European Union Referendum Bill

Lord Davies of Stamford Excerpts

Wednesday 28th October 2015 Lords Chamber

[Lord Forsyth of Drumlean]

I shall tell the Committee a story. I spent two, I think, years of my life going to European Social Affairs Council meetings in order to prevent the European Union and the Commission abusing the rules and defining the working time directive as a health and safety measure rather than an economic measure in order to get it through by qualified majority and undermine our veto. I sat through endless meetings where people read out prose. I knew that in the end we would have to go to the European Court and argue our case and that it would find against us because it is under an obligation to preserve the acquis. The result was that the working time directive was imposed upon us, even though we had joined on the basis that those matters would be decided by unanimity.

At a meeting of Ministers one night after one of those long and tedious sessions, we were having a few drinks, and I decided to take it upon myself to lecture them on the benefits of supply-side reforms. I pointed out that if they went on like this, adding to the costs of labour and to the disadvantage that European countries would have competing in the global economy, the results would be huge levels of youth unemployment and a slowing down of growth in the European Union. I think it was the Dutch Minister—maybe it was one of the others—who turned to me and said, “Ah, but you do not realise. We understand all of this but what you do not realise is that we have proportional representation and have already given people these rights. It is impossible for us to remove them. We want a level playing field, and we do not want you to have a competitive advantage over us”.

The noble Baroness asked whether I think we will get these changes. I hope and pray that the European Union makes these changes for the sake of the large numbers of unemployed young people—50% in the southern European states—and for the sake of what we see in Europe, which is a country that is failing to grow and meet the aspirations of its people. What I see at present—and the Prime Minister has to contend with this—is that we are not leaving the European Union; the European Union is leaving us. Monetary union means, as the noble Lord said—he talked about the inevitable process of moving closer together, except he used different language as he sees the way forward as further integration because of the consequences of the single currency, which the same people who are advocating—

[Lord Davies of Stamford (Lab)]

My Lords—

[Lord Forsyth of Drumlean]

I shall give way in a second. The same people who are telling us now that we need to remain members of the European Union regardless of the terms are the same people who told us that, if we did not join the euro, Frankfurt would become the main centre for financial services in Europe and we would fall behind and become irrelevant. Thank goodness we did not join the euro; otherwise, we would be in the same predicament as France, Spain and Italy and the others. I give way to my former colleague.

[Lord Davies of Stamford]

I am most grateful to the noble Lord. I am perfectly happy to say my noble friend because he is that outside the Chamber. If the Prime Minister—maybe likely, maybe not—got the concessions that the noble Lord has just set out, would he then vote for us to remain part of the European Union?

[Lord Forsyth of Drumlean]

I might want to add to the list. Broadly speaking, if we get our country back, are in control of our borders and are able to decide on the regulations that govern business, not only would I vote in support of our continued membership of the European Union but I would say that the European Union has been saved and that the Prime Minister was a magician.

It is not what I think that matters. This is not what we are discussing; we are discussing giving the British people an opportunity to decide for themselves. It is a great disappointment to me that the noble Lord who used to be on our Benches, and who I know is a great democrat, really does not want the British people to have that opportunity and that is a great sadness. I give way to my other Scottish friend.

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[Baroness Suttie (LD)]

My Lords, I agree with the comments of the noble Lord, Lord Foulkes, on the Scottish experience in September last year. At a time when there are genuine concerns about voter apathy and lower voter turnout, the Scottish experience showed that you can engage and enthuse young people to believe that their vote really will make a difference. All the 16 and 17 year-olds to whom I have spoken were extremely positive about being able to vote in that referendum.

With this high turnout and higher levels of voter engagement achieved, it would be a backward step politically, not least in the Scottish context, not to include the same 16 and 17 year-olds in the referendum on the EU. If the referendum is held in the summer of next year, we could potentially face a situation in which a young Scot, who had just turned 16 in August 2014, for example, and so was able to vote in the Scottish referendum, would find themselves unable to vote on the future membership of the EU next summer. Can the Minister confirm whether the Government have given due consideration to the potential political impact, as well as the factual one, of this group of young Scots? Have they assessed the numbers involved in Scotland in this situation?

