Palace of Westminster: Restoration and Renewal
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Baroness Evans of Bowes Park
That this House concurs with the House of Commons in their resolution of 31 January, and accordingly resolves that this House—
(1) affirms its commitment to the historic Palace of Westminster and its unique status as a UNESCO World Heritage Site, Royal Palace and home of our Houses of Parliament;
(2) takes note of the Report of the Joint Committee on the Palace of Westminster Restoration and Renewal of the Palace of Westminster (Session 2016-17, HL Paper 41);
(3) accepts that there is a clear and pressing need to repair the services in the Palace of Westminster in a comprehensive and strategic manner to prevent catastrophic failure in this Parliament, whilst acknowledging the demand and burden on public expenditure and fiscal constraints at a time of prudence and restraint;
(4) accordingly endorses the unanimous conclusion of the Joint Committee that a full and timely decant of the Palace is the best and the most cost-effective delivery option, as endorsed by the House of Commons Public Accounts Committee and the Infrastructure and Projects Authority;
(5) accepts that expenditure on the Palace during this Parliament will be limited to preparatory work for the comprehensive programme of works envisaged, together with works essential to ensure the continuing functioning of the Palace;
(6) endorses the Joint Committee’s recommendation that a Sponsor Board and Delivery Authority be established by legislation to develop a business case and costed programme for the work to be approved by both Houses of Parliament, and to commission and oversee the work required, and that immediate steps be taken now to establish a shadow Sponsor Board and Delivery Authority;
(7) instructs the shadow Sponsor Board and Delivery Authority and their statutory successors to apply high standards of cost-effectiveness and demonstrate value for money in the business case, to report back to Parliament with up to date costings and a realistic timetable for the duration of the work, and to include measures to ensure: the repair and replacement of mechanical and electrical services, fire safety improvement works, the removal of asbestos, repairs to the external and internal fabric of the Palace, the removal of unnecessary and unsightly accretions to the Palace, the improvement of visitor access including the provision of new educational and other facilities for visitors and full access for people with disabilities; and
(8) affirms that the guarantee that both Houses will return to their historic Chambers as soon as possible should be incorporated in primary legislation.
The Lord Privy Seal (Baroness Evans of Bowes Park) (Con)
My Lords, today’s debate is about the restoration and renewal of this iconic building. It is a building steeped in history, and of course today marks one of those historic occasions, as it is 100 years since Parliament passed a law which allowed women to vote for the first time. Following this debate the House will be asked to take an important decision about whether or not to support the proposition that was agreed last Wednesday in the House of Commons. As this is a Motion for the House rather than for the Government, it will be a free vote on our Benches, as it was in the other place. Before we begin, I should acknowledge that this debate has been a long time coming—I note the wry smiles and noise from around the House. But there has been a lot of preparatory work and discussion in both Houses to get us to this point.
I am sure that the House would like to join me in paying tribute to the excellent report produced in 2016 by the Joint Committee on the Palace of Westminster, co-chaired by my predecessor my noble friend Lady Stowell of Beeston, and my right honourable friend the Secretary of State for Transport during his time as Leader of the Commons. Others members of that committee are present today, including the noble Baroness, Lady Smith, and the noble and learned Lord, Lord Wallace of Tankerness. The House owes them, along with the R&R programme team, a huge debt of gratitude for the work they have done in laying the foundations for today’s decision. I also thank the many noble Lords from all sides of the House who attended the drop-in sessions that I hosted with my right honourable friend the Leader of the Commons before Christmas, and those Peers who have taken the time to visit the basement, the roof and other parts of the Palace with members of the R&R team.
Last Wednesday the House of Commons debated a number of options on how to proceed with the work everyone agrees needs to be done to this building. It made a decision to progress by endorsing the Joint Committee’s recommendation that a full and timely decant of the Palace is the best and most cost-effective delivery option. I have no hesitation in commending the Motion that the other place voted for to your Lordships.
There are difficult decisions to be made on how we best protect one of the world’s most iconic buildings for future generations, but we must address these decisions head on. The patch and mend approach is no longer sustainable. The way forward on R&R must be supported by both Houses as the solution has to be right for Parliament as a whole. A programme of this scale and national significance should command the broadest possible consensus. Therefore, this House must agree a Motion which is substantively the same as that agreed by the other place—otherwise we will once again reach an impasse.
