Electoral Registration and Administration Act 2013 (Transitional Provisions) Order 2013
(10 years, 5 months ago)
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Lord Wallace of Saltaire
That the Grand Committee do report to the House that it has considered the Electoral Registration and Administration Act 2013 (Transitional Provisions) Order 2013.
Relevant document: 9th Report from the Joint Committee on Statutory Instruments
Lord Wallace of Saltaire (LD)
My Lords, the statutory instruments before us today provide the detail of the transition to and operation of individual electoral registration, which replaces the current household registration system. The description of electoral registers and amendment regulations also make changes relating to the edited versions of the electoral register and to elements of the conduct of elections.
I welcome the noble Lord, Lord Kennedy of Southwark, to this long-running saga. We considered first what became the Electoral Registration and Administration Act, and then the numerous statutory instruments that followed. The Bill team assures me that there are no more than 29 to come. The good news that we have today is that the data-matching exercise has turned up around 78% of voters being matched through the system. The query attached to that is that the data matching is much higher in areas that have a static population than in areas that have either a mobile population or a large number of second homes. That is why Argyll and Bute comes 20th in the list of lowest matching areas but urban areas and areas with a high number of students are also among those where the percentage of data matching comes out much lower than in other areas.
To ensure that as many existing electors as possible remain on the register during the transition, the Government announced in their official response to pre-legislative scrutiny on IER that part of the transition would involve a data-matching stage where all electoral registers in Britain would be matched against trusted public data sets. Where a positive match is made between an entry on the register and information in the data set, that person may be confirmed. The dry run, as I have already said, found that about 78% on average of those submitted to the Department for Work and Pensions could be confirmed by data matching. The results were better than we originally anticipated.
Furthermore, using a combination of national and local data could lead to an even greater overall average match rate of as much as 85%. This high rate means that fewer electors will need to make IER applications during the transition. EROs will then be able to focus their resources on unconfirmed electors and those eligible citizens who were not on the register already. As we have discussed before, we already have an existing problem in that the number of voters who are not on the existing register has steadily grown over the past 10 years.
Cabinet Office officials have recently written to each local authority, giving them their indicative funding for implementing IER next year. Each allocation is based in part on the results of the confirmation dry run to ensure that sufficient funding is provided for the work required of each ERO to produce as complete and accurate an electoral register as possible as we move to the new system. The Government expect the allocation to cover all the costs in the majority of authorities but will consider funding additional costs in individual cases if they are precisely and strongly supported by evidence and have not already been recognised.
Each of the instruments before us today relates wholly or partly to IER. The transitional provisions order sets out the activities unique to the transition—due to begin in June 2014 in England and Wales and after the referendum of September 2014 in Scotland. Many of the regulations in the description of electoral registers and amendment regulations set out the operation of IER from that date, through transition and into the period of business as usual. Under these regulations, each ERO will still be required each year to carry out a full annual canvass of households, sending out a canvass form to every residential property.
Unlike the process under the household registration system, completing this form will not get a new elector on to the register. A household inquiry form will be used to find out who is resident. If people have not moved, they will be retained without further action being required beyond returning the form or informing the ERO that there has been no change, just as under the current system. However, if the residents recorded on the returned form have changed, any new electors will need to apply individually to register.
As is currently the case, there will be a duty on EROs to follow up where they get no response to these canvass forms: the household inquiry forms. If no information is forthcoming, a further form will be sent. If necessary, a third form will be sent and a canvasser must visit the property. The occupier or the person responsible for the property will have a duty to respond. The existing criminal offence for not responding will continue to apply. Where an ERO finds out about a person who appears to be eligible, whether through the household inquiry form or through other information, they must invite that person to register. As with the household inquiry form, the ERO must also follow up any non-response to an individual invitation to register and may require the person to make an application. In addition to the criminal offence of failing to respond to a household inquiry form, the ERO has the option to impose a civil penalty on an individual who fails to apply if required to do so.
