The Coalition: our programme for government

The Coalition: our programme for government 3

Freedom Fairness Responsibility 4 The Coalition: our programme for government The Coalition: our programme for government 5

CONTENTS 1. Banking ...... 9 2. Business ...... 9 3. Civil Liberties...... 11 4. Communities and Local Government ...... 11 5. Consumer Protection ...... 12 6. Crime and Policing...... 13 7. Culture, Olympics, Media and Sport...... 14 8. Defence ...... 15 9. Deficit Reduction ...... 15 10. Energy and Climate Change ...... 16 11. Environment, Food and Rural Affairs ...... 17 12. Equalities ...... 18 13. Europe ...... 19 14. Families and Children ...... 19 15. Foreign Affairs ...... 20 16. Government Transparency ...... 20 17. Immigration ...... 21 18. International Development ...... 22 19. Jobs and Welfare ...... 23 20. Justice...... 23 21. National Security...... 24 22. NHS...... 24 23. Pensions and Older People ...... 26 24. Political Reform ...... 26 25. Public Health ...... 28 26. Schools ...... 28 27. Social Action ...... 29 28. Social Care and Disability ...... 30 29. Taxation...... 30 30. Transport...... 31 31. Universities and Further Education...... 31 6 The Coalition: our programme for government The Coalition: our programme for government 7

FOREWORD By David Cameron and Nick Clegg This is an historic document in British politics: For example, we both want to build a new the first time in over half a century two parties economy from the rubble of the old. We will have come together to put forward a programme support sustainable growth and enterprise, for partnership government. balanced across all regions and all industries, and promote the green industries that are so As our parties have worked together it has essential for our future. This document shows become increasingly clear to us that, although how, with radical plans to reform our broken there are differences, there is also common banking system and new incentives for green ground. We share a conviction that the days growth. of big government are over; that centralisation and top-down control have proved a failure. We both want a Britain where social mobility We believe that the time has come to disperse is unlocked; where everyone, regardless of power more widely in Britain today; to recognise background, has the chance to rise as high as that we will only make progress if we help their talents and ambition allow them. To pave people to come together to make life better. the way, we have both agreed to sweeping In short, it is our ambition to distribute power reform of welfare, taxes and, most of all, our and opportunity to people rather than hoarding schools – with a breaking open of the state authority within government. That way, we can monopoly and extra money following the build the free, fair and responsible society we poorest pupils so that they, at last, get to go to want to see. the best schools, not the worst. We are agreed that the first duty of government We both want a Britain where our political is to safeguard our national security and support system is looked at with admiration, not our troops in Afghanistan and elsewhere – and anger. We have a shared ambition to clean up we will fulfil that duty. We are also agreed that Westminster and a determination to oversee the most urgent task facing this coalition is a radical redistribution of power away from to tackle our record debts, because without Westminster and Whitehall to councils, sound finances, none of our ambitions will be communities and homes across the nation. deliverable. Difficult decisions will have to be Wherever possible, we want people to call the taken in the months and years ahead, but we shots over the decisions that affect their lives. will ensure that fairness is at the heart of those And we are both committed to turning old decisions so that all those most in need are thinking on its head and developing new protected. Working together, we are confident approaches to government. For years, politicians that we can take the country through difficult could argue that because they held all the times to better days ahead. information, they needed more power. But today, Tackling the deficit is essential, but it is not what technological innovation has – with astonishing we came into politics to achieve. We stood speed – developed the opportunity to spread for Parliament – and for the leadership of our information and decentralise power in a way parties – with visions of a Britain better in every we have never seen before. So we will extend way. And we have found in this coalition that transparency to every area of public life. Similarly, our visions are not compromised by working there has been the assumption that central together; they are strengthened and enhanced. government can only change people’s behaviour That is why this coalition has the potential for through rules and regulations. Our government era-changing, convention-challenging, radical will be a much smarter one, shunning the reform. bureaucratic levers of the past and finding 8 The Coalition: our programme for government

