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Work of the House of Lords2013–14

D | Work of the House of Lords

Contents

Work of the House of Lords 1Making effective laws 2Looking at the small print 12Holding the government to account 14Influencing public policy 24Building international relationships 34Reaching out 36Facts and figures 38

The House of Lords is the second chamber of the UK Parliament and one of the busiest legislative chambers in the world. Its members work on behalf of the UK public, using their professional experience and specialist knowledge to ensure workable laws, often persuading the government to make policy changes on a diverse range of issues.

Work of the House of Lords | 1

The 2013-14 parliamentary session ran from 8 May 2013 to 14 May 2014.

During this period, the House of Lords spent 149 days working to check the details in draft laws (bills), question government action and debate policy.

Members examined 62 bills, considered 4,790 changes and made 1,686 of them. In total, 30 bills were made law. Extensive scrutiny work was carried out, with members asking the government 7,559 questions and holding 247 debates.

Lords investigative committees produced 31 reports. One-off committees were set up to look into the Olympic and Paralympic legacy, personal service companies, the Mental Capacity Act and the UK’s use of ‘soft power’.

Work of the House of Lords

2 | Work of the House of Lords

Making effective laws

Parliament’s main role is to examine bills and approve new laws. The Lords plays a crucial role in the process, debating the main principles, checking their content line by line and suggesting changes. Members also help to ensure that all new laws are well drafted, effective and workable.


Creating lawThe House of Lords shares responsibility for lawmaking with the House of Commons. Prior to becoming Acts of Parliament, bills are debated and checked by both Houses. Bills go through set stages in both Houses, where their purpose and detail can be examined, before they receive royal assent (formal agreement from the Queen) and become Acts of Parliament (law).

The House of Lords checks the detail of a bill, working to address potential problems and close any loopholes to make more effective laws. Its amendments may or may not be agreed by the House of Commons, but the House of Lords has a crucial role to play in asking the government and Commons to think again and, in some cases, putting forward alternative amendments in response.

2013-14 sessionDuring the session, 30 bills received royal assent, passing into law.

62 bills checked

4,790 changes considered

1,686 changes made

30 bills became law


In 2013-14, the House of Lords checked and revised some major pieces of legislation, using its powers to persuade the government and the Commons to make changes to legislation affecting a wide range of people and policy areas.

Transparency of Lobbying Act 2014The government put forward the bill to increase transparency and accountability in the political and legislative process. It introduced new rules on political campaigning by non-party groups such as charities.

Scrutinising, advising and revising

Debate on provisions for campaigning charitiesConcerns were raised in the Lords that the bill failed to tackle the practices of some corporate lobbyists while directly affecting the ability of people and organisations to engage with government. Some members argued that the potential impact of the bill on the campaigning work of charities, think tanks and trade unions would be to ‘gag’ them.

Members proposed to enhance the scrutiny of that part of the bill limiting activities of charities by referring it to an evidence-taking committee for more detailed consideration. Members argued that such a process would allow the government to carry out consultation which they felt had not occurred prior to the bill’s arrival in the House.

The government instead agreed to further examination of the new rules affecting charities and to ‘pause’ the progress of the bill in the House of Lords so that consultation could take place.

Members also voted to exclude staff costs from the campaigning costs that the bill sought to cap. This change was overturned in the House of Commons.


Children and Families Act 2014This bill set out to reform legislation in areas such as adoption, children in care, children with special educational needs, the family justice system and work place arrangements for people with parental responsibilities.

Smoking in cars carrying childrenAll areas of the bill were checked and debated. A high-profile change was put forward in the Lords concerning smoking in vehicles that carried children. The change would make it an offence if drivers failed to prevent smoking in their vehicles when a child was present. Members argued that smoking in the confined area of a car was especially damaging to children’s health because the toxic fumes are more concentrated than in an open space. The government raised concerns about enforcing the law but the Lords voted in favour of the change.

MPs voted to accept the change and the bill became law.

Smoking in cars carrying children is on the road to becoming illegal after the government was defeated on the issue in the House of Lords last night.The Times

‘’


Immigration Act 2014The bill set out to change some areas of immigration law including removals appeals, migrants’ access to services and tackling methods to circumvent immigration controls.

Guardians for migrant childrenPeers discussed child trafficking and voted in favour of a change to create ‘guardians’ for potential victims of child trafficking, so that migrant children in the UK, without a parent or carer, would have a legal guardian appointed who could look out for them, put their best interests first and make sure they accessed the support they were entitled to.

Concerns about citizenship-stripping powers The bill also contained a clause allowing the home secretary to revoke the British nationality of people believed to pose a national security risk, even if that made them stateless.

Some members questioned the effectiveness of the powers in improving national security and expressed concerns about the moral implications of leaving people without the basic rights associated with citizenship. They also argued that citizenship is a protected legal right in international law; and that depriving people of it should not be an alternative to pursuing criminal convictions, where appropriate.


Financial Services (Banking Reform) Act 2013 This bill set out to reform financial regulation, the banking industry and standards – partly in response to the 2007-09 global financial crisis.

Improving banking standards Measures proposed by the Commission on Banking Standards were added to the bill in the Lords, including regulations:• tomakebankerstakeresponsibilitywhenthings

go wrong• allowingbankerstobechargedwithreckless

misconduct if their institutions ‘go bust’• forcingbankstoseparatetheirhigh-streetand

investment banking operations.