The application to register is a key part of IER. It is central to the individual nature of the new system as it means that each elector who is added to the register will have made their own application to register. It is also vital that it is convenient for applicants both in the information required and in its design. The Electoral Commission is currently working on the forms for IER, which include the new household inquiry form, the letter inviting a person to register and the IER application. Officials in the Cabinet Office are working closely with the EC on the development of these forms, which are being user-tested to ensure that they are convenient for electors and minimise inadvertent errors in applications.
For the first time, online registration will be enabled, thus modernising the registration process and making it more accessible, especially for those registering from outside the UK, such as service personnel and other overseas electors. Paper forms will be retained for those who prefer that method of registration. As part of the commitment to tackle fraud, a central feature of the new application forms and of the online application portal also enabled by these regulations is that applicants must provide personal identifiers—namely, their date of birth and national insurance number. These will be used to verify their identity through data matching against records held by the Department for Work and Pensions. Electoral Commission research shows that 95% of people would be able to provide their NINo if required. If they cannot, applicants will be advised where they can locate it.
However, it may be that someone cannot provide their date of birth or NINo, that they are in the minority of applicants whose details do not match DWP records, or that the ERO considers for some other reason that additional evidence is necessary to verify the applicant’s identity. For these situations, the regulations set out a robust but accessible exceptions process using prescribed documentary evidence or attestation by another elector in the same area who is of good standing in the community.
This has been a very brief description of how the new system will work. Where households have not moved or changed in composition, they will need simply to complete a household form or inform the ERO, just as they do currently. For new applicants, this new, separate application will be needed. Making the transition from the current system to IER is a significant change, and we have included steps in the transitional provisions order to ensure that it is as convenient as possible for voters.
I have already described how we will use data matching to confirm a large majority of existing electors on the register at the start of transition. Following this data matching, every elector will receive a letter. Most electors will be informed that no further action is required but a minority will be invited to register. They will then have until December 2015—more than a year, in most cases—to apply under IER.
In houses where electors registered during the postponed 2013 canvass, the letters to individuals will, for this canvass only, replace the requirement to send a household inquiry form. Where electors have not been heard from since 2012 and were carried forward during the postponed canvass, or there is no one registered at a property, the ERO will send a household form. It also has the flexibility to send these forms where it thinks that this is the best way to find out about new electors—for example, in areas with high population turnover.
Electors who returned forms in the 2013 postponed household canvass will remain on the register throughout the transition. People who have not yet registered through an IER application or been confirmed by data matching will be able to cast a vote in the 2015 general election on the basis of their pre-IER registration. However, as the fraud risk is most acute around postal voting, only those who are individually registered will be able to cast an absent vote once the revised register is published in December 2014 in England and Wales, and on 28 February 2015 in Scotland. Voters who are absent, with postal or proxy votes, will be informed of the need to make a new application if they have not been confirmed or have not made a successful IER application.
The Representation of the People (Provision of Information Regarding Proxies) Regulations 2013, which are UK-wide, allow EROs to check that someone resident in another area is or will be a registered elector and therefore eligible to act as a proxy when appointed to do so by an elector in the ERO’s area. In other words, someone who casts a proxy vote for someone else has herself or himself to be on the UK electoral register. In the 2015 canvass period, EROs will send a household enquiry form to every residential property as usual. They are also required to send out another invitation to those remaining electors who were not confirmed by data matching in 2014 and who have not yet made a successful IER application.
As the then Minister for Political and Constitutional Reform told the House of Commons, and as set out in our implementation plan, the Government’s aim is to conclude the transition to IER after the 2015 canvass period. We are confident that those non-IER entries remaining on the register at that point will be out of date or inaccurate. The Minister of the day will have to lay, and Parliament approve, an order in the summer of 2015 to enable the end of the transition in that year; otherwise it will continue until the end of the 2016 canvass. The decision will be for the Minister and the Parliament of the day after the 2015 general election, but I am confident that they will be content with the progress of the transition and will bring it to an end in 2015, which will mean that the register published in December that year will be made up of individually registered electors only.
The Representation of the People (England and Wales) (Description of Electoral Registers and Amendment) Regulations 2013 introduce a number of measures designed to make sure that electors can make a fully informed choice about whether their details appear in the edited register. Among other changes, electors’ edited register preferences will be carried forward indefinitely, so electors will no longer be asked to opt out each year. The changes provide for improved descriptions of the two registers that will ensure that the information for electors is as clear and user-friendly as possible, and a new, more transparent name: the open register.