intelligent ways to encourage, support and enable Three weeks ago we could never have predicted people to make better choices for themselves. the publication of this document. After the election, of course, there was the option of In every part of this agreement, we have gone minority government – but we were uninspired further than simply adopting those policies by it. Instead, there was the option of a coalition where we previously overlapped. We have in the national interest – and we seized it. found that a combination of our parties’ best When we set off on this journey we were two ideas and attitudes has produced a programme parties with some policies in common and a for government that is more radical and shared desire to work in the national interest. comprehensive than our individual manifestos. We arrive at this programme for government For example, when you take Conservative plans a strong, progressive coalition inspired by the to strengthen families and encourage social values of freedom, fairness and responsibility. responsibility, and add to them the Liberal This programme is for five years of partnership Democrat passion for protecting our civil government driven by those values. We believe liberties and stopping the relentless incursion that it can deliver radical, reforming government, of the state into the lives of individuals, you a stronger society, a smaller state, and power and create a Big Society matched by big citizens. responsibility in the hands of every citizen. Great This offers the potential to completely recast change and real progress lie ahead. the relationship between people and the state: citizens empowered; individual opportunity extended; communities coming together to make lives better. We believe that the combination of our ideas will help us to create a much stronger society: one where those who can, do; and those who cannot, we always help. David Cameron Prime Minister And in the crucial area of public service reform, we have found that Liberal Democrat and Conservative ideas are stronger combined. For example, in the NHS, take Conservative thinking on markets, choice and competition and add to it the Liberal Democrat belief in advancing democracy at a much more local level, and you Nick Clegg have a united vision for the NHS that is truly Deputy Prime Minister radical: GPs with authority over commissioning; patients with much more control; elections for your local NHS health board. Together, our ideas will bring an emphatic end to the bureaucracy, top-down control and centralisation that has so diminished our NHS. The Coalition: our programme for government 9

1. BANKING • We will reform the regulatory system to avoid a repeat of the financial crisis. We will bring In recent years, we have seen a massive financial forward proposals to give the Bank of England meltdown due to over-lending, over-borrowing control of macro-prudential regulation and and poor regulation. The Government believes oversight of micro-prudential regulation. that the current system of financial regulation is fundamentally flawed and needs to be replaced • We rule out joining or preparing to join the with a framework that promotes responsible European Single Currency for the duration of and sustainable banking, where regulators have this agreement. greater powers to curb unsustainable lending • We will work with the Bank of England to practices and we take action to promote more investigate how the process of including competition in the banking sector. In addition, we housing costs in the CPI measure of inflation recognise that much more needs to be done to can be accelerated. protect taxpayers from financial malpractice and to help the public manage their own debts. • We will create Britain’s first free national financial advice service, which will be funded • We will reform the banking system to avoid in full from a new social responsibility levy on a repeat of the financial crisis, to promote a the financial services sector. competitive economy, to sustain the recovery and to protect and sustain jobs. • We take white collar crime as seriously as other crime, so we will create a single agency • We will introduce a banking levy and seek a to take on the work of tackling serious detailed agreement on implementation. economic crime that is currently done by, • We will bring forward detailed proposals for among others, the Serious Fraud Office, robust action to tackle unacceptable bonuses Financial Services Authority and Office of Fair in the financial services sector; in developing Trading. these proposals, we will ensure they are effective in reducing risk. 2. BUSINESS • We want the banking system to serve business, not the other way round. We will The Government believes that business is the bring forward detailed proposals to foster driver of economic growth and innovation, and diversity in financial services, promote that we need to take urgent action to boost mutuals and create a more competitive enterprise, support green growth and build a banking industry. new and more responsible economic model. We want to create a fairer and more balanced • We will develop effective proposals to ensure economy, where we are not so dependent on a the flow of credit to viable SMEs. This will narrow range of economic sectors, and where include consideration of both a major loan new businesses and economic opportunities guarantee scheme and the use of net lending are more evenly shared between regions and targets for the nationalised banks. industries. • We will take steps to reduce systemic risk • We will cut red tape by introducing a ‘one-in, in the banking system and will establish an one-out’ rule whereby no new regulation is independent commission to investigate brought in without other regulation being cut the complex issue of separating retail and by a greater amount. investment banking in a sustainable way; while recognising that this will take time to get right, • We will end the culture of ‘tick-box’ the commission will be given an initial time regulation, and instead target inspections on frame of one year to report. high-risk organisations through co-regulation and improving professional standards. 10 The Coalition: our programme for government

