amendment 48, which is in this group, at this stage.
28 Feb 2012 : Column 1199
First, I must comment on the amendment moved by my noble friend the Duke of Montrose. There is much talk in Scotland about so-called devo-max, which those talking about it find it almost impossible to define. This seems to me to be pretty close to devo-max. I cannot for the life of me see why we need to have different speed limits or different rules relating to drink-driving between Scotland and England. That will create particular problems for people who live on the border and are driving on roads which do not follow the geographical border. This seems to me to be absolutely devo-max and devo-plus. These proposals have come about because all the parties got together in the Calman commission to try to prevent the nationalists winning a majority in the Scottish elections and thought about everything but the kitchen sink that they could throw into the Bill-which, as usual with legislation these days, was not given great scrutiny in the House of Commons. Here we are in the Lords, looking at this stuff now. The Highway Code and the rules for driving motor cars are complicated enough without there being different rules for different parts of the United Kingdom, which is just plain silly. However, it is in the Bill and the Government appear to be committed to it, so we have to deal with it as it is.
Having said that, I am extremely grateful that the Calman commission, on which a number of my noble friends served, did not in its enthusiasm decide that it should give the Scottish Parliament the right to decide which side of the road we should drive on-I do not know whether it was suggested; perhaps my noble friend Lord Selkirk of Douglas might be able to advise me on that. I make that point not just flippantly, because it is evident that the Bill as drafted gives the Scottish Parliament the power to decide the speed limit for motor cars but not that for HGV lorries. Had it been able to decide which side of the road to drive on, it could have been disastrous, because we would have had cars driving on one side and HGV lorries on the other, and we would have had a head-on collision.
I cannot for the life of me imagine why a Bill, which has been before Parliament now for nearly two years, has been through all its stages and been discussed by the Scottish Parliament, contains an anomaly whereby it makes provision for setting the speed limits for cars but not for HGVs. To give credit where credit is due, the parliamentary committee which looked at the Bill in the Scottish Parliament identified that anomaly. It is absurd that, at a time of great austerity and when local government has had its source of revenue through council tax frozen, we have a proposal that all road signs and speed limits should be able to be changed in Scotland but only in so far as they relate to motor cars but not HGVs.
I received a briefing for this Bill from the Whips' Office whose contents I suppose I am not allowed to reveal because they are secret. It indicated that if I were to press the amendment my colleagues should resist it because, if we included HGVs as well as motor cars in the Bill, it would result in the road signs having to be changed. We would be in the absurd position where we would have to have road signs that related to the UK regulations for HGVs and road signs which
28 Feb 2012 : Column 1200
My guess is that what has happened here is a typical intergovernmental dispute. I suspect that the Department for Transport is digging in its heels to maintain control over HGVs and the Scotland Office is saying, "Well, we've made this promise in Calman, so we'll just leave it in the Bill and hope no one notices". Amendment 48 establishes a principle which I am sure my noble and learned friend can happily accept because it certainly covers common sense, and I have pleasure in proposing it.
The Duke of Montrose: I do not disagree with my noble friend Lord Forsyth, but is it not true that the speed limit for HGVs is already low enough for the Scottish Executive not to wish to interfere with it? Is not their argument with private vehicles, which have a very much higher speed limit at the moment?
Lord Forsyth of Drumlean: I do not have a clue, but whatever they think, Governments, as I well know, come and go, as do Ministers and Administrations. We are talking about the making of the law here and there should be consistency. It seems to me that when you are driving from London to Glasgow, the amount you are allowed to drink, what you are allowed to do in terms of the speed limit in a built-up area and what you are allowed to do on motorways and dual carriageways should be the same as they were when I learnt the Highway Code. The Highway Code should be clear to everybody and mucking about with it in this way is just plain daft. None the less, that is what we are doing. However, if you are going to give the Scottish Parliament the power to decide on a different speed limit, it seems a bit odd that it should apply not just to motorcars but to all classes of vehicles. That is a very simple point.
4.15 pm
With regard to my second amendment, Amendment 49, and taking the point of my noble friend the Duke of Montrose, if the speed limit is set at 10 miles per hour in a built-up area and I get done for speeding because I was doing 13 miles per hour, should I receive the same kind of penalty as I would if I were driving at 40 miles per hour with a speed limit of 30 miles per hour? In the same way, if the amount you are allowed to drink is reduced to zero and you have half a glass of wine and fail the breath test, should that carry the same penalty as applies in England? That is what the Bill provides. It is a nonsense.
Lord Maxton: The noble Lord has made a very interesting point. Of course, if his second point about drink-driving is true, the penalty if you are done for drink-driving having had half a glass of wine is losing your licence. Therefore, if you have the half glass of wine in Scotland and your licence is taken off you in Scotland, does that mean that you cannot drive at all in England?