The same regulations make a number of improvements to the running of elections that are designed to help voters participate effectively in elections and reinforce further the integrity of the voting process. The proposed changes implement electoral administration and conduct provisions in the Electoral Registration and Administration Act 2013. The changes will enable postal votes to be despatched further in advance of polling day, which will be of particular help to those in remote locations, such as persons overseas, including service voters, as more time will be given for them to receive, complete and return their postal vote to be counted. We are also making improvements to the design and layout of voting forms that are intended to make the voting process more accessible and easier to understand.
Provisions on these matters were included in amendments previously made to the European Parliamentary Elections (Amendment) Regulations 2013 in order to apply the provisions to the European Parliamentary elections in 2014. These amendments have recently been debated by Parliament, which has thus had an opportunity to consider the changes. I do not therefore need or intend to go into detail on them today, although I will, of course, be happy to answer any questions on them. I beg to move.
Lord Lipsey (Lab)
My Lords, the whole Committee will be grateful to the Minister for that explanation of what these orders contain. He gave it, understandably, in a pretty low-key way. I think it is worth the Committee reminding itself just how much is at stake on the path we are going down. We must do so because this is a milestone today, along a path that has had many milestones; but it is right that Parliament should check that we are still on the right road before approving the orders.
Perhaps I could illustrate that importance by saying this: let us suppose that the exercise comes up with 80% of eligible voters registering to vote, which is below what we would hope for, but not implausible. Let us suppose at the same time that we get another dullish election where the turnout is only 60%. It would follow from those figures that fewer than half of those eligible to vote had participated in the election. When you start getting to a figure like that, there is no question but that this reflects on the legitimacy of the return.
It is terribly important that we get the maximum turnout at the election, but, in the mean time, that we have a register that is as near complete as possible. Of course, we understand and support the move to individual electoral registration: that is also terribly important to our democracy in order to prevent forged votes being cast. We must make sure, however, that this is being done thoroughly, as well as it possibly can, and that it is not impeded by an insufficiency of resources or rushed through for whatever reason.
It might seem strange to mention my next point straight after warning against “rushing through”, but just last week, one expected deadline for electoral registration was missed. The Commons Library note, dated only a couple of months ago, said that the Government expected to make a firm decision by the end of November on whether to proceed with individual registration for the 2015 election. When Greg Clark was answering a Question on 26 November in another place, he did not say that the Government had decided to proceed; he said simply that they were on track for individual electoral registration to come in in 2014. I do not think there has been a critical slippage yet; but the more the Minister can say to persuade the Committee that they will be giving the go-ahead and that there is still time to have registration fully in place by the summer of 2014—even if it falls short of an absolute pledge; I will come back to that in a minute—the more helpful it would be.
When we say it is “on track”, it is worth reviewing one or two issues that have come up on that track. One about which all Members of the House should be very pleased is the decision to retain the civic penalty. I have no doubt whatever that it was the threat of a civic penalty—even though it is not much used—that prevented a serious slump in registration, particularly among younger people, which would have been damaging. I give the Government absolute credit for that: they listened, they thought about it and they decided to retain the civic penalty. That is greatly to be welcomed.
Another matter that has been resolved, but where I personally regret the resolution—as indeed does the Electoral Commission—is the question of the open register. Here, there is a straight conflict. This should be a register for voting purposes only; that is to say, it should not be sent out to anybody who wants to use it for marketing or any other purposes. Frankly, the ability of a voter to contract out is not a sufficient protection, because most of them have better things to do than to think about whether they want to contract out of the electoral register.
We understand that the marketing industry has brought huge pressure on the Government to continue to make the register available for its purposes. We hear that some local authorities that were going to give priority to putting in a box that could be ticked to say, “I want to contract out”—the tick could then be removed—have been threatened with judicial review by the marketing industry. I must say that in my guts I find it very distasteful when our electoral process is taking second place to the lowest commercial considerations, but I am sure that the marketers have their case; it just has not persuaded me. I ask the Minister to agree, though, that after the first use of IER the Government will review this provision and any evidence there may be as to whether it has damaged the integrity of the register so that, if we have made a mistake this time around—and we all make mistakes—it can be resolved next time.
