Scrutinising Statutory Instruments: Departmental Returns, 2007
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House of Lords House of Commons Joint Committee on Statutory Instruments Scrutinising Statutory Instruments: Departmental Returns, 2007 Second Special Report of 2007–08 Report, together with formal minutes and appendices Ordered by The House of Lords to be printed 2 July 2008 Ordered by The House of Commons to be printed 2 July 2008 HL Paper 139 HC 915 Published on 10 July 2008 by authority of the House of Lords and the House of Commons London: The Stationery Office Limited £0.00 Joint Committee on Statutory Instruments The Joint Committee on Statutory Instruments (JCSI) is appointed to consider statutory instruments made in exercise of powers granted by Act of Parliament. Instruments not laid before Parliament are included within the Committee's remit; but local instruments are not considered by JCSI unless they are subject to parliamentary procedure and instruments made by devolved administrations are not to be considered by JCSI unless they are required to be laid before Parliament. The Joint Committee is empowered to draw the special attention of both Houses to an instrument on any one of a number of grounds specified in the Standing Orders under which it works; or on any other ground which does not impinge upon the merits of the instrument or the policy behind it. Current membership House of Lords Lord Brett (Labour) Lord Campbell of Alloway (Conservative) Lord Dykes (Liberal Democrat) Baroness Jones of Whitchurch (Labour) Lord Kimball (Conservative) Countess of Mar (Crossbench) Lord Walpole (Crossbench) House of Commons David Maclean MP (Conservative, Penrith and The Border) (Chairman) Dr Roberta Blackman-Woods MP (Labour, City of Durham) Mr Peter Bone MP (Conservative, Wellingborough) Michael Jabez Foster MP (Labour, Hastings and Rye) Mr David Kidney MP (Labour, Stafford) Mr John MacDougall MP (Labour, Central Fife) David Simpson MP (Democratic Unionist, Upper Bann) Powers The full constitution and powers of the Committee are set out in House of Commons Standing Order No. 151 and House of Lords Standing Order No. 74, available on the Internet via www.parliament.uk. Publications The reports of the Committee are published by The Stationery Office by Order of both Houses. All publications of the Committee are available on the Internet from www.parliament.uk. Committee staff The current staff of the Committee are John Whatley (Commons Clerk), Kath Kavanagh (Lords Clerk), and Jacqueline Cooksey (Committee Assistant). Advisory Counsel: Peter Davis, Peter Brooksbank and Christine Cogger (Commons) and Allan Roberts and Peter Milledge (Lords). Contacts All correspondence should be addressed to the Clerk of the Joint Committee on Statutory Instruments, Delegated Legislation Office, 7 Millbank, London SW1P 3JA. The telephone number for general inquiries is: 020 7219 2830; the Committee's e–mail address is: [email protected]. Scrutinising Statutory Instruments: Departmental Returns, 2007 1 Contents Report Page Departmental Returns, 2007 3 The work of the Joint Committee on Statutory Instruments 3 Monitoring Departments’ progress 6 Analysis of returns for instruments reported in 2007 8 Analysis of returns for instruments reported in 2006 and earlier 9 Previously highlighted Instruments on which action remains outstanding 9 Matters to which the particular attention of Departments is drawn 10 The progress of Affirmative Instruments and ensuing Debates 10 Supply of Affirmative Instruments to the Committees 11 Orders in Council 12 Actions outstanding on which the Department and Committee are not in agreement 12 Government Response to the Annual Report 13 Annex 1: Extract from request sent to Departments in 2008 14 Annex 2: Analysis of Departmental Returns 16 Table 1: Analysis of returns for instruments reported in 2007 16 Table 2: Analysis of returns for instruments reported in 2006 or earlier 16 Table 3: Analysis by Department of returns for instruments reported in 2007 17 Table 4: Analysis by Department of returns for instruments reported in 2006 and earlier 17 Table 5: Analysis by Department of all instruments with actions outstanding at 1 April 2008 18 Annex 3: Instruments reported and memoranda published 19 Annex 4: Departmental Returns 25 List of Tables 26 Appendix A 97 Letter from the Under Secretary of State for Work and Pensions 97 to the Chairman 97 Appendix B 98 Letter from the Chairman to the Under Secretary of State for Work and Pensions – Lord McKenzie of Luton 98 Formal Minutes 99 Scrutinising Statutory Instruments: Departmental Returns, 2007 3 Departmental Returns, 2007 The work of the Joint Committee on Statutory Instruments 1. Our role is to examine the technical qualities of almost every general statutory instrument and those local ones that involve some parliamentary control.1 Some of the instruments we consider are not statutory instruments (for instance, some Codes of Practice) which fall