That means that, if the amendment proposed by my noble friend Lord Naseby were to be agreed by this House, both Houses would have taken materially different decisions. This would mean it was likely that no progress could be made until time was found for the other place to debate this matter again and, in effect, reconsider the position that it agreed last week only after lengthy delays and a series of votes, and I am afraid that we would be no closer to making progress. I hope that the majority of your Lordships will agree that this would not be a desirable outcome. I will respond in more detail to the amendment that has been tabled at the end of the debate.
There are some critical risks now facing the Palace of Westminster. First, the lack of fire compartmentalisation means that fire patrols around the clock are necessary to keep us safe. Over the past 10 years, 60 incidents have had the potential to cause a serious fire. Secondly, there is a huge amount of asbestos in the building, much of it in the plant rooms and voids where the mechanical and engineering work needs to take place. Thirdly, many pipes and cables providing essential services are decades past their lifespan, with some now being impossible to access. This network of services, which has developed in an ad hoc way since the reconstruction of the Palace in the 19th century, is under such strain that the failure of one of them might render the building uninhabitable.
The likelihood of a major failure increases the longer that these systems are left unaddressed. While the House authorities are satisfied that the Palace is currently safe, it will become ever more difficult to maintain and manage this level of safety with every year that passes. Thankfully, the increasing risks facing the Palace are not structural ones but, while restoration work is already taking place to the exterior of the Palace, and can be done without significantly disrupting the business of the House, stripping out and replacing these ageing services will require a more substantial decant of the Palace. Indeed, some of the exterior renovation work taking place now can be disruptive in terms of noise. Many of your Lordships may remember the temporary suspension of the House at the end of 2016 because of stone-blasting work in the courtyard. The requirement to work around the sitting patterns of both Houses also has a significant impact on the timeframes and costs.
So there is a pressing need to repair the services in the Palace, but we must also acknowledge the likely costs associated with a programme of work of this magnitude and the fact that the burden will fall on the public purse. So while it is our responsibility as stewards to safeguard this UNESCO world heritage site, it is also our responsibility to ensure value for taxpayers’ money. For our part, the Government have said that there can be no blank cheque for this work, and value for taxpayers’ money will frame the choices that we make. If we do agree the Motion that this work should proceed, it will still be important to thoroughly examine the costs and manage the work in a way that avoids the unacceptable cost and time overruns that have occurred with other projects such as the refurbishment of Elizabeth Tower.
It may be helpful for me to briefly set out the next steps should the House agree to the Motion before us today. The next phase of work will be the development of an outline business case including the design, up-to-date costs and how the programme will be delivered. Significant time and investment will be required to get this right. To supervise this work, the Joint Committee recommended that a sponsor board be established to represent Parliament as the client. The board will have parliamentarians from both Houses as well as external members, including the chair, with expertise in heritage and project management. The sponsor board will oversee the work of a delivery authority that will be made up of professionals with the expertise to manage and deliver a project of this size. This seems to be the right approach.
As noble Lords will be aware, the Joint Committee’s report identified the Queen Elizabeth II conference centre as the preferred venue to accommodate this House during the works. It is likely that the House of Commons Chamber will be accommodated in Richmond House. But I should emphasise that feasibility work on these options is still ongoing and no final decisions have been taken. These arrangements will also form part of the business case. Once the outline business case has been produced, it will be brought to both Houses for approval. If approval is given by your Lordships and the other place, it is anticipated that the decant of the Palace will commence no sooner than 2025.
Later this month the commissions in both Houses will be invited to consider and agree the governance arrangements for the sponsor board and delivery authority. If they are content, the House authorities will launch a recruitment round for the external members who will sit on the sponsor board, including the chair. Engagement with Members will be one of the key roles of the sponsor board, as it will be crucial for their views, as well as those of the staff, public and other stakeholders, to inform and shape the programme, particularly the design, as it develops.
In the meantime, significant and essential repair and improvement work to the Palace will continue to take place. This includes ongoing restoration work to Elizabeth Tower, Westminster Hall, the cast-iron roofs and the stonework in the courtyards. In the Commons the renovation of the Northern Estate, which is an important enabler for the wider R&R works, will also continue.
I end simply by reiterating my thanks to my noble friend Lady Stowell, the noble Baroness, Lady Smith, and the noble and learned Lord, Lord Wallace, and the other members of the Joint Committee participating in today’s debate—the noble Lords, Lord Laming and Lord Carter of Coles, and my noble friend Lord Deighton—for their hard work and patience in laying the foundations, which has allowed us the opportunity to make progress on this important matter. I beg to move.
Amendment to the Motion
Baroness Evans of Bowes Park
My Lords, I am grateful to all noble Lords who have contributed to this important debate. I am also grateful for the near unanimous support that has been expressed from all sides of the House in support of the Motion, and for the number of noble Lords who pointed out that this may be the only time that this happens while I am Leader.