28 Feb 2012 : Column 1201
Lord Forsyth of Drumlean: I guess it does, and that is another absurdity but this is what happens when, for political reasons, politicians start mucking around with the powers that relate to Parliaments. The end result is confusion where there should be clarity, and clarity is very important in this area. If there is a case for reducing the speed limit-I think that there is a case for doing so in built-up areas and for increasing it on motorways-it should be done in the United Kingdom as a whole. In all the time that I served as a Scottish Member of Parliament in the other place, nobody ever came to me and argued the case for having a different speed limit in Scotland. People would argue about the regulations that related to where 30 mph speed limits would be but there was no suggestion that there should be differences.
Because I am very constructive when it comes to the Scotland Bill, as my noble and learned friend knows, I am very happy to accept that a decision has been taken on this. However, if you are going to make changes to the law and to the ability to change the law in respect of speeding, drink-driving and so on, the penalties should match the crime, and we are not providing for the Scottish Parliament to be able to produce the whole package. In short, this is a bit of a muddle. I look forward to my noble and learned friend's answer and to hearing a commitment that he will sort out the muddle in the way that this House is very good at doing.
Viscount Younger of Leckie: My Lords, my name is added to Amendments 47 and 50. However, I should like to focus my thoughts in general on all the amendments in this group, which specifically, following my noble friend the Duke of Montrose, covers the devolvement of drink-driving test thresholds to Scottish Ministers and the decision on speed limits north of the border.
Within the Bill I am broadly supportive of passing decision-making to Scottish Ministers on major issues such as raising taxes. However-and this is where I agree with my noble friend Lord Forsyth of Drumlean -my initial reaction to the proposals for potentially different speed limits and alternative breath-test thresholds on either side of the Scottish border was that they were petty, insignificant and unnecessary. Above all, I felt that any such change north of the border must surely be change for change's sake, with the Scots just wishing to be different and having an implicit mistrust of the English authorities to set correct limits for both.
I regard us as being one nation for these purposes. In case we had not noticed, there is a seamless border between Scotland and England, so any change would necessarily mean increased bureaucracy, together with, as has already been mentioned, changes in the Highway Code, and, in particular, signpost changes everywhere along the border from Gretna to Coldstream and beyond, leading to increased costs. Above all, it would be confusing for the motorist. It has already been pointed out that if, for example, someone driving north is stopped south of Carlisle and breathalysed, and is then let off because of the limit in England, and he then unfortunately gets caught again when he is stopped at Beattock Summit, he could be over the limit there-assuming there is a lower breath test limit
28 Feb 2012 : Column 1202
However, that was my initial reaction and I have come round to thinking more positively about the potential differences north and south of the border. In so doing, I decided to look at the Irish experience-that is, the differences in road laws north and south of the border. Again, it is a seamless border. There are, first of all, broadly similar speed limits, the major difference being that there are kilometres in the south and miles in the north. The implications for that are that drivers have actually got used to the changes and highway codes have been changed without too much bother. The main thing is that rental companies have had to be aware of the changes and have had to, over time, issue new guidelines. Some of their cars have dual kilometres/miles per hour on their speedometers.
When it comes to the breathalyser tests, there are differences between the Republic and Northern Ireland. At present, Northern Ireland is the same as the rest of the UK, which has a limit of 80 milligrams per 100 millilitres of blood: beyond that, you get caught. In October 2011, the Republic's threshold was lowered to 50 milligrams per 100 millilitres of blood. In Northern Ireland, there is now talk of changing to the Republic's levels. It is no bad thing, therefore, if Scotland also goes down this route, given devolved powers.
Why is this? It is because in Scotland, the road casualty rates, some of which inevitably result from drink-driving, are 34 per cent higher per head of population-both for fatalities and for serious injuries. We should bear this in mind. The Royal Society for the Prevention of Accidents fully supports a reduction in breath test limits. It says this is a chance for greater financial benefits for the nation as well as benefits in health and well-being.
Lord Forsyth of Drumlean: I am most grateful to my noble friend, but is he not making an argument for the whole of the United Kingdom? Is not the difference in statistics between Scotland and England, which he has highlighted, an argument about enforcement rather than the level of the limit?
Viscount Younger of Leckie: I take my noble friend's point, which is a good one that should be discussed. It brings up the point about discussions going on north and south of the border concerning that issue. One point to make is that a recent survey highlighted the fact that 79 per cent of Scots were in favour of lowering the limit.
Finally, as has been mentioned, if Scottish Ministers did decide to change either speed limits or breath test levels north of the border, there need to be certain safeguards in place. For example, if an English driver commits a serious offence in Scotland, it is imperative that a disqualification remains in place when he returns home. There is form on this. In 1998, for example, there was an agreement of co-operation between the Republic of Ireland and 13 member states of the European Union over disqualification. I understand that there is also an agreement between Northern
28 Feb 2012 : Column 1203
Lady Saltoun of Abernethy: My Lords, I just want to raise one little matter about the drafting of Amendments 48 and 49 tabled by the noble Lord, Lord Forsyth. Surely it would be better if the provisions to set penalties for drink-driving and for random breath-testing were put in Clause 24, which concerns drink-driving, rather than in Clause 25, which concerns speeding.