• We will impose ‘sunset clauses’ on regulations • We will end the ban on social tenants starting and regulators to ensure that the need for businesses in their own homes. each regulation is regularly reviewed. • We will promote small business procurement, • We will review IR 35, as part of a wholesale in particular by introducing an aspiration review of all small business taxation, and that 25% of government contracts should seek to replace it with simpler measures that be awarded to small and medium-sized prevent tax avoidance but do not place undue businesses and by publishing government administrative burdens or uncertainty on tenders in full online and free of charge. the self-employed, or restrict labour market We will consider the implementation of the flexibility. • Dyson Review to make the UK the leading • We will find a practical way to make small hi-tech exporter in Europe, and refocus the business rate relief automatic. research and development tax credit on hi-tech companies, small firms and start-ups. • We will reform the corporate tax system by simplifying reliefs and allowances, and tackling • We will review the range of factors that can avoidance, in order to reduce headline rates. be considered by regulators when takeovers Our aim is to create the most competitive are proposed. corporate tax regime in the G20, while We will reinstate an Operating and Financial protecting manufacturing industries. • Review to ensure that directors’ social and • We will seek to ensure an injection of private environmental duties have to be covered in capital into Royal Mail, including opportunities company reporting, and investigate further for employee ownership. We will retain Post ways of improving corporate accountability Office Ltd in public ownership. and transparency. • We will seek to ensure a level playing field • We will ensure that Post Offices are allowed between small and large retailers by enabling to offer a wide range of services in order to councils to take competition issues into sustain the network, and we will look at the account when drawing up their local plans case for developing new sources of revenue, to shape the direction and type of new retail such as the creation of a Post Office Bank. development. • We will end the so-called ‘gold-plating’ of • We will give the public the opportunity to EU rules, so that British businesses are not challenge the worst regulations. disadvantaged relative to their European competitors. • We will review employment and workplace laws, for employers and employees, to ensure • We will support the creation of Local they maximise flexibility for both parties Enterprise Partnerships – joint local while protecting fairness and providing authority-business bodies brought forward by the competitive environment required for local authorities themselves to promote local enterprise to thrive. economic development – to replace Regional Development Agencies (RDAs). These may We will make it easier for people to set up • take the form of the existing RDAs in areas new enterprises by cutting the time it takes where they are popular. to start a new business. Our ambition is to make the UK one of the fastest countries • We will take steps to improve the in the world to start up a new business. We competitiveness of the UK tourism industry, will reduce the number of forms needed to recognising the important part it plays in our register a new business, and move towards a national economy. ‘one-click’ registration model. The Coalition: our programme for government 11