A change relating to the professional standards of bankers was also put forward. It called for the bill to capture the need for minimum thresholds of professional competence and continuing professional development for those working in the financial service industry. Members voted in favour of the change.

The changes were agreed to in the House of Commons and the bill became law.

The government argued that the proposal was essential for protecting national security.

A change calling for the policy to be delayed until it had been scrutinised by a committee of both peers and MPs was voted on and agreed to in the Lords.

Prominent lawyers in the Lords – including a former Director of Public Prosecutions and a former Supreme Court judge – have joined forces to table an amendment that would force the government to submit its plans to extra scrutiny.The Independent

‘

’The change was overturned in the House of Commons. When the bill returned to the Lords, members approved the inclusion of the clause following a number of government concessions, including that:• thenewpowerbereviewedeverythreeyears

by an expert• theprovisiononlybeusedwhenthereis

reasonable grounds for believing a suspect is able to obtain the citizenship of another country.


More public bill sessional statistics, including a breakdown of amendments by stage, grand committee proceedings and details of all bills receiving royal assent, can be found at parliament.uk/lords.

Public legislation 2013–14

Government BillsCare 592 205 1 Co-operative and Community Benefit Societies 30 30 0 European Union (Approvals) 1 1 0 Inheritance and Trustees’ Powers 19 13 0 Intellectual Property 82 18 0 Local Audit and Accountability 155 50 0 Mesothelioma 88 17 0 Offender Rehabilitation 72 10 1 Total 1,039 344 2

Bills introduced in the House of Lords

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Private Members’ BillsAge of Criminal Responsibility 0 0 Alan Turing (Statutory Pardon) 0 0 Arbitration and Mediation Services (Equality) 0 0 Assisted Dying 0 0 BBC (Trustee Election and Licence Fee)Clean Neighbourhoods and Environment (Amendment) 0 0 Company Remuneration 0 0 Cohabitation RightsCultural and Community Distribution Deregulation 0 0Defamation (Parliamentary Proceedings) (Amendment) 0 0Divorce (Financial Provision) 0 0Equality Act 2010 (Amendment) 0 0Equality (Titles) 22 9European Union (Withdrawal) 0 0Extension of Franchise (House of Lords) 0 0Firearms (Amendment) 0 0Health and Social Care (Amendment) (Food Standards) 0 0House of Lords Reform 0 0Immigration Act 1971 (Amendment) 0 0Littering from Vehicles 0 0Marriage (Approved Organisations) 0 0Medical Innovation 0 0Medicinal Labelling 0 0Mesothelioma (Amendment) 0 0Mutuals’ Redeemable Shares 0 0National Health Service (Amended Duties and Powers) 0 0Online Safety 0 0Rights of the Sovereign and the Duchy of Cornwall 0 0Scottish Referendum (Consultation) 0 0Social Care Portability 0 0Unsolicited Telephone Communications 0 0Voting Age (Comprehensive Reduction) 0 0 Total 22 9

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Government Bills Anti-social Behaviour, Crime and Policing 580 198 2Children and Families 651 200 2Defence Reform 75 8 0Energy 354 117 1Finance 0 0 0Financial Services (Banking Reform) 482 348 1Gambling (Licensing and Advertising) 30 1 0High Speed Rail (Preparation) 0 0 0Immigration 262 36 2Marriage (Same Sex Couples) 215 56 0National Insurance Contributions 6 0 0Northern Ireland (Miscellaneous Provisions) 27 8 0Pensions 193 48 1Supply and Appropriation 0 0 0Supply and Appropriation (Anticipation and Adjustments) 0 0 0Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration 400 130 3Water 352 151 0 Total 3,627 1,301 12

Private Members’ Bills Citizenship (Armed Forces) 0 0Deep Sea Mining 0 0European Union (Referendum) 58 4House of Lords Reform (No. 2) 0 0International Development (Gender Equality) 0 0Leasehold Reform (Amendment) 0 0 Total 58 4

Bills brought from the House of Commons

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Delegated legislation – also known as secondary or subordinate legislation – fills in the details of Acts of Parliament, setting out the practical measures that enable a law to operate in the way the Act intended. These details are usually embodied in regulations, orders or rules, which are known generally as statutory instruments (SIs).

Quality controlSIs are not subject to the same level of parliamentary scrutiny as primary legislation (that is, Acts of Parliament) and so can be more easily updated, for example to increase the benefits by the rate of inflation each year or to allow car tax to be applied for online.

Although the power to make SIs is delegated to ministers, some are still subject to parliamentary scrutiny. This is particularly important where they make major policy changes. For example in 2013-14, SIs were laid that: • restrictedtheavailabilityoflegalaid• simplified planningpermissionforfracking• changedhowchildsupportispaid• setouttheproceduresforsamesexmarriage.

Looking at the small print

The House of Lords has two committees dedicated to this area of legislation, each focusing on a different stage in the legislative process:• DelegatedPowersandRegulatory

ReformCommittee• SecondaryLegislationScrutinyCommittee.