Lord Steel of Aikwood: My Lords, where I disagree with my noble friend Lord Forsyth is in our attitude to devolution as a whole. I would sign up for what is called "devo-plus". I define that as meaning the greatest amount of devolution consistent with common sense. When we come to debate financial issues I will say more about that, in the light of Prime Minister Cameron's recent utterances in Scotland. Given that we are likely to come back to the issue in future legislation, if we take a definition of "consistent with common sense", I say with great respect to my colleagues who served on the Calman commission that I am not certain that different categories of air guns, different drink-driving limits or different speed limits are consistent with common sense, and we would do better to remove them altogether.
My noble friend referred to those who live on the border. When I was first elected to the Commons, my constituency boundary was the English/Scottish border. My nearest railway station is across the border. When I come to your Lordships' House by train, which I do from time to time, I have to travel across the border. Let us suppose, although it is unlikely, that the Scottish Government decided to keep the drink-driving limit higher than it is in England, and let us suppose that I repaired to that excellent institution, the Cross Keys Inn in Ettrickbridge, before setting out on my journey. I could then find myself within the law for the first part of my journey and then fall foul of the law for the second part. A much more likely scenario would be that I met my noble friend Lord Forsyth on the train going north and we had a meal and a convivial glass of wine. I could then be perfectly legal on leaving the station and suddenly illegal as I neared my home. This is not consistent with common sense. When we come to a future Scotland Bill, I hope that we might drop these issues and deal with more substantial devolution questions that are of greater interest to the Scottish people.
The Earl of Caithness: My Lords, as I listened to the debate I wondered whether my noble friends had driven through Europe. The exact problems they explained to the House are those that one gets in Europe. Last week I drove through three countries in about an hour and a half. In each of them there was a different speed limit. This was well signposted at the side of the road and I did not cause immense problems.
Lord Forsyth of Drumlean: Is there not a proposal for harmonisation of speed limits and other matters in the European Union for precisely the reasons that the
28 Feb 2012 : Column 1204
The Earl of Caithness: My Lords, one of the countries was not in the EU.
Lord Boyd of Duncansby: My Lords, three amendments in this group-Amendment 47A, 47B and 50A-are in my name and those of my noble friends. I do not intend to speak to, or in due course move, Amendment 47B. Before I get to the meat of the amendments, perhaps I could make a general point about the Bill and the proposals from the Calman commission. The noble Lord, Lord Forsyth of Drumlean, said-I hope that I do not misquote him-that this was dreamed up by a group of politicians who got together to try to prevent an SNP victory. Perhaps I was slightly naive at the time, but I did not think that that was my task as a member of the Calman commission. I am looking at two of my fellow commissioners across the Chamber and I do not think that it was in their remit, either.
In relation to road traffic, we received and assessed evidence. I have just had a quick look at it. Much of it was received from the Association of Chief Police Officers in Scotland. It is true that we commented that it was unfortunate that we did not receive evidence from major motoring organisations representing a Great Britain-wide viewpoint. We took that into account when we reached the view that we did in relation to both drink-driving and speed limits.
4.30 pm
At the moment, enforcement of the drink-driving limit is effectively devolved. The noble Lord, Lord Forsyth, made an important point in relation to enforcement, when he intervened during the speech of the noble Viscount, Lord Younger. Of course, as Lord Advocate I was very close to enforcement issues. I personally did not consider that there was any weakness in the enforcement regime, at either police or prosecution level. That is not to say that we were ever complacent about it, and there were consistent attempts to ensure that enforcement was rigorous-and yet we still see a higher fatality rate in Scotland.
We received evidence from ACPOS, which told us that there was,
- "a need for a Scotland-only solution to drink driving but that this need not necessarily mean devolution of powers",
and it was certainly keen on a "Scotland-only solution". When we came to view the issue, we were of course aware that the Scottish Parliament had responsibility for it in relation to criminal law.
In relation to speed limits, there is already a considerable degree of flexibility for local variation in Scotland, with local authorities having powers to set their own limits. Of course, I appreciate-and the noble Lord will no doubt say-that this does not affect the national speed limits on country roads and so on. That is undoubtedly true. In relation to the point made by the noble Lord, Lord Steel, about whether it is right to have differences and that people who live in border areas might find it particularly difficult, judgments have to be made as to where the balance lies and people can disagree over those judgments.
28 Feb 2012 : Column 1205
I can quite understand that from the point of view of the noble Lord, Lord Steel, who has represented a border constituency and still lives in that area and is aware of these issues, that would be a much more important factor than for someone who lives at the other end of the country such as the noble Lord, Lord Maclennan of Rogart. The noble Earl, Lord Caithness, who is not in his place any more, made an important point about the fact that people have experience of driving through different countries on the continent, and the contribution of the noble Viscount, Lord Younger, in relation to Ireland was also very significant.
Lord Forsyth of Drumlean: I cannot think of an example-perhaps my noble friend Lord Steel could help me-but there are roads in the Borders which go in and out of Scotland and England as you drive along them. If there were differences in the drink-driving limits or the speed limits, would we have signs every 100 yards saying "Now it is 30" or "Now it is 20", or would we have policemen sitting in a lay-by in England or Scotland, depending on which had the higher limit, and would we have great arguments in the courts as to which part of the road you were on?