[Lord Davies of Stamford]

My Lords, there is no way, either empirically or by reference to theory, in which one can reach what might be an agreed doctrine on the right age at which people should begin to enter into a parliamentary franchise. We could debate the matter all night as to whether it should be 16, 17, 18 or some other age, or why it should be one particular and not another. We would never come to a definitive conclusion.

If we debated what have to be the essential qualities of a law, and especially the essential qualities of a constitutional law or rule, we would come to a definitive conclusion. By definition a constitutional law or rule must have a very wide degree of support. It must have legitimacy. That is the essence of an effective constitution. You cannot have legitimacy if you have a law that is contradictory and incoherent. At present we have a law or set of rules that are utterly incoherent.

It is not possible to find a respectable argument to say to a young Scot, in exactly the sort of case cited in the noble Baroness’s intervention a moment ago, that they had the right to vote in the Scottish referendum on independence and the break-up of the United Kingdom but no right to vote in the referendum on the future of our membership of the European Union. I have yet to hear a respectable argument that could be delivered to such a young person. If somebody on either side of the House has one I would be delighted to give way immediately so that we could hear what that respectable argument is. I simply do not think that it exists.

It is also not a respectable argument to say to a young English person, “The Scots were able to vote in an important referendum but you are not capable of exercising the same degree of choice as a Scottish person of the same age”. That would be a hideous thing to say to anybody. Of course this applies equally in Wales. The noble Lord, Lord Wigley, gave us a good example. Young people in Wales are now being told that they have a right to vote on whether the Welsh Government should have tax-raising powers, but not on whether Wales and the United Kingdom should remain part of the European Union. On what possible basis can one make that distinction? What possible respectable argument could one use in saying that to such a young person, who would quite rightly be challenging that kind of judgment?

At the moment we have complete incoherence, which we should not have because it is deeply damaging to the legitimacy of our constitution. The logic of what I am saying means that we should also change the voting age for Westminster general elections. One thing that we absolutely should not do is keep the present franchise for the referendum on the European Union, cutting out 16 to 18 year-olds throughout the United Kingdom, including Scotland, and then a year or two later change the voting age for Westminster elections. In other words, we should not deliberately close the door on a referendum that, as had rightly been said, affects people for the next 40 or 50 years—this will not affect us in the House in this time, but it will affect those young people—and then say that these people can vote now in Westminster elections after all: we have waited a couple of years but have cut you out of the referendum, which is even more strategically important for the country. That would be an indefensible thing to do.

[Lord Forsyth of Drumlean]

I will have a go at a respectable argument. Is the answer to the noble Lord’s point about the mess that we are in that we should not proceed with constitutional or franchise reform on a piecemeal basis?

On the point about the difference between a 16 year-old north of the border and south of it, I am sure that the noble Lord has been to a place called Gretna Green. That exists because 16 year-olds south of the border are not allowed to marry without parental consent, whereas in Scotland that consent is not needed. There is a precedent. It is not a particularly good one, but it illustrates what happens when you do not look at the age of majority in a coherent, cross-border manner.

[Lord Davies of Stamford]

Not for the first time in these European debates, the noble Lord and I, although associated with very different camps, agree on something. We agree on the word “coherence”—a word that the noble Lord used and which I used myself. I totally agree with what he said. One should not legislate in a piecemeal fashion, particularly for constitutional legislation. One should look at the whole. That is precisely why my party proposes a constitutional convention to ensure that we do not go in for piecemeal legislation on the constitution. That is another debate for another day.

[Baroness Royall of Blaisdon]

I point out to the noble Lord, Lord Forsyth, that it was his Government who let the genie out of the bottle precisely by enabling Scotland to give 16 and 17 year-olds the vote. I am delighted, but once the genie is out of the bottle I am afraid that you cannot put it back in.

[Lord Davies of Stamford]

I fear that that is the case. The noble Lord and I agree on coherence. The only way to restore coherence now is by the way I have just suggested. The pragmatics—the actual experience of this—are that 16 and 17 year-olds make very mature choices. That has been the lesson of the Scottish referendum. Giving them the vote has encouraged and increased participation rates, and increased intellectual interest in politics and in public life in general among young people. All those things are very desirable. The pragmatics support the theory.