Before an Act is made: deciding the level of scrutinyTheDelegatedPowersandRegulatoryReformCommittee examines the text of all bills before they go forward for detailed consideration in the Lords to ensure that any power they give to ministers to make SIs is an appropriate delegation and that it is subject to the appropriate level of parliamentary scrutiny. This committee has earned a formidable reputation as a ‘watchdog’ and the government pays close attention to its recommendations.

After an Act is made: quality controlThe Secondary Legislation Scrutiny Committee considers the policy aspects of all SIs to assess whether they seem likely to achieve their stated policy objective. Through its weekly reports, the committee draws particularly interesting, potentially defective or poorly explained SIs to the attention of the House, so that members can ask a question or request a debate on the matter.

In 2013-14, it made influential reports on:• copyrightissues• minimumalcoholpricing• variouslegalaidmatters.

It also examined a number of orders to abolish or merge public bodies, in particular the abolition of theCommitteeonAgriculturalValuationand theModification of Functions of OFCOM Order (which was subsequently withdrawn).

There is also a joint committee with members from both Houses that looks at the legal drafting of SIs to see if the law is clear and fits within the scope of the Act under which they are made.

20 bills reported

42 reports to the House on SIs

998 SIs examined

59 SIs drawn to the attention of the House


Holding the government to account

Around 40 per cent of time in the chamber is spent holding the government to account for its decisions and actions. This is done through questions and debates to which ministers and government spokespeople must respond.


QuestionsA 30-minute question time takes place at the start of business in the chamber from Monday to Thursday. A maximum of four questions are posed by members. They can be on any subject – local, national or international – for which the government is responsible.

Once the government spokesperson has answered, there is then a chance for a short exchange of related, or ‘supplementary’, questions. The government spokesperson must answer each one. Questions may also be asked in writing and the government must respond within ten working days.

DebatesDebates allow members to put their experience to good use by drawing the government’s attention to particular concerns and issues. At the end of every debate, a government minister or spokesperson responds to the questions and issues that have been raised.

The diversity of the membership of the House of Lords is reflected in the range of subjects covered, and debates in the Lords can play an important role in shaping future policy initiatives and legislation. By way of example, two debates are described on pages 16-18. A full list of topics is on pages 20-23.

StatementsThe government makes statements in the chamber to announce important policy initiatives and report on national and international issues. Statements are usually made in both Houses and are followed in the Lords by the opportunity for members to ask questions and make observations. Members may also make written statements.

552 oral questions

7,007 written questions

65 oral statements

1,177 written statements


25th anniversary of the World Wide WebA digital entrepreneur and government digital inclusion champion, a film director, a sociologist and an e-commerce business developer all took part in a debate on the World Wide Web to mark its 25th anniversary.

Wide-reaching, fast changeMembers spoke of how the internet has transformed the way people interact, think and work with each other. In a short time – described as ‘mind-boggling speed’ – it has become a place for the world to trade, shop, educate, inform and entertain. One member said the internet is ‘the greatest transformative force in history bar none’, because of the speed of the transformation. Members taking part stressed the constantly growing and changing technological landscape, with users continually finding new ways of using it.

Demographic and geographic inclusivityThe web’s inventor, Tim Berners-Lee, was praised for the inclusive way he openly and freely shared his remarkable invention. The debate looked at the internet’s capacity to change lives: it has ‘shrunk the world’, for example allowing people in

Debates developing countries to trade in new ways and to access foreign markets.

UK digital skillsThe UK’s rich history of technological inventions was highlighted and members said the 25th anniversary should be used to encourage and inspire young British inventors of the future. Coding and computer science will be part of school curriculums from 2014 but concerns were raised about:• thelackofskillsandunderstandingofthedigital

world among senior staff at the top of UK public organisations and businesses

• thesignificantnumberofUKadultswhodonothave basic knowledge of online functions

• theskillsetofthecurrentUKworkforce(that it may not be sufficient to supply future technology sector jobs)

• thefallingnumberofwomenintheUK tech sector.

UK infrastructure Members welcomed a recent government commitment to funding rural broadband, but said that more work would be needed to continue to improve universal coverage and internet speeds across the UK so that its businesses could be competitive with the rest of the world.


Abuses and safety onlineFollowing allegations that UK and US government agencies were working to undermine encryption tools, members said that people should be cautious about trusting the web with personal data and raised particular concern about the vulnerability of young people online. A member who has made a film about young people’s use of the web said a situation had been allowed to develop ‘in which it is legal for a multibillion dollar industry to own, wholly and in perpetuity, the intimate and personal details of children.’

Governing the internetThe rapid speed of the development of the internet has created new challenges for government. Members urged government to prepare itself for the next 25 years of social challenges that it will bring.


preventing the further use of chemical weapons and warned it may have unintended consequences, such as expanding the civil war.

Other members argued that inaction would lead to chemical weapons being used with impunity.

Regional situationContributors spoke about how the conflict and resulting refugee crisis has affected Jordan and Lebanon; countries with already considerable and complex strains that are having to deal with high numbers of refugees. More broadly, members were concerned about the potential for the spread of instability in the region. The situation in Iran was discussed, including the progress made in negotiations around the Iranian nuclear programme. Lords also looked at the importance of the Middle East peace process to Israeli and Palestinian civilians, and the challenges faced by Egypt and Libya.