Another issue that has been largely resolved, I think, is that EROs themselves were very worried about the resources that were being devoted to this. We have had progress in two regards here. The Government have told them what resources they are going to get, and have also said that they are prepared to consider a request for more resources in cases where there are particular difficulties in given areas. Nobody is dancing on the rooftops about this, but it is clearly good progress, and EROs are less unhappy than they were.
However, there is a particular problem, which we need to go on worrying about, with the universities. I will cite one case. There is a ward in Lancaster, I am told, which is nearly always all student-inhabited and where registration is around the 10% mark at the moment. In Sheffield, which has several universities, the universities themselves are putting resources into campaigning to get a fuller register. That is not really what university money is for: it should come from the budget provided for IER. I would welcome any reassurances that are forthcoming on those issues—particularly the university point, which is a chilling worry. Whether the Lib Dems worry about it in quite the way they used to, I do not know. They used to rely considerably on the student vote, but of course that may not be so certain at the next election. The Minister, is, of course, perfectly placed to give both a party as well as a ministerial opinion.
The one thing that is not resolved is an IT issue. The Government are quite frank about this in the memoranda: we do not yet know whether the IT to do the verification matching will work. We do not expect to know that until February or March, when it has been properly trialled. If it does not work, it will cause serious difficulties at least for the scheme—and maybe more than that. The probability is that it will work, by the way, but we ought to think about contingency planning if it does not. There is a particular problem—which came out in the Minister’s remark—about postal voters, because unless they are individually registered, they cannot vote at all. There is no way around that, so postal voters could lose their vote if this does not work—and even those moving shortly before the election might find it difficult, if this does not work, to exercise their vote. This is of concern to the Electoral Commission, as I am sure it is to the Government.
I do not want or expect the Government to delay making the announcement that they intend to go ahead until they are certain that these things work. If you do not take any risks in life, you tend not to make much progress. However, my father used to say to me when I was a young man, “David, always leave room for the big back-out”. I think he had girls in mind, rather than electoral registration at the time—but I think that, on this, Ministers ought to leave room for the big back-out. That is to say, if it turns out that this IT simply does not work—and my expectation is that it will—they will have to be in a position where they can find the words that they have used to show that they were concerned about this issue. If that means that fundamental decisions have to be reviewed, and I do not expect that to happen, they should stand ready to do that.
The Government have taken a pragmatic approach to electoral registration—with the full support of my party and, indeed, politicians of all parties—because individual electoral registration is clearly something that we should have in this country, as most other countries with genuine democratic systems have it. These questions are in no way designed to show any opposition to it, but simply to say that we must double bank and make sure that we have every step along the way working, so that it will go smoothly, with a high number of people on the register.
Lord Roberts of Llandudno (LD)
My Lords, I am sorry that those who usually lead on these issues for the Liberal Democrats—my noble friends Lord Tyler and Lord Rennard—are not with us this afternoon. I will step in where angels fear to tread.
First, as Liberal Democrats, we are glad that registration is now compulsory, not voluntary, as was suggested in the beginning. That would have led to very different registration levels in various constituencies. Secondly, we have waited a long time for this: the Electoral Commission recommended the change to individual registration in 2003. A decade later, we are bringing this regulation into being.
Thirdly, we need to look again at the format of the registration forms. I declare an interest as president of Bite the Ballot, the youth movement to encourage young people to take part in the electoral process and influence manifesto commitments. Perhaps the Government will look at the form. We are replacing the 400 different forms that were used in various constituencies and electoral areas with one form. It will be a national form, which is used in every constituency. Of course, in Wales it will be bilingual. Even in Scotland we will have the element of the language up there.
The civil penalty for not registering comes in an accompanying letter. I get lots of correspondence—we all do—and we might look at the report we are sent, but we put the accompanying letter to one side. Can we not have the penalty note on the form itself, saying that if people do not register there is the possibility of a penalty? In addition, can the second and third forms be distinguishable, so that they look different—perhaps printed in a different colour—so that people know that this is not the original form but the second or third form?