3. CIVIL LIBERTIES to be enshrined in British law, and protects and extends British liberties. We will seek to We will be strong in defence of freedom. The promote a better understanding of the true Government believes that the British state has scope of these obligations and liberties. become too authoritarian, and that over the past decade it has abused and eroded fundamental human freedoms and historic civil liberties. We 4. COMMUNITIES AND LOCAL need to restore the rights of individuals in the GOVERNMENT face of encroaching state power, in keeping with Britain’s tradition of freedom and fairness. The Government believes that it is time for a fundamental shift of power from Westminster • We will implement a full programme of to people. We will promote decentralisation and measures to reverse the substantial erosion of democratic engagement, and we will end the era civil liberties and roll back state intrusion. of top-down government by giving new powers • We will introduce a Freedom Bill. to local councils, communities, neighbourhoods and individuals. • We will scrap the ID card scheme, the National Identity register and the • We will promote the radical devolution of ContactPoint database, and halt the next power and greater financial autonomy to local generation of biometric passports. government and community groups. This will include a review of local government finance. • We will outlaw the finger-printing of children at school without parental permission. • We will rapidly abolish Regional Spatial Strategies and return decision-making powers • We will extend the scope of the Freedom on housing and planning to local councils, of Information Act to provide greater including giving councils new powers to stop transparency. ‘garden grabbing’. • We will adopt the protections of the Scottish • In the longer term, we will radically reform model for the DNA database. the planning system to give neighbourhoods • We will protect historic freedoms through far more ability to determine the shape of the the defence of trial by jury. places in which their inhabitants live, based on the principles set out in the Conservative • We will restore rights to non-violent protest. Party publication Open Source Planning. • We will review libel laws to protect freedom • We will abolish the unelected Infrastructure of speech. Planning Commission and replace it with • We will introduce safeguards against the an efficient and democratically accountable misuse of anti-terrorism legislation. system that provides a fast-track process for major infrastructure projects. • We will further regulate CCTV. • We will publish and present to Parliament • We will end the storage of internet and email a simple and consolidated national planning records without good reason. framework covering all forms of development • We will introduce a new mechanism to and setting out national economic, prevent the proliferation of unnecessary new environmental and social priorities. criminal offences. • We will maintain the Green Belt, Sites of • We will establish a Commission to investigate Special Scientific Interest (SSSIs) and other the creation of a British Bill of Rights that environmental protections, and create a new incorporates and builds on all our obligations designation – similar to SSSIs – to protect under the European Convention on Human green areas of particular importance to local Rights, ensures that these rights continue communities. 12 The Coalition: our programme for government

• We will abolish the Government Office for • We will impose tougher rules to stop unfair London and consider the case for abolishing competition by local authority newspapers. the remaining Government Offices. • We will introduce new powers to help • We will provide more protection against communities save local facilities and aggressive bailiffs and unreasonable charging services threatened with closure, and give orders, ensure that courts have the power to communities the right to bid to take over local insist that repossession is always a last resort, state-run services. and ban orders for sale on unsecured debts of We will implement the Sustainable less than £25,000. • Communities Act, so that citizens know how • We will explore a range of measures to bring taxpayers’ money is spent in their area and empty homes into use. have a greater say over how it is spent. • We will promote shared ownership schemes • We will cut local government inspection and and help social tenants and others to own or abolish the Comprehensive Area Assessment. part-own their home. • We will require continuous improvements to • We will promote ‘Home on the Farm’ the energy efficiency of new housing. schemes that encourage farmers to convert We will provide incentives for local authorities existing buildings into affordable housing. • to deliver sustainable development, including • We will create new trusts that will make it for new homes and businesses. simpler for communities to provide homes for We will review the effectiveness of the raising local people. • of the stamp duty threshold for first-time • We will phase out the ring-fencing of grants buyers. to local government and review the unfair We will give councillors the power to vote Housing Revenue Account. • on large salary packages for unelected council • We will freeze Council Tax in England for officials. at least one year, and seek to freeze it for a further year, in partnership with local authorities. 5. CONSUMER PROTECTION • We will create directly elected mayors The Government believes that action is needed in the 12 largest English cities, subject to to protect consumers, particularly the most confirmatory referendums and full scrutiny vulnerable, and to promote greater competition by elected councillors. across the economy. We need to promote more responsible corporate and consumer behaviour • We will give councils a general power of through greater transparency and by harnessing competence. the insights from behavioural economics and • We will ban the use of powers in the social psychology. Regulation of Investigatory Powers Act (RIPA) • We will give regulators new powers to define by councils, unless they are signed off by a and ban excessive interest rates on credit and magistrate and required for stopping serious store cards; and we will introduce a seven-day crime. cooling-off period for store cards. • We will allow councils to return to the • We will oblige credit card companies to committee system, should they wish to. provide better information to their customers • We will abolish the Standards Board regime. in a uniform electronic format that will allow consumers to find out whether they are • We will stop the restructuring of councils in receiving the best deal. Norfolk, Suffolk and Devon, and stop plans to force the regionalisation of the fire service. The Coalition: our programme for government 13