My noble friend Lord Caithness, who has now left, talked about driving across Europe. We are not talking about driving across Europe; we are talking about country roads in the Borders. What is the utility that is being achieved here? The arguments that the noble Lord is making, with which I have some sympathy, are arguments about what the limits and rules should be; they are not actually arguments for it being different in different parts of the United Kingdom.
Lord Boyd of Duncansby: I am not familiar enough with the borders to say to what extent roads come in and out of Scotland and England. The picture the noble Lord seems to be painting is that every 100 yards it meanders over the border. Of course, I am aware that a river forms at least part of the border. I actually thought that there were more significant difficulties with Northern Ireland and the Republic. I remember reading stories about people having part of their house in the Republic and the other part in Northern Ireland. Of course, you would not drive through a house. Nevertheless, roads probably do meander more over there than they do between Scotland and England. I take the noble Lord's point; clearly there may be times when there are issues with that. I should think that there will be a common-sense approach between police forces on both sides of the border, as there already is in relation to jurisdictional difficulties, wherever they might arise.
Lord Sanderson of Bowden: I may be able to help the noble and learned Lord. The road that I use to go to Berwick-and no doubt the noble Lord, Lord Steel, does the same-goes through a small village in Scotland, in which the speed limit is 40 mph. When you go into England, it is 30 mph. I happened to get caught going at 35 mph in the village of Wark, so there are differences at the moment on these roads.
Lord Boyd of Duncansby: I am obliged to the noble Lord for that information.
28 Feb 2012 : Column 1206
A number of issues are raised by these amendments as a whole. The first is one of road safety. That has already been raised in the amendment in the name of the noble Duke, the Duke of Montrose, and the noble Viscount, Lord Younger. It was also raised in the amendments that we have put down. There are two particular issues here. One relates to the Highway Code, the other to the driving test.
Paragraph 95 of the Highway Codesays:
"You MUST NOT drive with a breath alcohol level higher than 35 microgrammes/100 millilitres of breath or a blood alcohol level of more than 80 milligrammes/100 millilitres of blood".
It then tells you why you should not do that; alcohol will give,
- "a false sense of confidence ... reduce co-ordination and slow down reactions ... affect judgement of speed, distance and risk".
Paragraph 124 and the accompanying table in the Highway Code reflect the speed limits, and say:
"You MUST NOT exceed the maximum speed limits for the road and for your vehicle".
It is of course clear that if Scottish Ministers exercise their powers under the Bill, and vary the limits in either case, that will have a knock-on consequence for the Highway Code and for the driving test. It is important to ensure that people are sufficiently aware of the differences where they exist. It is important that we do not have some kind of Scottish edition of the Highway Code that reflects only the Scottish position but have instead a code that is still a United Kingdom code but that reflects differences in these limits where they exist. On the speed limit, for example, the accompanying table could be quite simply amended to show these differences where they exist.
The Calman commission obviously missed a trick when we decided not to give the power to the Scottish Parliament to change the side on which the traffic moves. Driving on the left seemed to us to remain important.
The other issue raised by the noble Lord, Lord Forsyth, was HGVs. The Calman commission did not distinguish between different types of motor vehicles. I am unclear why that distinction is there and why it remains, and I certainly look forward to a good explanation, shall we say, from the noble Lord, of why that should be. It really does not make sense to have that kind of distinction. He may say that long-distance truck drivers are used to driving over the border, but that raises the question as to why we are devolving it at all. In fact, these very people are more likely to be aware of the differences where they exist. Therefore, if he were to advance that argument, it would not be an argument that I would accept.
The noble Lord, Lord Forsyth, also raised an important issue about penalties. The Calman commission simply looked at the offences and the limits on the blood alcohol and breath alcohol levels and the speed limit. I do not think that we mentioned penalties. However, there is an important point here. A reduction in the limit is more important when one talks about the alcohol limit. For example, there has been talk of a reduction to zero. If that happens, the penalty would be an automatic 12-month ban. Even someone with a minute level of alcohol would be subject to that
28 Feb 2012 : Column 1207
While this Bill devolves responsibility to the Scottish Ministers to set the blood alcohol level, that devolution might be constrained. Ministers might take the view that, while they are in favour of a reduction in the blood alcohol level, the penalties that would necessarily be imposed because they did not have the power to vary the penalty would mean that the penalty would be disproportionate.
Perhaps there is an issue about the ability to amend primary legislation, but this is a very real issue that the Minister has to take away and look at seriously. Otherwise, we would not properly devolve this matter at all and would be giving only one part of a solution to the Scottish Ministers. I hope that the Minister will reflect on that issue as well as on HGVs, and I look forward to hearing from him.
Lord Maclennan of Rogart: My Lords, perhaps the noble and learned Lord would explain to me what considerations he has in mind that justify the ability to set different blood alcohol levels north and south of the border. It seems to me that the people who live north and south of the border do not have greater sensitivities to these things. The purpose of the law is not to deal with the problem after the event but to prevent people driving with too much alcohol. The commonality of the law north and south of the border makes it clear to drivers what is acceptable. I cannot think that before they set off to cross the border, people are going to check precisely what milligram limits are acceptable on one side or the other. If there is any doubt about the limits of susceptibility, that ought to be discussed by doctors across the United Kingdom before the law is changed.