On postal voting, what do the Government believe is the ideal moment to send out postal votes in the UK? Over the years, with the late Lord Garden, who of course was a distinguished military person, I tried to ensure that those who were on military service in places such as Afghanistan—this has been mentioned already—were able to receive their postal vote forms in sufficient time to enable those votes to be completed, returned and included in the count. It is difficult. I remember we had quite a debate on it when the Labour Government were in post. Is there some way we can ensure that those who are ready to sacrifice their lives for us will at least have the opportunity of casting a vote, wherever they are? That is very important.
The regulations are acceptable, I am sure, but other initiatives are not here—of course, we would say that—such as engaging young people to register and take part in political debate. I go back to the Bite the Ballot proposals for a national registration day—5 February 2014—in every area; I think the superstores and the large shops are going to have tables where people can register, and young people in particular will be able to register. Will the Government support this Bite the Ballot initiative? What steps are being taken at a local, constituency level to ensure that every support possible is provided to make National Voter Registration Day a success? We dream of half a million new, young voters on that day. Support will be essential to ensure that that happens.
Lord Wills (Lab)
My Lords, I, too, thank the Minister for the careful way in which he set out the basis of these regulations. I want to associate myself with the great sweep of the comments made by my noble friend Lord Lipsey and the noble Lord, Lord Roberts. I do not think the Minister will be surprised to hear that I still have concerns about this legislation, but he will, I hope, be pleased that I do not intend to rehearse all those concerns today. This is not the appropriate place to discuss the Government’s approach to introducing individual electoral registration. My noble friend Lord Lipsey has already set out for the Committee the importance of that, so I will not go over it.
There appears to be very little that is exceptionable in these regulations. I welcome much that is in them. However, your Lordships’ House is being asked to approve them without the benefit of crucial information, which is available to the Government but not to your Lordships. This cannot be an acceptable way to proceed in a healthy democracy, where there is proper scrutiny of the Executive by the legislature.
As far as I am aware, every independent body has warned of the potential damage to levels of registration by the Government’s approach to this legislation. All experience and evidence suggest that there are specific groups at particular risk of seeing their registration levels fall as a result of government policy: young people; students, as we have already heard; people with learning disabilities; people with disabilities generally; people living in areas of high social and economic deprivation; and ethnic minorities. These concerns were extensively rehearsed during the passage of the Bill and were brushed aside by the Government, who have still not produced any evidence to justify their insouciance. Their responses have brimmed with hope and aspiration, but they have not really put forward anything to justify their confidence.
It is not credible to argue, as the Government often do—we have heard a trace of it again today from the Minister—that there are significant problems with current levels of registration. It is no justification at all to make a bad situation worse. We are not in a position to assess the arguments put forward for the efficacy of the measures that the Government have outlined today and elsewhere, because we do not have the information to judge whether they are sufficient. It is impossible to assess whether these measures are adequate without knowing the assessment of risk that the Government have made.
The Minister suggested in the past that the Government had indeed considered these concerns. If your Lordships’ House is to approve these regulations, surely it should have access to the same evidence as the Government about the risks to electoral registration of their policy. Yet, we do not. I have been trying for nearly a year to secure it under the provisions of the Freedom of Information Act. I have been fobbed off with what I regard as inadequate excuses for not giving it. These excuses have consistently been delivered late—well outside the provisions of the Act. I last wrote to Cabinet Office officials on 6 November. I am still waiting for a response. The Minister, I am sure, can work out that the response is out of time.
Will the Minister today at least spare me—and, more importantly perhaps, his long-suffering officials—further grief? Will he tell your Lordships what assessment the Government have made of the risks this legislation poses to levels of registration among young people; among students; among people with learning disabilities; among people with disabilities generally; among people living in areas of high social and economic deprivation; and among ethnic minorities? If he will not, please will he explain why he will not?
There can be only two possible explanations for the Government’s persistent refusal to share this information with your Lordships’ House. The first is that all the concerns that I have referred to are groundless, but the Government are not revealing this because of their worries about extending transparency in government. Will the Minister say whether this is indeed the reason for the Government’s refusal to reveal the detail of their assessments of the risks to electoral registration of this legislation?