• We will introduce stronger consumer • We will seek to spread information on which protections, including measures to end unfair policing techniques and sentences are most bank and financial transaction charges. effective at cutting crime across the Criminal Justice System. • We will take forward measures to enhance customer service in the private and public • We will have a full review of the terms and sectors. conditions for police officer employment. • We will introduce, as a first step, an • We will introduce measures to make the Ombudsman in the Office of Fair Trading who police more accountable through oversight can proactively enforce the Grocery Supply by a directly elected individual, who will be Code of Practice and curb abuses of power, subject to strict checks and balances by locally which undermine our farmers and act against elected representatives. the long-term interest of consumers. • We will oblige the police to publish detailed • We will introduce honesty in food labelling so local crime data statistics every month, so the that consumers can be confident about where public can get proper information about crime their food comes from and its environmental in their neighbourhoods and hold the police to impact. account for their performance. • We will increase households’ control over • We will require police forces to hold regular their energy costs by ensuring that energy bills ‘beat meetings’ so that residents can hold provide information on how to move to the them to account. cheapest tariff offered by their supplier, and We will make hospitals share non-confidential how each household’s energy usage compares • information with the police so they know to similar households. where gun and knife crime is happening and • We will give Post Office Card account holders can target stop-and-search in gun and knife the chance to benefit from direct debit crime hot spots. discounts and ensure that social tariffs offer We will give people greater legal protection access to the best prices available. • to prevent crime and apprehend criminals. We will seek to extend protection and • We will ensure that people have the support to ‘off-grid’ energy consumers. • protection that they need when they defend themselves against intruders. 6. CRIME AND POLICING • We will ban the sale of alcohol below cost The Government believes that we need radical price. action to reform our criminal justice system. We • We will review alcohol taxation and pricing need police forces that have greater freedom to ensure it tackles binge drinking without from Ministerial control and are better able to unfairly penalising responsible drinkers, pubs deal with the crime and anti-social behaviour that and important local industries. blights people’s lives, but which are much more accountable to the public they serve. • We will overhaul the Licensing Act to give local authorities and the police much stronger • We will reduce time-wasting bureaucracy that powers to remove licences from, or refuse hampers police operations, and introduce to grant licences to, any premises that are better technology to make policing more causing problems. effective while saving taxpayers’ money. • We will allow councils and the police to shut • We will amend the health and safety laws that down permanently any shop or bar found to stand in the way of common sense policing. be persistently selling alcohol to children. 14 The Coalition: our programme for government

• We will double the maximum fine for • We will work with the Mayor of London to under-age alcohol sales to £20,000. ensure a safe and successful Olympic and Paralympic Games in London in 2012, and We will permit local councils to charge more • urgently form plans to deliver a genuine and for late-night licences to pay for additional lasting legacy. policing. We will examine the case for moving to a We will promote better recording of hate • • ‘gross profits tax’ system for the National crimes against disabled, homosexual and Lottery, and reform the National Lottery so transgender people, which are frequently not that more money goes into sport, the arts and centrally recorded. heritage. We will introduce a system of temporary • We will stop wasteful spending by National bans on new ‘legal highs’ while health issues • Lottery distributors by banning lobbying are considered by independent experts. We activities and restricting administration costs will not permanently ban a substance without to 5% of total income. receiving full advice from the Advisory Council on the Misuse of Drugs. • We will use cash in dormant betting accounts to improve local sports facilities and support We will review the operation of the • sports clubs. Extradition Act – and the US/UK extradition treaty – to make sure it is even-handed. • We will encourage the reform of football governance rules to support the co-operative ownership of football clubs by supporters. 7. CULTURE, OLYMPICS, MEDIA • We will support the creation of an annual AND SPORT Olympic-style schools sport event to The Government believes that a vibrant cultural, encourage competitive sport in schools, and media and sporting sector is crucial for our we will seek to protect school playing fields. well-being and quality of life. We need to We will cut red tape to encourage the promote excellence in these fields, with • performance of more live music. government funding used where appropriate to encourage philanthropic and corporate • We will introduce measures to ensure the investment. rapid roll-out of superfast broadband across the country. We will ensure that BT and other We will maintain the independence of the • infrastructure providers allow the use of their BBC, and give the National Audit Office assets to deliver such broadband, and we full access to the BBC’s accounts to ensure will seek to introduce superfast broadband transparency. in remote areas at the same time as in more • We will enable partnerships between local populated areas. If necessary, we will consider newspapers, radio and television stations to using the part of the TV licence fee that is promote a strong and diverse local media supporting the digital switchover to fund industry. broadband in areas that the market alone will not reach. • We will maintain free entry to national museums and galleries, and give national museums greater freedoms. • We will work with the Scottish Government to deliver a successful Commonwealth Games in Glasgow in 2014, and ensure that the 2013 Rugby League and the 2015 Rugby Union World Cups are successful. We will strongly support the England 2018 World Cup bid. The Coalition: our programme for government 15