DiplomacyMembers argued that negotiation is the best path forward and called for an inclusive Syrian-led political process as the best way to bring an end to the conflict and minimise the threat to peace and security in the wider region.

SyriaThe House of Lords held three main debates on Syria in 2013-14. Contributions came from members with experience of international relations and diplomacy at the highest levels, and experts in the Middle East region.

Civilian suffering The effect of the Syrian conflict on its civilian population was highlighted. Members drew attention to reports of people being killed, forced from their homes or trapped under siege.

UN accessMembers emphasised the need for President Assad to comply with resolution 2139, unanimously approved by the UN Security Council. The resolution says both Syrian government and opposition forces must allow aid convoys to reach civilians across the country. The UN’s role was also highlighted when members backed the foreign secretary’s demand that the UN be given access to investigate alleged atrocities.

Military interventionThere were different views across the House about military intervention. Some members cautioned against it saying it would not be effective in


May 2013•Outdooractivities:contributionstoeconomy

and health•GrowthintheUKeconomy•AdoptionLegislationCommittee*

June 2013•Economy:sustainablejobs•Women:challengesindevelopingcountries•EconomicimplicationsfortheUKofScottish

Independence*

•Smallandmediumsizedenterprises*

•FutureofEUenlargement*

•Bullying:educationalsupportandmentalhealthprovision for children bullied at school

•CommissiononBritishBillofRights•G8summit:governmentprioritiesforNorthern

Ireland meeting•Cultureandthearts:importancetotheeconomy•Taxevasionandavoidance•Housing•EU’sglobalmigrationandmobility*

•EU’sExternalActionService*

•EUsugarregime*

July 2013•EUCommitteework2012–13*

•EU:energy*

•EnglishPremierLeaguefootball:economicandcultural contribution

Generaldebates2013–14

•Atheistsandhumanists:contributiontosociety•Economicprosperityanddevelopment•Civilsociety•DraftFinanceBill*

•Healthandsocialcare:futuremodels•Legalaidfunding•Employment:preparingyoungpeople•Immigrationcontrolsandsecurity•2013spendingreview•EU:justiceandhomeaffairs*

•SyriaandtheMiddleEast

August 2013 •UseofchemicalweaponsinSyria

October 2013•Affordablehousingandtheunder-occupancy

charge•Costofliving•Mediaconvergence*

•Tacklingcorporatetaxavoidance*

•EuropeanPublicProsecutor’sOffice*

•EconomicimpactofUK’sEUmembership•HighSpeed2•Drugspolicy•FutureoftheCommonwealth•Ageingpopulation:publicserviceanddemographic

change*

•Mentalandphysicalhealth:parityofesteem•Co-operativehousingsector


November 2013•Broadcastmedia:contributiontotheeconomy•Police:publictrust,effectivepolicingandpolice

conduct•Useofarmedforce*

•Humanrights:internationalviolations•ChurchofEngland:holisticmissions•EffectivenessofEUresearchandinnovation

proposals*

•EU:newpsychoactivesubstancesanddrugtrafficking*

•FinancialServices(BankingReform)Bill•UKandChina•Protectingarmedforcesfromvulnerabilitytolegal

challenge

December 2013•Patientchoiceatendoflife•ReducingthesizeoftheHouseofLords•Olympichealthlegacy*

•FightingagainstfraudontheEU’sfinances*

•High-qualityeducationandeconomicgrowth•IndependentPoliceCommissionreport•BankingStandards

January 2014•ImplicationsfortheUKoftheScottish

independence referendum•Internationaltrade•Publicservices:economicandclimaticchallenges•EUpoliceandcriminaljusticemeasures*

•Futureofthecivilservice•WorldWideWeb:25thanniversary

•Increasingaccesstoaffordablechildcare•Localgovernmentfinancesettlement

February 2014•SyriaandtheMiddleEast

March 2014•BudgetstatementandUKeconomy•EmploymentintheUK•JointCommitteeonParliamentaryPrivilege*

•OlympicandParalympicLegacy*

•Ukraine•Roleofeducationinimprovingsocialmobility•Regenerativemedicine*

•Contributionofwomentoeconomiclife

April 2014•UKhighereducation

May 2014•Scientificinfrastructure*

•Coalitiongovernment*

•EU:justiceandhomeaffairs•Businesses:smallandmedium-sizedenterprises

* Debate on committee report


•Immigration:UKcitizenshipandnationality

•EU:CourtofJustice*

November 2013•Increasingthetake-upof

apprenticeships•FutureoftheBritishIndianOcean

Territory•Internationaldevelopment:early

childhood development•Women:roleofsportandphysical

activity in providing positive body image

•NHS:futureofaccidentandemergency units

•Consumers:financialpenaltiesforpaper billing

•Animalwelfare:catsanddogs•Islam•CentralAfricanRepublicandtheGreatLakesregion

•Encouraginginnercitychildrentotake up sport

•Schools:non-attendingpupils•SituationofwomenintheMiddle

East•OrganisationforSecurityandCo-

operation in Europe: Helsinki +40 process

•Supervisionofthesecurityservices•Commencementorders•SudanandRepublicofSouthSudan•MillenniumDevelopmentGoals•Plansfor800thanniversaryof