The only other possible explanation for the Government’s lack of transparency is that their assessment indeed confirms all other independent assessments of the risks that so concern everybody else and that they are embarrassed to reveal it, because that would throw a harsh light on the profound flaws in the legislation.
I would be grateful if the Minister could say today which of these two arguments applies to the Government’s lack of transparency in this area. If he will not respond to that—and I fear that probably he will not—will he at least make a guarantee? It is only a small request, but it would save everybody a lot of grief and place the Government in a much better light than they currently are in. Will he guarantee that I will receive replies to my freedom of information requests—which, I must give due warning, are unlikely to stop now—within the statutory limits provided for under the Act? I hope that the Government recognise that the sort of inexcusable tardiness I have experienced until now undermines their frequent claims to the promotion of transparency in government.
Lord Kennedy of Southwark (Lab)
My Lords, first, I draw Members’ attention to my interest as a member of the Electoral Commission. I am also the chair of the All-Party Parliamentary Group on Voter Registration.
The order and regulations we are considering in Grand Committee today are important as part of the process of bringing into effect individual electoral registration. I very much agree with my noble friend Lord Lipsey, who described to the Grand Committee just what is at stake and how important the regulations—and all that we are discussing here today—are. I look forward to many more discussions and debates on this over the coming weeks and months.
National Voter Registration Day, which the noble Lord, Lord Roberts, mentioned, is something that I very much support. We discussed it many times at the all-party group meetings. It is very important that we get young people registered to vote. They are a real risk group, as other colleagues mentioned. There is, as my noble friend Lord Wills said, much that we agree with here, but there are real risks. I agree with him very much. I hope that the noble Lord, Lord Wallace, will be able to address the points my noble friend has made; in particular, I hope that when my noble friend puts in FOI requests, he will get proper and adequate responses and that this will be addressed.
Members will be aware that the previous Labour Government put on to the statute book individual electoral registration and a process for bringing it into effect. With the new Government coming into office, the process was accelerated and other changes were made with the passing of the Electoral Registration and Administration Act 2013. As many noble Lords said, IER is supported by all parties and we all welcome its introduction. It is another safeguard to ensure that our democracy is both protected and enhanced. It is important for the governance of our country at all levels, for society in general, for our citizens, for political parties and for our reputation around the world that we can all have confidence in our electoral process. It is largely built on trust, but it needs safeguards for protection.
I have a number of questions for the noble Lord. I am sure he will answer as many as he can today, but I do not expect him to be able to answer them all—or all the questions posed by other noble Lords. Where that proves to be the case, I assume that he will write to me and other noble Lords who have asked questions and place a copy in the Library of the House
I turn first to the order that requires electoral registration officers throughout England, Wales and Scotland to undertake specific activities in relation to the transition to IER. As my noble friend Lord Lipsey said, there are real concerns with the IT needed to deliver this. Fundamental decisions have to be made and some may have to be reviewed. Will the noble Lord, Lord Wallace, tell the Grand Committee what safeguards are in place? About 70% of electors were confirmed through the tests in the data-matching exercise—the noble Lord said it was 78%. However, as he will be fully aware, we do not have an overregistration problem in this country but an underregistration problem. Will he tell the Grand Committee what else is proposed to get electors on to the register, other than the online proposals?
Noble Lords are all aware of the Northern Ireland experience. I accept that this is being done in a different way, but it would be good to hear what other plans the Government will put in place to ensure that we do not have a similar problem. It has to be a bit more than the ERO being able to concentrate on the other 30% who are not identified through this process. Will he also tell the Grand Committee what the status is of other databases and matching exercises? Are these not going to be looked at further? Will they be able to give us what we want? Might we look at any others in the future? What is the review process for looking at databases as we move forward?
I am sure that the noble Lord will understand that the completeness and the accuracy of the register are not the same thing. I note the baseline measurements of 86% complete and 85% accurate for our electoral register. However, to put it another way, our electoral register baseline measurements are 14% incomplete and 15% inaccurate. Is that acceptable to him—and, if not, what will the Government do to improve the situation?