[Lord Forsyth of Drumlean]

I am most grateful to the noble Lord. It was not our Government who let the genie out of the bottle, but the Scottish nationalists in Scotland. It was this House and the other House that gave the Scottish nationalist Government the power to make piecemeal changes to the franchise. I warned against it at the time. I warned that we would end up with people making piecemeal changes to the franchise, which should be looked at in the context of the overall age of majority.

I am not sure that I do agree with the noble Lord. We agree that it is a mess but the way to sort it out is to look at it across the board on the basis of the age of majority, not to add to the mess by making yet one more piecemeal change regarding voting in this particular referendum. I was responding to his point on what you say to a 16 year-old about how the law is different on different sides of the border. Gretna Green is a long-standing example.

[Lord Davies of Stamford]

I had not quite finished my remarks. I will do the noble Lord the courtesy of replying to his intervention. We both agree on the need for coherence. I totally agree that we do not want to make another piecemeal change, which is why I suggest that we make a universal change. In my view the Government should take the opportunity to say that they will legislate as soon as possible and bring forward legislation that will enable us to reduce the age of the franchise for Westminster elections—indeed, for all elections in this country.

[Lord Blencathra]

My Lords, I oppose these amendments. I appreciate the Government’s position that they had to select an electoral register that would be appropriate for this referendum. No one register is perfect. Clearly the one used for the EU elections is not appropriate, nor is the one for local government elections. Therefore, I accept that the one used for the last general election is probably as good as any because it is based on the age of majority.

I believe that, whatever amendments we make, we should stick with the age of 18. We have to pick an age somewhere and there is nothing magical about reducing it to 16. One of the arguments advanced is that this referendum will affect that generation for 40 years. If it affects 16 and 17 year-olds for the next 40 or 50 years, then it affects 15 year-olds, 14 year-olds and 13 year-olds, many of whom are equally switched on and with it and know what is going on. Yet there is no suggestion that it should go down to that age. If the argument is based on the referendum affecting millions of young people, there is no logical reason to stick at the age of 16.

The other argument used is Scotland. The argument that we have heard tonight is that there are so many enthusiastic young Scots. Scotland is recommended because it made young people enthusiastic for voting and for change and that we should therefore follow the Scottish example. I profoundly disagree. Just because Scotland did it does not make it wise or right. When I was aged 16 in Scotland in 1969 I was heavily involved in politics. I was enthusiastic, keen and reasonably well informed. I had absolute certainty, not just on how this country should be run. I even had suggestions on how Chairman Mao should amend some of his little red book. I knew what Mr Brezhnev should do to make the Soviet Union better. I had a wide range of enthusiastic views, but thank goodness I was not in a position then for the Government to be inflicted with my vote or for my childish enthusiasms to be put into law or enacted.

There are very few areas where we treat 16 as the age of majority. That is quite telling. Indeed, we treat 16 and 17 year-olds as children with no real say of their own in a large number of areas. What are those areas? Sixteen year-olds can get married, but only with their parents’ consent, although Scotland is different. While 16 year-olds can marry, they cannot buy a kitchen knife until they are aged 18. I know that for a fact because I was the Minister who put that law through, for some reason or another. Sixteen year-olds can join the Army, but only with their parents’ consent. They cannot go into combat until they are aged 18.

So what can they not do until they aged 18? They cannot buy tobacco or alcohol. They cannot gamble. They are too young to be sentenced to a young offender institution because the law regards them as children. They cannot legally watch a film with an 18 classification. That is a telling point. If our law considers them too young to watch a violent or pornographic film, how can we say that they are capable of making a decision on major political issues? They cannot serve on a jury. If they are regarded as incapable of exercising judgment there, why are they able to exercise judgment on national political matters?