4.45 pm
Lord Boyd of Duncansby: Perhaps I could first respond to the noble Lord's intervention. I have to say with the greatest respect that I do not accept the proposition he is putting. In the first place, the number of cross-border journeys that are taken in relation to the entire number of journeys made in the UK is minuscule. Typically, people are caught drink driving over very short distances because they are driving home either from the pub or after having gone out for a meal. The noble Lord, Lord Steel, is not in his place, but let us say he goes from Ettrick over the border to catch his train, having enjoyed a good meal. Before he catches his train, he gets caught because over the border there is a different limit.
Lord Maxton: My Lords, will my noble and learned friend give way?
Lord Boyd of Duncansby: I will in a moment. The answer is that you should know what the limit is before you set out on your journey, and that should be the case for everyone.
28 Feb 2012 : Column 1208
Lord Maxton: There is another problem, if we take the example of the noble Lord, Lord Steel. If the noble Lord has a decent meal in the evening with a few drinks, and gets up the following morning and drives his car, he may then be stopped because increasingly, particularly in holiday periods, the police are stopping drivers early in the morning and breathalysing them. Of course, people are not aware of the dispersal rate of alcohol in their bodies.
Lord Boyd of Duncansby: The Highway Code is quite explicit: you should be aware of the amount you have drunk the night before. I had people around for a meal recently. They were not driving, but when I offered them another drink, they said that they could not take it because they would be driving the following morning. That is sufficient for me. With respect, I get the impression that people are more and more aware of both the drink-driving limits nationally and the necessity of ensuring that they do not drink in the evening if they are going to be driving the next day.
Lord Lyell: The noble and learned Lord is making one point. We have heard a great deal about the limits and the penalties. My noble friend Lord Caithness was driving in Europe and went through three countries. In many countries across the Channel, the limit may be 50 milligrams or thereabouts, but often the penalty is either what I would call a light rap over the knuckles or three months. But if the level is 80 or 100 milligrams, which is what we have, quite often it will be one year or even more. Ever since, I think, 1967, the level has been 80 milligrams and 12 months. If we are going to have lower limits as there are in some Scandinavian countries-in Finland, but not Sweden or Norway so far as I am aware, it is zero; I do not know what the penalties are, whether they fluctuate or vary-would my noble and learned friend the Minister put that into the frame when he comes to respond to this?
Lord Sewel:I do not think the real issue in respect of penalties is about proportionality but to do with the type of case we have heard about from the noble Lord, Lord Steel, and my noble friend Lord Maxton, of the person living one side of the border who finds himself on the other side and commits what is an offence on that side but not on the other side. The imposition of the penalty then affects him where he is resident-he would lose his licence for the whole of the United Kingdom although he has committed no crime in England. That sort of situation will not enjoy public confidence.
Lord Cameron of Lochbroom: As the debate continues, it seems we are missing something. If I think back to my days in the law, we had a book called Road Traffic Offences, which dealt with the whole substance of road traffic law, which included regulations in respect of licensing and also of course the issue of penalties. Here, we are, in part, trying to add on to a United Kingdom Act-the Road Traffic Act 1988 in one case, and the Road Traffic Regulation Act 1984 in another-little bits that will apply only to Scotland and which devolve power to make certain changes in the whole
28 Feb 2012 : Column 1209
Lord O'Neill of Clackmannan: Before the noble and learned Lord leaves that point about two different jurisdictions, can he perhaps clear up for me the difference in relation to corroboration between Scotland and England? As I understand it, at the moment, because we have UK traffic legislation, only one policeman is required to provide evidence in an arrest. However, were Scottish legislation to apply and there was a different alcohol or speed limit, would that be subject to a different form of corroboration, since it came from Scots law rather than UK law?
Lord Cameron of Lochbroom: The noble Lord raises an interesting point. I would not wish to give any definitive opinion as it is a long time since I have had to deal with these matters. The noble and learned Lord, Lord Boyd, is probably better able to do so, as he has a more modern understanding of road traffic law as a recent Lord Advocate in Scotland. However, these questions arise over a whole series of issues apart from road traffic. We are getting into an area where I wonder whether the kind of devolving of powers that is being sought here is in fact creating more problems that it would do if the whole issue of road traffic legislation-instead of being under the Road Traffic Regulation Act 1984 or the Road Traffic Act 1988-were left as a separate Act that applies within the jurisdiction of the Scottish Parliament. That would be much clearer for members of the United Kingdom.
Lord Boyd of Duncansby: The noble and learned Lord threw me that one and I will just take it up. It is true that there are a whole range of United Kingdom statutes that nevertheless require different evidential standards on both sides of the border. There is the Misuse of Drugs Act, for example, where corroboration would be required in relation to those offences that were prosecuted in Scotland but not-I think I am right in saying-in England and Wales. The same, of course, is true of the Road Traffic Act. If I may say so, that possibly just reinforces the point that different jurisdictions will have different rules of evidence and in theory, or at least in principle, there is nothing to stop them having different penalties and limits for particular offences.