It has been a high-quality debate, and noble Lords across the House have eloquently set out the risks that this building faces and acknowledged the work that needs to be done. I was also very impressed by the number of noble Lords who have been on the basement tours. I have been on several myself and can only agree with the noble Baroness, Lady Andrews: they alarmed me.
I will now try to respond to some of the points raised in the debate. The noble Baronesses, Lady Andrews and Lady Jones, the noble Lords, Lord Carter, Lord Stunell, Lord Kirkwood and Lord McKenzie, and the noble and learned Lord, Lord Wallace, all rightly talked about the need for the management of risk and safety and raised valid concerns. To contain the risks in the run-up to decant, the Strategic Estates team is carrying out a programme of fire safety improvement works which are due to be completed in about a year and will conduct a further round of medium-term mechanical and electrical works but, as noble Lords have rightly said, these are sticking plasters and not a long-term strategic solution.
The noble Lord, Lord Newby, raised the issue of Member communications, and communications with Members of both this House and MPs will of course be important throughout the programme. It is anticipated that the sponsor body will establish a number of consultative forums to which Members of both Houses will be able to feed their views, which will cover the wide range of issues that your Lordships have spoken about today and, I hope, allow the expertise of both this House and the other place to feed in to make sure that we do the best we can by this building. The two House Commissions and the domestic committees in both Houses will of course continue to play a key role.
The noble Lord, Lord McKenzie, also rightly mentioned staff consultation. The Joint Committee took evidence from parliamentary staff but, as with Members, it will be important to ensure that the sponsor board takes into account the views of staff and feeds them in to the programme. It will take that extremely seriously.
The noble Lords, Lord Blunkett, Lord Kirkwood, Lord Cunningham and Lord Newby, and my noble friend Lord Maude all rightly talked about renewing democracy and looking at the use of this building. There will of course be scope in the programme to support changes to the way in which Parliament works and how the building is used by Peers, staff and MPs. Public access and engagement, as the Joint Committee noted, will be an important theme in the design stage and I am sure that the sponsor board will wish to engage widely with both Members and the wider public.
The noble Lord, Lord Blunkett, and my noble friends Lord Lingfield and Lord Deighton rightly talked about the need for the regional distribution of work. The use of off-site workshops has the potential to distribute the work around the UK and, possibly, speed it up. We are already seeing this. The cast-iron roof panels, for instance, are being refurbished in south Yorkshire, and the tiles being replaced are manufactured in Shropshire. I very much hope and expect that as we progress the work, this will happen on a grander scale.
The noble Lords, Lord Blunkett, Lord McKenzie, Lord Stunell, Lord Lisvane, Lord Bassam, my noble friends Lord Lingfield and Lord Deighton and the noble Baroness, Lady Smith, all talked about apprenticeships and skills. The programme will require a large, highly skilled workforce with both traditional and modern skills. The programme team has already been in contact with Crossrail, the Building Crafts College that my noble friend Lord Lingfield mentioned and others to discuss how we might establish an effective apprenticeship programme to encourage and make use of it as part of the renewal of this building.
I assure the noble Lords, Lord Blunkett and Lord Carter, the noble Baroness, Lady Brinton, the noble and learned Lord, Lord Wallace, and my noble friend Lord Blencathra that a major element of the proposed works will include significantly improving disabled access in the palace, which does not currently meet modern standards. I hope that the noble Baroness will bring her expertise to bear on some of the work in this area. She rightly raised some important issues which need to be looked at.
A number of noble Lords, including the noble Lords, Lord Naseby, Lord Newby, Lord Cormack, Lord Cope, Lord Renfrew, Lord Freeman and Lord Lingfield, the noble and learned Lords, Lord Hope and Lord Wallace, and the noble Baroness, Lady Bloomfield, all referred in various degrees to the QEII Centre. As I mentioned in my opening remarks, the centre was identified by the Joint Committee as the preferred option for temporary accommodation for the House of Lords, including its Chamber. However, these recommendations are subject to the approval of this proposal, followed by further feasibility work and value-for-money assessments. I stress that no decisions have been made at this stage. A number of commercial implications will need to be considered. In the meantime, the centre remains fully open for business. The QEII Centre would not close immediately and there will be time for further work on developing additional conference and events capacity in London. Closure of the centre would need to be carefully managed to ensure that the impact on London’s commercial reputation as an international meetings capital and the UK’s reputation as an important meetings destination are not unduly prejudiced. I assure noble Lords that those thoughts will be in the mind of the sponsor board.