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[Baroness Smith of Newnham]

My Lords, like the noble Baroness, Lady Royall, I have also put my name to the amendment from the noble Lord, Lord Hannay. I fundamentally believe it is right that EU nationals who are living and working in the UK and who have been here for a significant time, paying their taxes, ought to be enfranchised, irrespective of how they might vote. If I were speaking from behind a Rawlsian veil of ignorance, I would still say that they should have a right to vote. They have come here thanks to EU free movement rights, just as millions of British taxpayers have moved to other parts of the European Union—they may have retired there or be working there thanks to the free movement of people and 40 years of membership of the European Union. They will all vote in different ways. This is not a free-for-all to say that any EU national who just happens to have pitched up here should be entitled to vote. However, people who have committed to being here but have not sought British citizenship, precisely because, as the noble Lord, Lord Liddle, said, they have understood that they have rights as EU citizens, should be enfranchised.

It should not be a free-for-all. I do not quite believe that the amendment from the noble Lord, Lord Liddle, is the right thing to do. However, enfranchising people who have a great stake in the future of Britain in Europe is important, whether they are British nationals or not. Commonwealth citizens resident in the UK will be enfranchised, so it seems invidious that EU nationals are not. This is not about skewing the franchise but about giving people with a genuine interest the opportunity to have a say.

[Lord Davies of Stamford]

My Lords, I think that it is completely improper for anyone, anywhere, at any time, to make an assumption about how a fellow citizen or group of fellow citizens will cast their votes. It is particularly improper for us to do it here, where we are legislating on the franchise for a very important vote, and discussing the general principles on which the franchise should be based for referenda and elections in this country. So I shall not go down that road at all.

I take my position on the basis of first principles. This involves the same first principle from which I argued on the last group of amendments—the central principle of coherence. At present the regime is utterly incoherent. We face the prospect of a referendum which, if we make no changes in the course of these debates in Parliament, will result in citizens of three members of the European Union present in this country having the vote, and not the rest. That is a thoroughly anomalous position. One is the Republic of Ireland, which is said to be a special case because of our historical relationship. The other two are Malta and Cyprus. They are said to be a special case because they are members of the Commonwealth.

What is so special about the Commonwealth? The Commonwealth is a group of countries with which we have had a happy historical relationship and a good relationship at present; it is something of a club. But surely we have at least that degree of close intimate relations and common interest—and probably far more in the way of common interest and connections—with the other members of the European Union. It seems utterly anomalous not to extend the vote to citizens of other EU countries who happen to be resident in this country.

Perhaps I could forestall the noble Lord, Lord Green, intervening to say that other EU countries do not give our citizens resident there the vote in their referenda, by saying that—apart from the issue of the different types of referendum we have already touched on—members of the Commonwealth do not do that either. I cannot go and vote in India or Australia if I become a resident of one of those two countries—unless, of course, I take nationality of one of them, and that is a different matter altogether. There is a real anomaly here.

I gather that Fiji has just rejoined the Commonwealth. Are we seriously saying that we have closer connections with Fiji than we have with, say, France, or that we should make more favourable arrangements for Fiji’s citizens to take part in British elections than we should for people from France? What an extraordinary notion.

[Lord Green of Deddington]

The noble Lord will be aware that I have an amendment in the next group that would deal with his problem.

[Lord Davies of Stamford]

If it deals with my problem in a satisfactory way I may support it. I look forward to the noble Lord introducing it in due course.

Mozambique is also a member of the Commonwealth. Let me take that as an example. Do we have especially close relationships with the people and the state of Mozambique? Can it be said that we share the fate of Mozambique to a greater extent than that of most other countries? Do we have common interests that need to be debated and considered together? Hardly so. Is Mozambique more important to this country than, say, the Netherlands, Spain, Denmark or other friendly countries very close to our shores? It is an extraordinary insult to those countries to suggest that that might be so.

The Spanish ambassador told me the other day that there are 15 million visits by British citizens to Spain every year. Some people go more than once, of course, but that is still an extraordinary number. It shows the degree of human interchange—and of course, behind that there is a great deal of economic interchange—that we have with our fellow members of the EU. We all face similar problems and we will all be impacted by a British withdrawal from the EU, if that takes place. So there is an immense logic in extending the franchise on this occasion to EU citizens resident here. There is no logic whatever in extending that franchise to Commonwealth citizens but not to EU citizens. I repeat that in terms of reciprocity, the position is exactly the same, so that argument cannot be used. Again, we need some clear coherence here—some way of justifying the choices we make objectively. Otherwise we will lose legitimacy, and I totally agree with the noble Lord, Lord Hamilton, that we need that.