Lord Wallace of Tankerness: My Lords, I thank noble Lords who have taken part in this debate, which has given rise to a number of important issues. I share
28 Feb 2012 : Column 1210
As the noble and learned Lord, Lord Boyd, indicated, this was done on the basis of evidence. It was recognised by the commission that there are already different speed limits; there are already powers to set speed limits on local authority roads devolved to local highway authorities through road traffic regulation orders. They are free to use their knowledge and assessment of local roads and may set different speed limits of 20, 30, 40, 50 or 60 miles per hour where they think it appropriate.
There was a view on drink-driving that it was part of criminal law, which is already devolved-but perhaps more importantly there are serious alcohol abuse issues in Scotland. I do not think that anyone is running away from them. The view was that this might be one other measure that could be part of how alcohol abuse could be tackled in Scotland.
Before we get on to some of the more specific issues on speeding and drink-driving, I shall take up the important points that have been raised by my noble friends the Duke of Montrose and Lord Younger as well as the noble and learned Lord, Lord Boyd, on the highway code and the driving test. The amendments to which they spoke seek to ensure that provisions of the highway code reflect the content of regulations made by the Scottish Ministers on speed limits and the drink-drive limit under the powers devolved to them in the Bill, assuming that those powers are actually used and changes made.
I fully agree that the highway code should reflect any changes made as a result of the powers being devolved, but it is important to note that there is no other legislation on the content of the code, either in the Road Traffic Act 1930 or in the supplementary provisions in Section 38 of the Road Traffic Act 1988. It would be disproportionate if the only specific statutory requirement on the content of the code were the few provisions in the Scotland Bill when there is no other such requirement to include any specific items of English, Scottish or Great Britain legislation. The code provides guidance, but it is not a comprehensive description of all road traffic legislation. However, I assure my noble friends that the mechanism exists to ensure that the highway code is accurately and adequately updated. It was referred to by my noble friend the Duke of Montrose that Section 38(2) of the 1988 Act gives the Secretary of State the power from time to time to revise the code by revoking, varying, amending or adding to the provisions in the code in such manner as he or she thinks fit.
Section 38(3) places the Secretary of State under a duty to lay proposed alterations to the code, other than those that are merely consequential on the passing of an amendment or repeal of provisions, before both Houses of Parliament at least 40 days before she proposes to make the changes.
28 Feb 2012 : Column 1211
Under Section 38(4), if the House resolves that the proposed alteration should not be made, the Secretary of State must not make the proposed revision to the code. Perhaps significantly, Section 38(5) of the 1988 Act states:
"Before revising the Highway Code ... the Secretary of State must consult with such representative organisations as he thinks fit".
That would include the Scottish Government as was the case during the last major revision in 2005 to 2007.
5 pm
Lord Forsyth of Drumlean: I am sorry, I am rather confused. Which Secretary of State are we talking about here? Is it the Secretary of State for Transport?
Lord Wallace of Tankerness: Yes.
Lord Forsyth of Drumlean: So the proposition is that the duty lies on the Secretary of State for Transport to make amendments to the Highway Code, which may have been made by the Scottish Parliament.
Lord Wallace of Tankerness: Yes, it is the Secretary of State for Transport-I hope that I said "she"-and that would be the case. There are regular revisions of the Highway Code. As I might have said or was about to say, Scottish Ministers were consulted during the last revision and it is intended that they will continue to be consulted.
It would not be helpful to have two separate editions of the Highway Code. I think I am right in saying that one contributor to the debate strongly urged that we should not have a tartan edition of it as well. It was the noble and learned Lord, Lord Boyd of Duncansby. There should be one edition of the Highway Code, but of course it should reflect the differences that are there, and there is indeed a mechanism for doing that. The Government are therefore of the view that an amendment providing for an update to the Highway Code in the Scotland Bill is unnecessary.
Again, with regard to driving tests and the content of regulations, changes made to speed limits are somewhat parallel. Section 195 of the Road Traffic Act 1988 already requires consultation with representative organisations prior to making regulations relating to the driving test. This would include the Scottish Government. I understand the point that questions in the driving theory test about speed limits and drink-drive limits should reflect any new Scottish limits. As with the Highway Code, the driving theory test is regularly updated and significant changes to road traffic legislation can be included. Like the Highway Code, currently the content of the test is not a matter for legislation. To start adding specific requirements as to what the test must reflect, which may be subject to change in the future through primary legislation, would be inappropriate.
Nevertheless, I accept that important points have been made about driver awareness of any changes across the United Kingdom. To that end, I confirm that it is standard practice for the Scottish Government to be consulted when changes are proposed to the driving test. The theory elements of British driving
28 Feb 2012 : Column 1212
Lord Maxton: I have one small question. I take the point about local authorities imposing speed limits as they wish, but motorways of course come under the Highways Agency. If I am right, and if there is therefore a variation in a motorway speed limit, as there can be-there is, for instance, on the very good new M74 through Glasgow, where a 60 limit goes down to a 50 mile an hour limit-who imposes that? Who is consulted, and who is putting that speed limit on?