Magna Carta•Impactoffortifyingflourwithfolic

May 2013•Housingdifficultiesforfamilies•Kenya:presidentialelection•Pakistan:religiousviolence•Levesonreport:mediaplurality•HighSpeed2

June 2013•Morocco•PublicHealthResponsibilityDeal•NHS:AssociationofMedicalResearchCharitiesreport

•Localauthorities:regulatoryservices•DefamationAct2013:Northern

Ireland•Education:developingacitizenship

programme•Drones:codeofconduct•Socialmobility•Financialservices•FirstWorldWar:commemorations•Paydayloans•Complexlaws•Businessandsociety•Internationaldevelopmentbudget•Burma:endingethnictensionsand

securing democracy•GlobalfundonHIVandAIDS,

tuberculosis and malaria

July 2013•Arts:contributiontoeducation,

health and emotional well-being•Antibiotic-resistantbacterial

infections•Education:part-timestudy•HumanrightsinWestPapua

Short debates 2013–14

•EuropeanCourtofHumanRights:Khodorkovsky case

•Peoplewithlearningdisabilities:health inequalities

•DemocraticRepublicoftheCongo•Tourism:impactofmusic•Governmentarchivesandofficial

histories•Immigrationrules:impactonfamilies•LondonFinanceCommission:Raising

the Capital report

October 2013•Impactofredundanciesonthe

armed forces•EconomicDiversificationinthe

Overseas Territories•Syria•Publiclibrarysystem•ArabSpring•MembershipoftheHouseofLords•Iran•Increasinghousebuilding•NaturalCapitalCommittee•Promotingtheneedsofdeafpeople

in the provision of public services•ThamesTidewayTunnel•MillenniumDevelopmentGoals•Probationservice•Preventingchildsexabuse•CooperationCounciloftheArabStatesoftheGulf

•IsraelandPalestine•Transport:busservices•Housing:impactonchild

development•Railways:EastAnglianetwork


acid on pregnancies affected by neural tube defects

•Armedforcespersonnelreturningtocivilian life

December 2013•FirstWorldWar:roleofpersonnel

from the Indian sub-continent•Governmentpolicyone-cigarettes•EU:financialtransactiontax*

•BarnettFormula•GlobalFundtoFightAIDS,

Tuberculosis and Malaria•Legislation:gender-neutrallanguage•Violenceagainstwomen•Badgers:bovinetuberculosis•Ivorytrade•Assisteddyinglegislation•Scottishindependence•Copyright•Prisoners:accommodationon

leaving prison•Dartfordrivercrossings•Femalegenitalmutilation•RightsofwomeninAfghanistan•Wales:impactofcostoflivingand

welfare system changes

January 2014•Smallandmedium-sizedbusinesses:

access to finance•Supplyofaffordablehousing•Dementia:publicinformationand

support•Aviationregulation•Wales:Silkreport•CityofBradfordMetropolitanDistrict•Animalwelfare:methodsofslaughter

in the UK•Internationalcompetitivenessof

British businesses

•ForeignlanguageteachingatKeyStage 2

•China’sAirDefenceIdentificationZone

•Mesothelioma:researchfunding•MiddleEastpeacesettlement•Syria:evacuationandresettlement

for people fleeing •EUreform•CommonwealthGames2014

February 2014•CharityCommission•InternationalHolocaustRemembranceAlliance

•Counter-terrorismpractices•Health:concussioninsport•Reducingsuicidelevelsamongyoung

people•Roleoffinancialservicesindustryin

funding care provision•Socialwelfarelaw•Encouragingyoungerchildrento

participate in competitive sport•UKNationalActionPlanforWomen,

Peace and Security•UseofwatercannonsonUK

mainland•Artsandculturalorganisationsin

current financial landscape•Expansionandmanagementofthe

public forest estate•Chilcotinquiry•CompetitionintheNHS•NHS:implicationsofseven-day

working•Health:neglectedtropicaldiseases•Constitution:Pre-emptionof

Parliament*

•Socialmobility•Standardsinpubliclife

March 2014•Disabledpeople:IndependentLiving

Fund•Improvingthehealthofdeafpeople•Prisoners:indeterminatesentences•Citytocitydiplomacy•Apprenticeships•UKvisasandimmigration•Whistleblowingatwork•SouthSudan•Health:womenandlow-income

groups•UN:technicalagencies•Economy:creativesector•Pensions:low-carboninvestments•Energy:fracking•BletchleyPark•Gibraltar•Assisteddying•Sikhcommunity

April 2014•Dogs:electriccollars•Wales:economy•Armedforces•Housing:leaseholdreform•Abortion•EU:MoneyLaunderingDirective•Ukraine•InternationalRomaDay•CinemacultureintheUK•Development:post-2015agenda•Health:innovativemedicine

May 2014•Abuseofelderlypeople•Domesticviolence•LawCommission•InvestmentfromChinaintotheUK•BBC’sEUcoverage

* Debate on committee report


Influencing public policy

The House of Lords examines public policy through its select committees. Members use their professional experience to carry out investigative, subject-focused work. Committees are a valuable way to provoke discussion inside and outside Parliament and make recommendations to government.