[Lord Blencathra]

It may be that 15 million people go to Spain every year but none of them gets the right to vote in its elections.

I am probably more naive than my noble friend Lord Hamilton, but maybe not quite simple. I am not suggesting this is a deliberate ploy to stack the electoral register to help the stay-in, BSE campaign. That may not be the intention but there is enormous cynicism out there in the country about politics, politicians and a fear that we will somehow, as politicians, stack things so that we stay in. That is why there is concern about whether Europe will spend money on the campaign and whether Ministers and others will use their position to campaign for an in vote?

They may not, and there are purdah rules to stop it, but the view in the country is a rather cynical one that politicians cannot be trusted to have a proper, fair electoral referendum. If there is a majority of 10 million either way it will not matter, but if the majority to stay in or to leave is 1 million or 1.5 million, and 1.5 million EU citizens have voted, it will not take much to see that the British public will say it was rigged, they “woz robbed”, and the whole election result was unfair.

I repeat, as many others have said, that no other EU country permits non-nationals to vote. The noble Lord, Lord Hannay, who is expert in these matters, tried to draw a distinction between this referendum, which could result in Britain leaving, and other national referenda on less important issues. I beg to differ on a couple of occasions. When the Danes voted against Maastricht it was a nuclear bomb under the EU at that point. The Danes were told to think again and keep voting until they came up with the result that the EU wanted. That is me being cynical on this occasion. If Denmark had not voted again—

[Lord Davies of Stamford]

Will the noble Lord address the point that I made in my intervention a moment ago? Although it is true, as he says, that no other EU country grants the right to British citizens who are resident there to vote, it is also true of Commonwealth countries. No Commonwealth country grants British citizens who are resident in their country the right to vote, so why does he justify the anomaly that we are extending under the regime that he is defending—the right to vote in this referendum to Commonwealth citizens but not to citizens of fellow EU member states?

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[Lord Green of Deddington]

Well, what the noble and learned Lord said is that it should be phased out. His view was clearly, as in the bit that I quoted, that those who are not British citizens should not continue to have the vote.

Of the three reasons, the first is the importance of the decision for Britain’s long-term future—that is obvious. Secondly, there is the issue of reciprocity, since no EU Government permits British citizens to vote in their general elections, let alone in a referendum, and no Commonwealth country, except New Zealand, permits foreign citizens to vote in referenda. Thirdly, and lastly, there is the need for clarity. This proposal would remove the anomaly that citizens in Malta and Cyprus, as has been mentioned, can vote not as EU citizens but as Commonwealth citizens. With this amendment, they would not vote as either.

There is a further anomaly in that Commonwealth citizens are able to vote very shortly after they arrive in Britain. For example, a Commonwealth student could be on the electoral register in a matter of weeks. There are no formal checks on his or her nationality, or even on his or her right to be in Britain. An electoral registration officer has the right to ask further questions if he believes that that is justified and he needs it before making a determination. However, in practice, it very seldom happens because of the risk of appearing to discriminate. So that of itself amounts to a significant loophole, which is surely unacceptable in a matter of such importance. I should mention in passing that Gibraltarians are not affected because they are British citizens under the British Nationality Act and therefore will get the vote in any case.

There has been some discussion as to whether the various groups proposed for the vote are likely to affect the outcome. As far as I know, there has not been any effective polling to tell us how these people might vote, or how many of them would do so. I suggest that that is a further reason to have the franchise on a clear and defensible criterion.

I close by pointing to the need that is bound to arise for reconciliation. As noble Lords will have noticed this evening, there are certain differences between Members of this House, and of course there are very strong differences in the public. Sadly, one side in this argument will have to face a future for this country which is deeply unwelcome to it. That makes it even more important that arrangements for this historic referendum should be above reproach, as the Minister said, in respect of the question, which I think is now settled, of the franchise, which we are debating today and involves millions of voters, and in the use of government resources, which we will discuss later in this Bill.