Lord Wallace of Tankerness: My Lords, motorway maintenance, for example, is certainly devolved to the Scottish Government. I rather suspect that the motorway speed limit is set under UK legislation. If I am wrong, I will either clarify it before the end of this debate or write to the noble Lord, either to confirm or to clarify. I certainly know that the maintenance of the motorway network is a responsibility of the Scottish Administration.
The amendment which noble Lords opposite also propose would require the Scottish Ministers and the Secretary of State to jointly make regulations governing the enforcement of the alcohol limit for driving if the limits in Scotland and England differ.
Lord Forsyth of Drumlean:Before we leave the Highway Code, let us say that this legislation has gone ahead and, for the sake of argument, that the Scottish Parliament has decided to make the speed limit 60 miles an hour rather than 70. If I am a youngster taking my driving test in Hampshire and am asked what the speed limit is on country roads and I say, "70 miles an hour", will I pass the test or do I have to say, "It is 70 miles an hour in England and 60 miles an hour in Scotland."? Listening to him, I do not know how my noble and learned friend will answer that question. I would like to think that the answer is that you have to give both, but how will that youngster know that and what will the mechanism be by which this will be communicated?
Lord Wallace of Tankerness: I think the answer is that the noble Lord would fail the test, because in fact it is 60 miles an hour in England. It is 70 miles an hour only on motorways, not on country roads, so with all due respect he might actually have found that he failed the test regardless of whether the country road is in Scotland or England, but I take the more general point that he was making.
Lord Forsyth of Drumlean: What is the answer?
Lord Wallace of Tankerness: The answer is that it would be in the Highway Code and the question would stipulate whether it meant the speed for motorways in Scotland or in England. These are not insuperable
28 Feb 2012 : Column 1213
Lord Forsyth of Drumlean: This is all very amusing, and I take the point that I should have said dual carriageways-motorways, rather-with regard to the speed limit, but amid all that bluster my noble and learned friend gave the answer: it would be in the Highway Code. How will it get into the Highway Code if my noble and learned friend does not accept these amendments? Are we relying on the Secretary of State for Transport finding out what is going on in the Scottish Parliament and communicating that? How will this be achieved?
Lord Wallace of Tankerness: My Lords, my noble friend is building a mountain out of a molehill. These matters are not exactly going to be slipped under the carpet. As I have indicated, Scottish Ministers were fully consulted in the most recent consultation on the revision of the Highway Code, and there is no reason to suggest that that would not happen again. Indeed, there might be even better reasons why that should happen if these powers are devolved. In the course of these debates my noble friend has put his finger on a number of important points, but I sometimes think that he is trying to make difficulties where in practice none would exist. A young person, or indeed an older person, who has not passed their driving test has to learn the Highway Code to take the theory test, and there are a whole host of questions to learn. Reserved matters change, and that is reflected subsequently in the Highway Code, but people are expected to be prepared for the test that they are about to sit.
I pick up my noble friend Lord Steel's point on people crossing borders. My noble friend Lord Caithness said that he had driven through three countries in Europe where the speed limits changed. I recall driving through different states in the United States where speed limits changed. It was picked up that we are talking not about main roads-the M6 or the M74-but about country roads that could cross borders. I suspect that the same applies to boundaries in some other countries as well. There is certainly a boundary between the Republic of Ireland and Northern Ireland, and matters are resolved there, just as when you have local speed limits.
I can think of one particular local speed limit on the west side of Shetland. I never understood why there was a 40 mile an hour limit there, in the middle
28 Feb 2012 : Column 1214
Lord Sewel: There is a fundamental difference between comparing the Scotland/England situation with that of Northern Ireland and the Republic. They are different states; that is the important issue. I am still concerned about someone crossing the border committing an offence on one side that is not an offence on the other side but losing their licence on a UK basis.
Lord Wallace of Tankerness: My Lords, I give the example of the United States, which is one country where there are different speed limits in different states as you cross them. The noble Lord also mentioned licences. However, the point is that certain things are crimes in Scotland but not necessarily crimes in England. Just because you commit and are found guilty of a crime in Scotland, it is not a defence to say, "Ah, but in England I wouldn't have committed a crime and, therefore, wouldn't have been fined or gone to prison". You must accept the law in the place where you are. If you go out to drink and drive, you should have regard to what the limits are. For the sake of argument, if the limit in Scotland was lower and you knew that you would be driving in Scotland, you should have proper regard to what the law is there.
As someone who was brought up some eight miles from the English border, when I was 18 we certainly knew the difference between the licensing hours in Gretna on the Scottish side and Longtown on the English side. In fact, there was a pub much closer, just across the border on the other side of the A74 from Gretna Green. Local people know what the different laws are on both sides of the border. As I say, if you are drinking and driving you should have proper regard to what the law is in the country in which you are driving.