The noble Lord, Lord Butler, and my noble friend Lord Cormack both asked about Portcullis House and Richmond House. The use of Portcullis House is a matter for the Commons commission as it forms part of the Commons estate—as Millbank House forms part of the Lords estate. Redevelopment of Richmond House will be addressed by the Commons, but any work that happened would retain the historic Richmond Terrace, as well as the grade 2 listed parade on Whitehall. This work will need to be considered more fully and no final decisions have been made.
The noble Baroness, Lady Brinton, asked about maintenance costs. The outline business case will include whole-life cost, which includes both construction costs and ongoing maintenance costs thereafter, usually over a 60-year period. We spend many tens of millions of pounds each year on keeping this building going. The R&R programme offers scope to reduce long-term maintenance costs significantly. My noble friends Lord Horam, Lord Renfrew and Lord Maude, the noble Lords, Lord Haworth, Lord Lisvane, Lord Vaux and Lord Addington, and the noble Earl, Lord Lytton, asked about the 2025 start date. Noble Lords all understand the extent of the work that will need to take place and adequate time will be needed to allow for the completion of the Northern Estate programme, arranging temporary accommodation for the Lords, completing the design work, procuring the contracts and establishing the sponsor board and delivery authority. But the timescales have not yet been finalised and noble Lords can certainly be reassured that I have taken on board comments about the speed at which we can do the work. However, as noble Lords have also said, we have to get this right and deliver it well, so there will be a balance between speed and making sure we do it properly.
The noble Lords, Lord Lisvane and Lord Stunell, and my noble friend Lord Norton asked about legislation. If both Houses agree to this Motion, which I very much hope they will, they will take away the very clear message to make progress as quickly as possible. I assure noble Lords that I and the Leader of the Commons are committed to introducing a Bill as soon as parliamentary time allows.
My noble friend Lord Renfrew asked about archaeology. We certainly understand the importance of archaeological access during the programme. The remains of the old Palace still lie under Speaker’s Court and Old Palace Yard and clearly the sponsor board will have to take that into consideration.
As many noble Lords have said, we and Members of the other place are merely custodians of this Palace. It would be irresponsible of us to ignore the pressing concerns that have been expressed around the Chamber. The Palace is part of our national heritage, a major tourist attraction and a cherished part of the fabric of this country, so it is right that we make sure we do what is needed to restore and renew it.
A rolling programme of works, which my noble friend Lord Naseby proposed in his amendment and advocated in his contribution, would take several decades to complete. Despite the scepticism of the noble Lord, Lord Desai, we believe that it would cost much more money and would certainly cause significant disruption to the business of both Houses, which would continue to sit in the Palace while the majority of the work took place. The observations of the noble Lord, Lord Bassam, on Brighton Pavilion were instructive, and the observations of the noble Lord, Lord Deighton, highlighting his experience on major projects, were extremely valuable.
The other place has reached a decision. This debate has shown that the decision also commands consensus around this House. As the noble Baronesses, Lady Smith and Lady Doocey, said, we cannot prevaricate any longer, risk worse damage to the Palace and allow our services to finally give way. We have conducted a series of studies from 2007, as the noble Lord, Lord Blencathra, mentioned, through to the review in 2012 mentioned by the noble Lords, Lord Cunningham and Lord Lisvane, the independent options appraisal of 2014 and the Joint Committee’s important report in 2016, which was well outlined by my noble friend Lady Stowell, which recommended full decant. It is difficult to see what further policy options can be brought to bear. We now need to get on to the planning for how best to deliver the preferred option. I and the R&R team and, of course, the commissions and others who will be involved, will certainly reflect on the many thoughtful and practical suggestions noble Lords have put forward today. We should be anxious to avoid any decision today that prevents us making timely progress. I hope therefore that my noble friend will see fit to withdraw his amendment.
Lord Naseby
My Lords, I listened carefully to all but two of the speeches and was pleased at the number of noble Lords who raised and debated the elements that I suggested needed debating. I particularly thank the noble Lord, Lord Desai, and the noble Earl, Lord Kinnoull, for raising the key point about finance. The issues I have raised are now on the record. I hope that they will provide a yardstick against which the project can be measured as it goes forward, and that they will be thought about. Nevertheless, I recognise that the vast majority of those who have attended today are most definitely in favour of the matter going forward without further ado. I too, of course, want action and to see things move forward. Against that background, I seek leave of the House to withdraw the amendment.