Committee workCommittees are groups of members, appointed by the House to conduct certain tasks on its behalf, that meet outside the chamber. They consider specific policy areas or issues – ranging from short, narrowly focused investigations to broad, long-term inquiries – and usually produce reports on their findings. Once published, committee reports are normally debated in the House and the government must respond.

Experience of the membershipHouse of Lords committees benefit from the professional experience and knowledge of their members. It is that knowledge which ensures their work carries authority within Parliament and beyond.

Five permanent committeesThere are five main select committees. They develop expertise in particular subject areas – outlined in pages 26 to 31 – and may revisit subjects covered in previous inquiries to assess the impact of their recommendations.

During the 2013–14 session, these committees published 39 reports on subjects ranging from economic affairs to the powers of the EU and advances in science and technology.

ReportsReportsdrewthegovernment’sattentiontoLordscommittees’ views on:• theconstitutionalimplications

of Scottish independence• wasteandthebioeconomy• theeconomicimpactofshalegas.

One-off and joint committeesThe House of Lords also regularly appoints short-term committees to examine particular subjects. In 2013-14, it set up one-off committees on theOlympic and Paralympic legacy, personal servicecompanies, the Mental Capacity Act and the UK’suse of ‘soft power’. In addition, some committees are appointed jointly with the House of Commons, for example, to conduct pre-legislative scrutiny.


Communications Committee

The committee investigates public policy areasrelated to the media and the creative industries.Its membership includes media professionals andpeople from other backgrounds with relevantexperience in industry, politics and law.

Broadcast general election debatesDuring its investigation into general election debates on television, the committee heard evidence from TV executives and journalists from the UK’s main broadcasters, and academics and media specialists. Its May 2014 report argued that political debates on TV helped to energise and engage the public in the electoral process, and efforts should be made to ensure they reach TV screens again during the 2015 general election campaign.

The committee’s report highlighted: • concern that political jockeying over TV election

debates risks a return to the historical pattern of failure to ensure the debates reach our screens

• TV election debates encourage political discussion in the 18-24 year old demographic group (typically the most likely to experience voter apathy); broadcasters and political parties need to capitalise on that

• possible steps the broadcasters could take to increase public interest, for example developing the online presence of the debates and considering the balance in the gender and ethnic diversity of debate moderators

• the importance of rules and safeguards to give due weight to all parties during general election campaigns – across all broadcast content.

…although we emphatically do not want to interfere with the editorial independence of the broadcasters, we believe our report is timely in order to provide food for thought in considering how to build on the success that last times’ debates undoubtedly achieved.Lord Inglewood, former chairman

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Constitution Committee

The committee examines the constitutionalimplications of all public bills brought before theHouse of Lords, and reviews the operation of the constitution. Its members include leading lawyers, former secretaries of state and a former AttorneyGeneral.

Coalition governmentThe committee’s 2014 report into the constitutional implications of coalition government identified areas for improving the workings of coalition governments.

Managing disagreement The report highlighted cases of public disagreement within the coalition that undermine the constitutional principle of collective responsibility, which means that ministers not prepared to defend government policy should resign. It recommended that the prime minister and deputy prime minister set out clear rules for when and how ministers from different parties can express different views, in order to provide clarity on disagreements for the rest of this Parliament and a template for future coalitions.

The report set out issues to resolve, including:• improvingunderstandingoftheconstitutional

principle that, during negotiations to form a new coalition government, the incumbent prime minister may remain in office until a successor is clear

• makingclearthatacoalitionagreementdoesnothave the same constitutional status as a majority-winning party’s general election manifesto. That means it is not covered by the convention which ensures government bills implementing manifesto commitments get through the Lords

• avoidingfast-trackinglegislation–a‘washup’–before Parliament is dissolved for the general election: this is a fixed-term Parliament so the government should plan ahead

• newrulestoallowjuniorministersindepartmentswhere the secretary of state is from a different party to commission civil servants to research policy in areas outside their direct responsibility

• maintainingconstitutionalconventionsaboutthebusiness of government during the general election campaign, even though the parties of the coalition government will be campaigning against each other

• guidanceonelectioncampaignsbeingissuedtocivil servants, to make clear how they should support ministers from different parties.


The committee investigates current economicissues and reviews the performance and behaviourof the economy. Its members include businessleaders, economists and a former chancellor ofthe exchequer.

Shale gas – an opportunity to developDuring its investigation into the economic impact on UK energy policy of shale gas and oil, the committee met with economists, scientists, geologists, environmental groups, industry and government officials. Its report argues that the successful development of shale gas in the UK would have benefits for the economy and energy security.

Exploratory drilling is urgently neededThe report urged the government to push ahead with the exploration and appraisal of the UK’s shale gas and oil resource. An unnecessarily complex regulatory regime, with responsibilities divided between different agencies, has held back exploratory drilling since a suspension on hydraulic fracturing (‘fracking’) ended in 2012. It called for a simple, transparent regulatory regime that will allow companies to discover how much of the UK’s shale resource can be developed.

Economic Affairs Committee

Benefits for the UK • Enhancementofenergysecuritythrough

decreased reliance on imported gas.• Anaffordablebridgefueltowardsrenewables-

based electricity generation; the carbon footprint of shale gas extraction and use is lower than coal and imported gas.

• Enabledecommissioningofhigh-emissioncoalfired generating capacity.