As the Minister said, any suspicion that the franchise has been manipulated to achieve a particular result would be deeply harmful for many years to come, as the noble Lord, Lord Blencathra, also said. That is why we need a crystal-clear principle for this franchise, and I suggest it should be the following: only British citizens, of whatever origin—it is not a question of xenophobia or racism—should decide Britain’s future. I beg to move.

[Lord Davies of Stamford]

My Lords, I concede very happily that the noble Lord has introduced an amendment, the effect of which—

[Lord Kerr of Kinlochard]

My Lords—

[Lord Davies of Stamford]

It is normally the case that we switch sides in debates here. We use alternative sides, I think.

There is no doubt that the noble Lord’s amendment restores symmetry and what I called earlier on, in a different context, coherence. He invited me in advance, in the course of the previous debate, to agree to it and to support it. I could not possibly support it. I have no idea whether the noble Lord realises this—I hope he does not realise it because he did not mention it—but his amendment would have the most perniciously destructive effect on our relations with the Republic of Ireland. It would be a breach of the arrangements we have had in place with the Republic of Ireland since 1921, since the time of the treaty, and it would be an explicit breach of the Belfast agreement, which lays down that all citizens of Northern Ireland, who are British citizens, of course, and British subjects, can enjoy full civil rights whether they declare themselves to be Irish or British. This would have a devastating effect. If the noble Lord wants to restore symmetry and coherence, he needs to do what was suggested by the noble Lord, Lord Hannay, and turn the thing around, enfranchise EU citizens who are resident in this country and put them on the same footing as citizens of Commonwealth countries.

[Lord Green of Deddington]

In that case, will the noble Lord explain why British citizens are not able to vote in a referendum in Ireland?

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[Lord Davies of Stamford]

My Lords—

[Lord Forsyth of Drumlean]

I will give way in a second but perhaps I may finish what I was saying. I would not have expected to have a say in whether the Irish should remain in the European Union. Indeed, if people like me had had a say and the vote had been narrow, I think that people would have been perfectly justified in arguing that this was a matter for the Irish people and not for citizens of other countries who happened to be resident in Ireland.

I very much look forward to the Minister’s reply because I thought that the noble Lord made a number of powerful points, not least—I could see the expressions on the faces of those on the Opposition Front Bench—in bringing to his support the very distinguished former law officer in the previous Labour Administration. We are not here to sort out the problems of the Commonwealth. I very much share my noble friend’s enthusiasm for the Commonwealth but that does not mean that members of the Commonwealth who are resident in this country should have a vote on matters that concern our internal affairs and our future as the United Kingdom.

It is very amusing to see this division of opinion between the former mandarins in the Foreign Office. I have to say to the noble Lord, Lord Kerr, that his arguments are, unusually, a little weak, whereas I felt that the noble Lord, Lord Green, made a powerful and persuasive case. I suspect that if most ordinary people in this country knew the position, they would find it deeply distressing and worrying. I give way to the noble Lord.

[Lord Davies of Stamford]

I think that the Committee will have enjoyed the spectacle of the three great Foreign Office mandarins disagreeing among themselves.

I have to say to the noble Lord that I was not stopped in mid-sentence. I had completed my last sentence and sat down, and, in consideration to the Committee at a late hour of the evening, I decided not to get up again. However, since the noble Lord insists, I repeat that the amendment of the noble Lord, Lord Green, would lead this country into a blatant breach of the Belfast agreement. That agreement laid down that all citizens of Northern Ireland had the same civil rights whether they called themselves Irish or British, or whether they were the subjects of one country or the other. The Belfast agreement did not make any provision for British subjects living in the 26 counties of the Republic of Ireland. Maybe it should have done but it did not. The fact is that proceeding with the noble Lord’s amendment would lead us to a breach of a major international agreement, with all the consequences that would flow from that.

[Lord Forsyth of Drumlean]

The noble Lord has not dealt with the fundamental point, which is that we do not have a vote in Irish referendums. I have an Irish son-in-law, and I will ask him, but I would be very surprised if people on either side of the border in Ireland lie awake at night worrying about whether or not they might have a vote on the decision that Britain has to take as to whether or not it wishes to remain part of the European Union. That is a pretty poor argument, given that we are concerned here with enabling the British people—British citizens—to decide the future of their country in a referendum in a way that is seen to be fair and equitable.