My worry is that, as other noble Lords mentioned, it will be students, people living in private rented accommodation, service men and women and their families, and other groups that have the potential to move around who will be at the greatest risk of being lost to the system. I am sure that the noble Lord is well aware of the importance of the register that will be published in December 2015, as it relates to the next parliamentary redistribution of seats. I think that I am right in saying this will be the base figure that the Boundary Commission will take. If there is a drop in the number of people registered to vote, that will have very serious consequences for how seats are redrawn and could create a gross injustice and unfairness. How will the noble Lord ensure that that will not happen? What contingency plans do the Government have in place?
I turn to the other regulations before the Grand Committee. Changing the name of the edited register to the open register is a very sensible move and I fully support it. The Government are a bit obsessed with the retention of data and I have some concerns about losing the ability to detect fraud that their keenness to destroy records could create. Where someone has failed to be matched and cannot produce documents that satisfy the ERO, they will need to have their application attested by an elector who is registered in the same local authority—someone of good standing. Can the noble Lord tell the Grand Committee who is a person of “good standing” and how many applications they will be able to sign per year: one, two, 10 or 100? When do alarm bells start to be rung?
Does the noble Lord think that one visit and two follow-up invitations will be enough? Does he not accept that in many places EROs will have to go much further than this? What advice would he give to EROs about using the requirement-to-register power: is it something he would expect EROs to do only in exceptional circumstances, or is it something he would encourage them to do much more frequently than that to improve the completeness and accuracy of the register in their locality?
On postal vote identifiers, will he give a commitment to look at the date of birth identifier in particular? As I see it, the most common problem is that people will give their signature and date of birth when applying for a postal vote, but, when casting their postal vote, they will sign the document and put that day’s date on the form. That would be an understandable mistake, but it would mean that their vote was not counted. I am sure that the noble Lord would regret that most sincerely, as would I.
As I said at the start of my remarks, I fully support IER, as do all parties—and, I am sure, all noble Lords. However, I and other noble Lords have raised a number of concerns at which the Government will have to look seriously as these changes move forward.
Lord Wallace of Saltaire
My Lords, I am grateful for almost everything that has been said in this debate. We all agree, as the noble Lord, Lord Lipsey, said, that it is extremely important, first, to get maximum registration, and then to get maximum turnout. We also accept that both of these are difficult and have become more difficult; and that the question of the legitimacy of government is, of course, caught up in this. We are all well aware that we might possibly elect a Labour Government at the next election with 35% of the votes cast on a very low turnout. I can imagine what the Daily Mail would say about the legitimacy of that Government.
We have a shared interest across all parties, first, to make sure that we maximise registration and then—this is something on which we need to have some active cross-party conversations—persuade our deeply alienated electorate, let alone our deeply hostile media, that politics is an honourable profession; that voting is important; and that maximising the turnout at the next election has to be seen as a civic duty and not as something that, as some newspaper columnists tend to suggest, will only encourage the bastards.
Lord Wills
I am very grateful for what the Minister has just said and want to associate myself with those remarks profoundly. I would like to “mark his card” with a particular potential problem on which I hope the parties could collaborate. That is the problem about funding for electoral registration in this context. As the Minister will know, it is not ring-fenced—although I personally believe that it should be. However, because it is not ring-fenced, local authorities under a lot of pressure might well be tempted to skimp, shall we say, on some of the efforts made. The problem could arise, therefore—and it is only a potential problem at the moment—that local authorities with a particular political complexion will not necessarily see it as in their interests to canvass areas that support the other parties. I am sure that the Minister can imagine the sort of scenarios that could occur.
At the moment, there is no protection against that happening. I am not saying that it will happen. Most local authorities in my experience as a Minister were extremely diligent and took their democratic duties extremely seriously. I would be very surprised if it was a widespread problem, but it could be a problem. I welcome the comments just made by the Minister and his reassurance that he will at least explore what might be done to protect against that sort of eventuality.