Lord Sewel: Is the Minister's position that if, as in the case that I cited, a person drives across the border and commits a crime in Scotland that is not a crime in England, it is perfectly understandable that, if the situation allowed, he should lose his licence in Scotland but not in England, where he has done nothing wrong?
Lord Wallace of Tankerness: My Lords, at the moment you could be in a position in which you gain penalty points, which could cumulatively lead to you losing your licence, because you have breached a 20 miles per hour speed limit set by a local authority. Just because a local authority in Hampshire would not necessarily have designated a 20 miles per hour limit for a similar area, that in no way means that the penalty points that you have accumulated for speeding-perhaps outside a school in Lanarkshire-should somehow be discounted. The point is that if the decision
28 Feb 2012 : Column 1215
The Marquess of Lothian: I have listened carefully to what the Minister has said. He quite rightly said that there are signs to tell you whether the speed limit is 30, 40 or 50 miles per hour. I live in the borders as well and sometimes, to get from one part of the Scottish borders to another, I go through England. Is he suggesting that there should be signs to tell us what the drink driving limit is on both sides of the border?
Lord Wallace of Tankerness: I am suggesting that the noble Marquess, being a responsible citizen and knowing the circumstances, will know that the law is different in Scotland and England. After all, let us recall that the Scottish Parliament introduced a ban on smoking in public places well ahead of other parts of the United Kingdom, yet there appeared to be no problem with visitors to Scotland not knowing that the ban existed in Scotland, albeit that at the same time it did not exist in England. These matters will not be dealt with clandestinely. You can bet your life that if the change is made it will be well broadcast. Indeed, as my noble friend Lord Younger indicated, a change was made in the Republic of Ireland that was well known. I am sure it was well known throughout the island of Ireland. Living in Scotland and working in London, I was certainly conscious that that particular change had been made.
On the question of penalties, there is of course no maximum limit to a disqualification. These matters are best taken into account by the court. I hear what the noble and learned Lord says about the minimum disqualification period, especially if it were to apply in the event of there ever being zero tolerance of alcohol. He makes a point that I certainly wish to reflect on because it is a different point. If there is a maximum limit, no special arrangements need to be made as it is properly a matter for the court to take into account when determining the circumstances of any given offence.
5.15 pm
I shall try not to disappoint my noble friend too much on the question of speed limits applying also to HGVs. As the noble and learned Lord, Lord Boyd, said, the Calman commission made no distinction in that regard. Indeed, I do not think that it was ever invited to do so. I should indicate to the noble Lord, Lord Maxton, that motorway speed limits are set by the Motorways Traffic (Speed Limit) Regulations 1974. They are set by the UK Government but may be subject to exemptions. If there are relevant exemptions, I will certainly write to the noble Lord.
As regards the speed limits, I know that I will hugely disappoint my noble friend and other noble Lords in saying that the explanation that was proffered concerned the development of signage, as he perhaps anticipated. I am aware that that will not satisfy my noble friend. In the light of what he and the noble and learned Lord, Lord Boyd, have said on this point, it is only proper for me to take that issue away and have
28 Feb 2012 : Column 1216
The Duke of Montrose: My Lords, I thank all those who have participated in the debate. As noble Lords are aware, we have explored many avenues, although possibly not all, that could be exhausted on this topic. The noble and learned Lord, Lord Boyd of Duncansby, mentioned the main themes that have run through the debate such as road safety and which side of the road we drive on. However, it seems to me that if the alcohol driving limit is reduced to zero, using certain brands of cough mixture might get one into trouble.
I was grateful to my noble and learned friend the Minister for addressing my proposed amendments to the Road Traffic Act 1988. I purposely avoided tabling amendments to do with the Highway Code. It seems to me much more important at least to get the matter clear for people sitting the driving test. I shall read my noble and learned friend's response, which was very detailed as this matter requires a detailed response. We have all been trying to avoid muddle. That theme seems to run through this group of amendments. My amendments do not seek to gainsay the recommendations of the Calman commission, but it seems to me that if any of these amendments are accepted, the two amendments standing in my name would need to be accepted also to avoid muddle.
Lord Forsyth of Drumlean: My Lords, I am most grateful to my noble and learned friend Lord Wallace, who did a formidable job of making bricks without straw. I am very disappointed that he did not tell us the Department for Transport's arguments for having different speed limits for cars and lorries. Despite all the towns and byways that he mentioned on which separate speed limits apply, I am not aware of any town or community in Scotland that can set a speed limit for lorries as well as cars, which is what is proposed in the Bill.
I am most grateful for the assurance that my noble and learned friend will look at this. I take it from what he said that he is also looking at my Amendment 49 on penalties. I shall certainly be happy not to press my amendments and I entirely agree with my noble friend the Duke of Montrose that his amendments are also worthy of further consideration.
The Duke of Montrose: My Lords, I beg leave to withdraw the amendment.
Amendments 47A and 47B not moved.
28 Feb 2012 : Column 1217
Amendments 48 to 50A not moved.
Clause 27 : Implementation of international obligations
| Next Section | Back to Table of Contents | Lords Hansard Home Page |