Baroness Chisholm of Owlpen (Con)
My Lords, I start by declaring an interest. My daughter is a director of Hanover Communications. However, as I mentioned yesterday, as a mother and a grandmother—she has two small children—we do not, as one can imagine, really talk about lobbying. I thank the noble Lord, Lord Brooke, for introducing this Bill, which has led to an interesting and engaging debate. I also thank the noble Lord for his opening speech. I think the whole House recognises his commitment to this important issue.
At its core, the noble Lord’s Bill has the intention of making lobbying a more transparent activity. Indeed, it is worth noting that his Bill encompasses many of the provisions contained in the Government’s own Act, the Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration Act 2014. Nevertheless, the Government feel that they must express reservations about this Bill. I hope it will be useful if I focus for a moment on the Government’s view on transparency before turning to the noble Lord’s Bill and outlining why we have reservations about it.
Like the noble Lords, Lord Brooke and Lord Bew, we believe that lobbying plays an important role in ensuring that everyone’s voice is heard in Westminster, Whitehall and beyond. However, lobbying must be transparent. The Register of Consultant Lobbyists that we set up in March 2015 is designed to shine the light of transparency on those who seek to influence the Government on behalf of a third party. It complements the existing transparency regime whereby Ministers and Permanent Secretaries publish details of their meetings with external organisations. The noble Lord, Lord Brooke, mentioned that the register was not working. However, it was set up only in March 2015. We need to give it time to do its work. The register helps transparency in two main ways. First, it clarifies whose interests consultants are representing, which is not always clear from ministerial diaries alone. The register also has enhanced scrutiny, as consultant lobbyists must declare whether they subscribe to a code of conduct.
As my noble friend Lord Lansley and the noble Lord, Lord Beith, mentioned, we wanted the 2014 Transparency of Lobbying Act to avoid unnecessary regulatory burdens, rather than to establish top-to-bottom regulation of all who lobby. That is why we set up an appropriate way to ensure high levels of transparency, but only in the specific areas of the lobbying industry where that was needed. Arguably, to make a register of in-house lobbyists would be enormously burdensome, very hard to make work and very costly. As the noble Lord, Lord Beith, mentioned, at least we know who they are lobbying for.
The noble Lord, Lord Beith, and the noble Baroness, Lady Kennedy, both made an interesting point—namely, that there should be a government website. I should add that information on meetings is published in an easily searchable format. However, as the noble Baroness, Lady Hayter, said, that is not easy to use. I will certainly take that back to the department. I hear what she says; the information should at least be user-friendly.
It is clear that the 2014 Act and the noble Lord’s Bill broadly seek the same thing, to regulate lobbying in order to make it more transparent and increase public confidence in public institutions. However, it is the Government’s position that further regulation of lobbying is not necessary, particularly so soon after the passage of the Government’s Act on transparency of lobbying, passed by this House in 2014.
I hope it will be helpful if I outline to the House some of the reservations that the Government have about the Lobbying (Transparency) Bill 2016. First, the Bill uses a wider definition of “lobbying” and “lobbyist” than is provided for in the current Act. The Bill’s definition of “lobbyist” includes in-house lobbyists, as well as the consultant lobbyists covered by existing legislation. However, the conduct of in-house lobbyists can be scrutinised through the publication of ministerial diaries, which offer details of any gifts given and received, hospitality received, overseas travel and meetings with external organisations. Through the diaries, members of the public already have access to a wealth of information that sheds significant light on lobbying activity.
Secondly, the Bill requires that meetings with all public officials should be registered, instead of just Ministers and Permanent Secretaries. As I said earlier, that risks creating a register that requires significant extra resources without leading to improved transparency.
Thirdly, the Government have reservations about the establishment of a statutory code of conduct. We believe that self-regulatory codes administered by the lobbying industry work well. Indeed, the 2014 Act aimed to complement rather than replace existing non-statutory codes. In addition, I note that your Lordships’ House agreed only in 2014 not to implement a statutory code. That decision was made after the Government had made their case against statutory codes and after the House had had the opportunity to debate the question. It therefore makes sense to wait and see how existing legislation works in practice before making further changes.