Lord Wallace of Saltaire
My Lords, I hesitate to get into a discussion on ring-fencing, which the noble Lord and I have debated several times before. The good news is that the data matching so far has come up with a much higher proportion than we originally anticipated. That will enable us to focus funding on those vulnerable groups and particular areas that we now know to be the most difficult. We all understand which those groups are. They are young men above all—young men who tend not to open letters and who move around very rapidly—students, young black voters, and other challenging groups of one sort or another. That is the area on which we are currently concentrating. I say to the noble Lord, Lord Roberts, and others that the Government are co-operating actively with Bite the Ballot, Operation Black Vote and other organisations that are working to increase the intention and willingness to register within their own communities. We are also working with universities and students to ensure that they, too, are able to raise interest and maximise the registration of those groups in their areas. We are well aware of this and we are doing everything we can.
The noble Lord, Lord Lipsey, asked whether we were going ahead for 2015. So far, things are going better than anticipated. We have not completely gone snap on it, but the IT has demonstrated more resilience than we feared might be the case, so it is on track. I am grateful for the noble Lord’s comments on the open register. There are some wider considerations here, as we all understand, such as the questions of credit references and identity verification for mortgages, and other such things. There is also an issue about overseas voters, since they will be asked to demonstrate that they have been, within the past 15 years, resident somewhere in a particular constituency. All of these things fit in with maintaining an accurate register, let alone the question of longer historical research, which relates to the future of the census—another complicated area on which I will not go into more detail here.
Yes, of course we will review the situation after 2015, and we will be absolutely concerned to do whatever we can about service registration. The question of service voting and registration is becoming a little less difficult than it has been, because as troops return from Afghanistan and from Germany, the proportion of our serviceman living outside this country is going through a relatively rapid decline. Of course they will continue to move around, but arrangements for Armed Forces voters and their spouses will be maintained in as strong a form as we possibly can.
We are absolutely concerned to get good young people’s registration forms. I have already mentioned our work with universities and other groups. The noble Lord, Lord Wills, talked about access to the Government’s risk register. Again, we have discussed this before and I have reiterated that the Government work through a risk register as a matter of course but do not publish it. We have just all agreed where we know the risks are in this shift in registration, but I have to reiterate that we knew where many of these risks were already. It is relevant that we have already had increasing problems with young men, people living in rented accommodation and ethnic minority voters. Those existed already; we simply have to work harder to get through to all of them; that is why we are targeting our efforts.
Lord Wills
Very briefly, everyone knew where the risks were with the current system of registration. The question I have been trying to get the Government to address is: does the way in which they are proceeding to introduce individual registration increase those risks, maintain the same level of risk or decrease the risks? Which is it?
Lord Wallace of Saltaire
My Lords, our efforts are intended to mitigate a risk that was already increasing and is likely to increase further. We will continue to need to look at a range of issues. I am well aware that a Labour Private Member’s Bill, which has been presented two or three times in the House of Commons, suggests, for example, that benefit seekers should not be able to receive their benefits unless they are on the electoral register. This provision is not included in the Bill. It is something that the noble Lord may wish to pursue further. There is a range of questions that we still need to consider, but he and I know how difficult this is: first, getting these people on the register and then persuading many of them to vote.
The noble Lord, Lord Kennedy, asked how aware we were of the importance of the register for December 2015, because it is likely to be the basis on which the redistribution of seats next time around will be drawn. Again, this is not a new problem. We are already aware that there has been underregistration in a number of cities—a number of safe Labour seats, one has to say. To the extent to which we have managed to raise the level of registration, we will raise it on a much fairer basis for the next redistribution of seats. Again, we all recognise, on a cross-party basis, that these things go together, and that we share an interest in making sure that as many of these vulnerable groups as possible are persuaded to register.
The last question from the noble Lord, Lord Kennedy, was: who is a person of good standing? I am tempted to say that it is clearly a university professor. However, I take the question as he put it and I promise to write, particularly on the question of how many times the same person can sign a form on behalf of someone else before the ERO begins to question whether they are an appropriate person to sign the form. I am aware of where he is going with that question and I will do my best to answer it. I hope that I have answered all the questions that noble Lords raised, and I beg to move.
Lord Kennedy of Southwark
My Lords, I thank the Minister for his responses, which I am happy with. I did ask some other questions, but I take it that he will respond to them in writing.