within our remit because they attract the affirmative procedure. We do not assess the merits of any instrument or the underlying policy. During the calendar year 2007, we scrutinised 1,473 statutory instruments and found cause to draw the special attention of each House to 70 instruments (marginally less than 5% of the total scrutinised) on one or more of the following grounds in accordance with our terms of reference: i) that it imposes, or sets the amount of, a charge on public revenue or that it requires payment for a licence, consent or service to be made to the Exchequer, a government department or a public or local authority, or sets the amount of the payment; ii) that its parent legislation says that it cannot be challenged in the courts; iii) that it appears to have retrospective effect without the express authority of the parent legislation; iv) that there appears to have been unjustifiable delay in publishing it or laying it before Parliament; v) that there appears to have been unjustifiable delay in sending a notification under the proviso to section 4(1) of the Statutory Instruments Act 1946, where the instrument has come into force before it has been laid; vi) that there appears to be doubt about whether there is power to make it or that it appears to make an unusual or unexpected use of the power to make it; vii) that its form or meaning needs to be explained; viii) that its drafting appears to be defective; ix) any other ground which does not go to its merits or the policy behind it. 1 A substantial proportion of delegated legislation (for example, local instruments, such as those that relate to temporary road closures, which have only to be published to become law) receives no parliamentary scrutiny. Some instruments are not formally laid before Parliament nor subject to any parliamentary proceedings although they may be scrutinised by the JCSI. An instrument subject to the negative procedure becomes law on the date stated on it but will be annulled if either House (or the Commons only, in the case of instruments dealing with financial matters) passes a motion calling for its annulment within a certain time (usually 40 days). An instrument that is subject to the affirmative procedure must receive Parliament's approval either before it can come into force or to remain in force. Most instruments subject to the affirmative procedure are laid in the form of a draft. The form of parliamentary procedure is usually set out in the parent Act. The procedure for the laying of a statutory instrument is set out in House of Commons Standing Order 159. In short, for an SI to be laid before the House of Commons a copy of the instrument must be ‘laid on the table of the House’, which actually means placing a copy of the Instrument with the Votes and Proceedings Office (part of the Journal Office). Most S.I.s are laid in both Houses and a similar procedure applies in the House of Lords. See also the House of Commons Library Factsheet L7. 4 Joint Committee on Statutory Instruments Breakdown of Grounds for Reporting Instruments in 2007 Unusual or Delay unexpected use of 6% powers Other 10% 3% Elucidation required 3% Dubious vires 3% Defective drafting Failure to observe 62% proper practice (other drafting and similar errors) 13% 2. We concluded that there was no need to draw any of the remaining 1,403 instruments (marginally more than 95% of the total) to the special attention of each House.2 However, cases of obvious minor errors which could be amended by correction slip, were dealt with by letter from Counsel.3 Total Number of Instruments Scrutinised by the Joint Committee in 2007 (1,473) Reported instruments, 5% Unreported instruments dealt with by letter from Counsel (approx) Unreported instruments, 95% 2 Statistics on the number of instruments made during a calendar year can be found at: http://www.opsi.gov.uk/si- statistics.htm. 3 Slightly over double the number of instruments reported. Scrutinising Statutory Instruments: Departmental Returns, 2007 5 3. Our membership is drawn from both Houses of Parliament. We usually meet weekly whenever Parliament is sitting to consider a batch of recent instruments and draft instruments. Our assessments on individual instruments and drafts are published in our weekly reports. We identify any instrument or draft that appears to come within any of the grounds set out above and explain why have reached this conclusion. We include a memorandum supplied by the relevant Department in response to our question(s). We also list (generally) without comment all other instruments we have examined. Occasionally, we publish for interest a memorandum from the relevant Department on an instrument we have examined. Our weekly report is posted on our website4 usually within five or six days of each Committee meeting. Our reports, which identify the defects that attract the attention of the Committee, should be considered essential reading by anyone involved in drafting statutory instruments.