Fourthly, the Bill does not afford an exemption for small lobbying firms, whereas the 2014 Act exempts anyone not registered under the VAT Act 1994. One risk of not exempting those under the VAT threshold would be to place disproportionate financial and regulatory burdens on small companies, thereby impeding their growth and potential to contribute to the economy.
On the financial provisions of the Bill, the 2014 Act seeks to offset some costs of the register through a fee charged to lobbyists for registering. The Bill makes no reference to any fees chargeable to lobbyists, which means that it would be entirely publicly funded. The lack of industry-led funding means the taxpayer would be footing the bill for a system, which would not make lobbying any more transparent than at present. We believe that a less problematic and more cost-effective alternative has already been in force since March 2015, when the Register of Consultant Lobbyists was set up. I also note that the provisions of the Bill would repeal legislation on lobbying regulation, which Parliament only recently agreed to. It is the Government’s view that the current legislation continues to be a vital part of the lobbying and transparency regime and a proportionate response to the issues we face.
I also have a pair of more minor concerns about the detail of the Bill. These are not reasons in themselves to either support or oppose the Bill but I hope that noble Lords will find it constructive if I highlight them to allow for the possibility of their being addressed. First, the Bill does not empower the registrar to provide guidance. I understand that the registrar’s ability to issue guidance as currently provided for is an important component of engagement with those who enrol on the register. Secondly, the Bill does not require the registrar to justify their decision to impose penalties or set out an appeals process against the registrar’s decisions, both of which are currently provided for under the 2014 Act. Both would presumably need to be inserted into the Bill to ensure that monitoring and enforcement processes were fair, predictable and run according to due process.
My noble friend Lord Lansley and other noble Lords mentioned expanding requirements to include spads. While the Government are not considering expanding the Act to include special advisers, steps have been taken to expand the disclosure requirements with regard to the publication of ministerial diaries. We have expanded this to include meetings between senior media figures and government, including those held by special advisers, which reflects particular concerns following the Leveson inquiry.
My noble friend Lord Norton asked whether the current Act provides value for money. The Act is working well—obviously, I would say that—and has solved the issue that it is not always clear in whose interests lobbying takes place. As I mentioned, by charging a fee to those firms who must register, the Government have minimised the cost to the public purse of establishing and running the register, thereby delivering value for money. The annual budget for the register was published this year and stands at £265,000.
Many noble Lords mentioned Brexit and how a huge number of lobbying firms will come into play because of it. However, they have to register in the same way as any other lobbying firm.
In summing up, I pay tribute to the noble Lord, Lord Brooke, for pursuing this important matter and to those here today for their insightful contributions to this debate. Although sympathetic to the aims of the noble Lord’s Bill, the Government must express their reservations about it. Some of our reservations relate to more technical aspects, which could be rectified. However, at a broader level, we believe that measures that go further than the current provisions in force would be unlikely to enhance transparency.
The noble Lord, Lord Howarth, talked about transparency relating to consultant lobbyists. Taken together, the register of consultant lobbyists and the publication of ministerial diaries already provide an unprecedented level of information about interactions with government. I know that many different views on that are held in this House. I hope I have made it clear why we believe that a number of parts of the regulatory system proposed in the noble Lord’s Bill are unnecessary, but I hope that I have made it equally clear that many of his proposals are very sensible and are largely provided for under current legislation.
This has been a thoroughly worthwhile debate. Transparency is critical to the democratic health of the country and deserves to be periodically considered and debated. On our side, the Government will continue to make sure that the right information is available for thorough and transparent scrutiny of lobbyists to take place. We are proud of the level of transparency that those who seek to influence public policy must demonstrate, and we will continue to uphold those highest standards of transparency in the future.