• Reducedcostsforenergyintensivebusinessesand the petrochemicals sector that use gas as a feedstock.

Public concerns, independent inspectors and better promotion The committee argued that public concerns should be taken seriously but, with the right regulations in place, risks to the environment and public health from shale gas development were low. It recommended that regulations are strengthened to ensure that well examiners are truly independent of the well operators. The report also calls for the government to do a better job promoting and explaining the benefits of developing a thriving UK shale gas industry.


Although the economic opportunity offered by shale gas and oil cannot avert any near-term shortfall in the UK’s electricity generating capacity, in the medium term UK shale gas could help ensure that competitively priced electricity supplies are maintained at an adequate level for many years to come.Lord MacGregor of Pulham Market, former chairman

‘

’


The committee considers key EU policies, andexamines draft EU laws before they are agreed.It also keeps a check on government action at EUlevel. The committee appoints six subject specialist sub-committees whose members have, and develop, great expertise in their policy areas.

Role of national parliaments in the EU The committee’s May 2014 report on the role of national parliaments in the EU looked at ways in which national parliaments can better engage with and influence the EU, thereby providing greater democratic legitimacy for the EU. Among the recommendations are:

More cooperation between national parliamentsNational parliaments play a vital role in making EU institutions accessible and accountable to the public. They need to get better at working together to engage with the European Commission early in the legislative process.

European Union Committee

Strengthen the tools to scrap or change EU proposalsThe ‘yellow card’ arrangement lets national parliaments ask the Commission to think again if a third of member state parliaments disagree with one of its proposals on the basis that effective action could be taken at national or local level. The committee argue for the existing process to be strengthened in the following ways:• theCommissionshouldeitherdropor

substantially change a proposal when enough national parliaments feel strongly enough on an issue to play a ‘yellow card’

• nationalparliamentsshouldalsobeabletooppose a measure that is disproportionate, for instance too detailed or prescriptive

• thetimeallowedfornationalparliamentstoregister opposition should be extended from 8 to 12 or 16 weeks.

Let national parliaments suggest changes to EU lawThe report also proposes a new ‘green card’ arrangement to allow a group of national parliaments to work together to propose new EU laws, or the amendment or repeal of existing laws, rather than relying on the Commission to make proposals.


The committee investigates:• publicpolicyareaswhichare,oroughttobe,

informed by scientific research• technologicalchallengesandopportunities• publicpolicytowardsscienceitself.

Waste – developing a bioeconomyThe committee’s investigation looked specifically at waste which contains carbon. Its March 2014 report urged the government to change the way we view waste, to see it as an opportunity rather than a problem, and develop a ‘brass from muck’ bioeconomy that could see huge economic benefits as well as a considerable number of green jobs.

Wealth-from-waste productsEven with waste reduction policies in place, there will always be some waste, such as orange peel, coffee grounds or waste gas from factories and power stations. The committee argues that some waste can be converted into valuable products, for example fuels, flavours and fragrances, plastics, paint or pharmaceuticals, using cutting edge technologies. The report also highlights environmental benefits, such as diverting waste from landfill and capturing greenhouse gases, to be had from harnessing the waste-to-wealth technology.

Science and Technology Committee

The report sets out steps for government to take, including:• the creation of a ministerial ‘waste champion’ to

take on the job of developing a long term plan for a high-value bioeconomy from waste

• reducing waste export which would reduce carbon dioxide emissions from UK transport, and retain a potential resource in the UK (it’s estimated 150,000 tonnes of bioethanol could be produced with the waste exported in 2012) which has the potential to create green jobs

• looking to other countries, such as Brazil, the US and China, for examples of developing bioeconomies

• the creation of a standardized system of waste collection across local authorities to maximise the potential of waste as a resource.

Government’s responseIn its June 2014 response to the report, the government committed to developing a long term plan for delivering and supporting a growing bioeconomy, creating a role in the Department for Business, Innovation and Skills of ministerial champion for the bioeconomy, and setting up a cross government group with industry and stakeholders to develop a bioeconomy.


Building international relationships

The House of Lords has an important role to play in fostering and maintaining relationships with other countries, their parliaments and political leaders.


Members of the Lords act as ambassadors for the House, for Parliament and for the UK. Through their participation in parliamentary visits and cooperation with different multilateral parliamentary organisations, members extend understanding about the House. By engaging with their international counterparts, members are able to share, apply and extend their experience and knowledge.

2013-14 highlights• TheHouseofLordshostedthe15thMeetingof

the Association of European Senates. The Lord Speaker presided over the meeting, attended by 14 European upper house delegations.

• TheLordSpeakertookpartinmeetingsofSpeakersoftheG20countriesinMexicoCity and the Conference of Speakers of EU Parliaments in Nicosia.

• TheLordSpeakervisitedSerbiaandMacedoniaand, with a delegation of women peers and MPs, Pakistan for talks with other speakers.

• TheLordSpeakermetspeakersandpresidentsof parliaments from Bermuda, Kenya, Hong Kong, Pakistan,Russia,HaitiandCôted’Ivoire,andtheLeader of the Burmese Opposition Aung San Suu Kyi (during her second visit to Westminster), as well as the President of Croatia, Mr Ivo Josipovic.