8. DEFENCE • We will double the operational allowance for Armed Forces personnel serving in The Government believes that we need to take Afghanistan, and include Armed Forces pay in action to safeguard our national security at home our plans for a fair pay review. and abroad. We also recognise that we need to do much more to ensure that our Armed Forces • We will ensure that injured personnel are have the support they need, and that veterans treated in dedicated military wards. and their families are treated with the dignity • We will look at whether there is scope to that they deserve. refurbish Armed Forces’ accommodation • We will maintain Britain’s nuclear deterrent, from efficiencies within the Ministry of and have agreed that the renewal of Trident Defence. should be scrutinised to ensure value for • We will support defence jobs through exports money. Liberal Democrats will continue that are used for legitimate purposes, not to make the case for alternatives. We will internal repression, and will work for a full immediately play a strong role in the Nuclear international ban on cluster munitions. Non-Proliferation Treaty Review Conference, and press for continued progress on multilateral disarmament. 9. DEFICIT REDUCTION • We will aim to reduce Ministry of Defence The Government believes that it is the most running costs by at least 25%. vulnerable who are most at risk from the • We will work to rebuild the Military Covenant debt crisis, and that it is deeply unfair that the by: Government could have to spend more on debt interest payments than on schools. So we need – ensuring that Service personnel’s rest and immediate action to tackle the deficit in a fair and recuperation leave can be maximised; responsible way, ensure that taxpayers’ money – changing the rules so that Service personnel is spent responsibly, and get the public finances only have to register once on the Service back on track. register; • We recognise that deficit reduction, and – exploring the potential for including Service continuing to ensure economic recovery, is children as part of our proposals for a pupil the most urgent issue facing Britain. premium; • We will significantly accelerate the reduction – providing university and further education of the structural deficit over the course of a scholarships for the children of Servicemen Parliament, with the main burden of deficit and women who have been killed on active reduction borne by reduced spending rather duty since 1990; than increased taxes. – providing support for ex-Service personnel • We will introduce arrangements that will to study at university, protect those on low incomes from the effect of public sector pay constraint and other – creating a new programme, ‘Troops for spending constraints. Teachers’, to recruit ex-Service personnel into the teaching profession; • We will protect jobs by stopping the proposed jobs tax. – providing extra support for veteran mental health needs; and • We will set out a plan for deficit reduction in an emergency budget. We have created an – reviewing the rules governing the awarding independent Office for Budget Responsibility of medals. to make new forecasts of growth and borrowing for this emergency budget. 16 The Coalition: our programme for government