• TheHouseofLordswasvisitedbyforeigndignitaries, speakers, members and officials from overseas legislatures, including members of parliament from Morocco, Nigeria, Australia, Russia,Pakistan,CanadaandIndonesia.

• SevenmembersofHouseofLordsstafftookpart in the EU Twinning Project in support of capacity building in the Parliament of Kosovo.

The Lord Speaker at the Meeting of the Association of

European Senates in the House of Lords in 2013


Reachingout

The House of Lords works on behalf of the people of the UK and it’s vital there is a strong relationship with the public. Members explain the work of the House through a range of formal and informal outreach activities.


Participants in the 2013 chamber event

Peers in SchoolsThe Lord Speaker’s Peers in Schools programme, where schools can apply to be visited by a member of the House to hear direct explanations of their work and the role of the Lords, continues to grow.

Members including academics, former teachers, scientists, lawyers, former cabinet ministers and civil servants have visited more than 1,350 schools since the programme began in 2007, reaching over 65,000 students and around 1,500 citizenship teachers across the UK.

To arrange a Peers in Schools visit, contact the Lord Speaker’s office: 020 7219 6444 [email protected]

Lords chamber event 2013Every year the House of Lords chamber is opened up to the public and used for a debating event.

Defence and remembranceIn November 2013, cadets and veterans from across the UK came together to debate the legacy of World War 1. The debate question was: One hundred years after World War One, what is its legacy for the UK and how does it shape the nation today?

The debate served to highlight how different generations are affected by war, and explored attitudes towards remembrance.


Facts and figures

Take a closer look at the membership and work of the House of Lords in numbers.


By type

Figures as at 14 May 2014 (end of the 2013-14 session). Note: Figures exclude 44 members on leave of absence, eight disqualified as senior members of the judiciary, one disqualified as an MEP, and two suspended from the service of the House.

* 15 members from other political parties and 20 non-affiliated members

Labour

Excepted hereditary peers

Liberal Democrat

Bishops

Crossbench

Bishops

Other*

Conservative

Life peers

Party strengths

Members

Questioning government 5%Statements 3%Other 4%*

Legislation 58%

Debating policy issues 30%

Source: House of Lords sessional statistics 2013–14 * Includes member introductions, daily prayers, adjournments and other formal business

How time was spent

Average daily attendance

Working patterns

220

665

218

88

99

25

181

25

35

4972013–14

4752011–12

4842012–13

3882010–11

2012–13

2010–12

2009–10

2008–09

2013–14

Average length of chamber sittings (hours)

6:47

6:36

7:11

6:32

6:46

† Long session due to Fixed-term Parliaments Act 2011* Short session due to General Election

Sitting days

The unit that defines Parliament’s work is a session. Prior to the 2011 Fixed-term Parliaments Act, it varied in length but, whether calculated by session, calendar or financial year, the working year averages around 150 sitting days for both Houses.


Total costs in 2013-14 amounted to £93.06 million. This includes works expenditure (which covers the House of Lords’ share of all accommodation, maintenance and building costs including the Grade I listed Palace of Westminster). A Staff costs 26%B Members’ expenses and financial support 23%C Security 11%D Estates and works 18%E Other expenditure 9%F Non-cash costs (building depreciation etc.) 13% Total costs (millions) £93.06Cost per taxpayer £3.12†

† Based on an estimated 29.8 million income tax payers in 2013-14(source: HM Revenue & Customs)

Expenditure in the 2013/14 financial year

A B

CDE

F

Costs2012–13

2012

2012/13

2010–12†

2011

2011/12

2009–10*

2010

2010/11

2008–09

2009

2009/10

2008

2008/09

2013–14

2013

2013/14

By session

By calendar year

By financial year

149

139

142

137

138

138

293

156

155

68

136

135

134

141

142

148

147


The 2013-14 parliamentary session saw the continued development of multimedia and online resources to complement the Lords website at parliament.uk/lords

@ukhouseoflordsLaunched in September 2011, the House of Lords Twitter feed keeps the public up to date with news from the chamber and committees ensuring the work of the House reaches an active online audience.

Lords online

Other social media channelsLords channels on Facebook, Flickr and YouTube complete our online social media presence. Video and news content to promote the core work of the House, including committee work and outreach events, is made available for an online audience to share and engage with.

Follow @ukhouseoflords on Twitter

Like House of Lords on Facebook

Watch House of Lords videos on YouTube

View House of Lords photos on Flickr

Lords Digital ChamberThe Lords Digital Chamber presents the social media activity of members of the House of Lords, political parties and groups in the Lords and related feeds on a single website. It features content from Twitter, YouTube, Facebook and blogs.

Users can interact with posts directly from the website, creating new ways to communicate with members of the Lords and see their conversations in real time.

www.lordsdigitalchamber.co.uk

Find out moreContact us or go online for information about business, membership and outreach activities.

Contact us if you require this publication in an alternative format.

House of Lords Information Office

020 7219 3107 Textphone 18001 020 7219 3107

[email protected]

House of Lords, London SW1A 0PW

www.parliament.uk/lords

@ukhouseoflords

facebook.com/ukhouseoflords

flickr.com/ukhouseoflords

youtube.com/ukhouseoflords

For video and audio coverage go to: parliamentlive.tv

© Parliamentary copyright House of Lords 2014

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