• We will make modest cuts of £6 billion to • We will establish a full system of feed-in tariffs non-front-line services within the financial in electricity – as well as the maintenance of year 2010/11, subject to advice from the banded Renewables Obligation Certificates. Treasury and the Bank of England on their We will introduce measures to promote a feasibility and advisability. A proportion of • huge increase in energy from waste through these savings can be used to support jobs. anaerobic digestion. We will hold a full Spending Review reporting • We will create a green investment bank. this autumn, following a fully consultative • process involving all tiers of government and • We will retain energy performance the private sector. certificates while scrapping HIPs. • We will reduce spending on the Child Trust • We will introduce measures to encourage Fund and tax credits for higher earners. marine energy. • We will create strong financial discipline at all • We will establish an emissions performance levels of government and place an obligation standard that will prevent coal-fired power on public servants to manage taxpayers’ stations being built unless they are equipped money wisely. with sufficient carbon capture and storage to meet the emissions performance standard. • We will reduce the number and cost of quangos. • We will cancel the third runway at Heathrow. • We will refuse permission for additional 10. ENERGY AND CLIMATE runways at Gatwick and Stansted. CHANGE • We will replace Air Passenger Duty with a per-flight duty. The Government believes that climate change is one of the gravest threats we face, and that • We will introduce a floor price for carbon, urgent action at home and abroad is required. and make efforts to persuade the EU to move We need to use a wide range of levers to cut towards full auctioning of ETS permits. carbon emissions, decarbonise the economy Through our ‘Green Deal’, we will encourage and support the creation of new green jobs • home energy efficiency improvements paid and technologies. We will implement a full for by savings from energy bills. We will also programme of measures to fulfil our joint take measures to improve energy efficiency in ambitions for a low carbon and eco-friendly businesses and public sector buildings. We will economy. reduce central government carbon emissions • We will push for the EU to demonstrate by 10% within 12 months. leadership in tackling international climate We will reform energy markets to deliver change, including by supporting an increase in • security of supply and investment in low the EU emission reduction target to 30% by carbon energy, and ensure fair competition 2020. including a review of the role of Ofgem. We will seek to increase the target for energy • We will instruct Ofgem to establish a security from renewable sources, subject to the advice • guarantee of energy supplies. of the Climate Change Committee. We will give an Annual Energy Statement to We will continue public sector investment in • • Parliament to set strategic energy policy and carbon capture and storage (CCS) technology guide investment. for four coal-fired power stations. We will deliver an offshore electricity grid in We will establish a smart grid and roll out • • order to support the development of a new smart meters. generation of offshore wind power. The Coalition: our programme for government 17

• We will encourage community-owned 11. ENVIRONMENT, FOOD AND renewable energy schemes where local people RURAL AFFAIRS benefit from the power produced. We will also allow communities that host renewable The Government believes that we need to energy projects to keep the additional protect the environment for future generations, business rates they generate. make our economy more environmentally sustainable, and improve our quality of life and • As part of the creation of a green investment well-being. We also believe that much more bank, we will create green financial products needs to be done to support the farming to provide individuals with opportunities to industry, protect biodiversity and encourage invest in the infrastructure needed to support sustainable food production. the new green economy. • We will introduce measures to make the • We will work towards an ambitious global import or possession of illegal timber a climate deal that will limit emissions and criminal offence. explore the creation of new international sources of funding for the purpose of climate • We will introduce measures to protect change adaptation and mitigation. wildlife and promote green spaces and wildlife corridors in order to halt the loss of habitats • Liberal Democrats have long opposed any and restore biodiversity. new nuclear construction. Conservatives, by contrast, are committed to allowing • We will launch a national tree planting the replacement of existing nuclear power campaign. stations provided that they are subject to the • We will review the governance arrangements normal planning process for major projects of National Parks in order to increase local (under a new National Planning Statement), accountability. and also provided that they receive no public subsidy. • We will work towards full compliance with European Air Quality standards. • We will implement a process allowing the Liberal Democrats to maintain their • We will take forward the findings of the Pitt opposition to nuclear power while permitting Review to improve our flood defences, and the Government to bring forward the prevent unnecessary building in areas of high National Planning Statement for ratification by flood risk. Parliament so that new nuclear construction • We will examine the conclusions of the Cave becomes possible. This process will involve: and Walker Reviews, and reform the water – the Government completing the drafting of industry to ensure more efficient use of water a national planning statement and putting it and the protection of poorer households. before Parliament; • We will work towards a ‘zero waste’ – specific agreement that a Liberal Democrat economy, encourage councils to pay people to spokesperson will speak against the recycle, and work to reduce littering. Planning Statement, but that Liberal • We will reduce the regulatory burden on Democrat MPs will abstain; and farmers by moving to a risk-based system of – clarity that this will not be regarded as an regulation, and will develop a system of extra issue of confidence. support for hill farmers. 18 The Coalition: our programme for government

• We will investigate ways to share with 12. EQUALITIES livestock keepers the responsibility for preparing for and dealing with outbreaks of The Government believes that there are disease. many barriers to social mobility and equal opportunities in Britain today, with too many • We will take forward the Marine and Coastal children held back because of their social Access Act and ensure that its conservation background, and too many people of all ages held measures are implemented effectively. back because of their gender, race, religion or • As part of a package of measures, we will sexuality. We need concerted government action introduce a carefully managed and science-led to tear down these barriers and help to build a policy of badger control in areas with high and fairer society. persistent levels of bovine tuberculosis. • We will promote equal pay and take a range • We will promote high standards of farm of measures to end discrimination in the animal welfare. We will end the testing of workplace. household products on animals and work • We will extend the right to request flexible to reduce the use of animals in scientific working to all employees, consulting with research. We will promote responsible pet business on how best to do so. ownership by introducing effective codes of practice under the Animal Welfare Act, and • We will undertake a fair pay review in the will ensure that enforcement agencies target public sector to implement our proposed irresponsible owners of dangerous dogs. ‘20 times’ pay multiple. • We will ensure that food procured by • We will look to promote gender equality on government departments, and eventually the the boards of listed companies. whole public sector, meets British standards • We will promote improved community of production wherever this can be achieved relations and opportunities for Black, Asian without increasing overall cost. and Minority Ethnic (BAME) communities, • We will investigate measures to help with fuel including by providing internships for under- costs in remote rural areas, starting with pilot represented minorities in every Whitehall schemes. department and funding a targeted national enterprise mentoring scheme for BAME • We will create a presumption in favour of people who want to start a business. sustainable development in the planning system. • We will stop the deportation of asylum seekers who have had to leave particular • We oppose the resumption of commercial countries because their sexual orientation or whaling, will press for a ban on ivory sales, and gender identification puts them at proven risk will tackle the smuggling and illegal trade on of imprisonment, torture or execution. wildlife through our new Border Police Force. • We will use our relationships with other • We will bring forward a motion on a free vote countries to push for unequivocal support for enabling the House of Commons to express gay rights and for UK civil partnerships to be its view on the repeal of the Hunting Act. recognised internationally. The Coalition: our programme for government 19

13. EUROPE • We will approach forthcoming legislation in the area of criminal justice on a case-by-case The Government believes that Britain should play basis, with a view to maximising our country’s a leading role in an enlarged European Union, but security, protecting Britain’s civil liberties that no further powers should be transferred to and preserving the integrity of our criminal Brussels without a referendum. This approach justice system. Britain will not participate strikes the right balance between constructive in the establishment of any European Public engagement with the EU to deal with the issues Prosecutor. that affect us all, and protecting our national sovereignty. • We support the further enlargement of the EU. • We will ensure that the British Government is a positive participant in the European Union, playing a strong and positive role with our 14. FAMILIES AND CHILDREN partners, with the goal of ensuring that all the nations of Europe are equipped to face The Government believes that strong and stable the challenges of the 21st century: global families of all kinds are the bedrock of a strong competitiveness, global warming and global and stable society. That is why we need to poverty. make our society more family friendly, and to take action to protect children from excessive • We will ensure that there is no further commercialisation and premature sexualisation. transfer of sovereignty or powers over the course of the next Parliament. We will • We will maintain the goal of ending child examine the balance of the EU’s existing poverty in the UK by 2020. competences and will, in particular, work to • We will reform the administration of tax limit the application of the Working Time credits to reduce fraud and overpayments. Directive in the United Kingdom. • We will bring forward plans to reduce the • We will amend the 1972 European couple penalty in the tax credit system as we Communities Act so that any proposed make savings from our welfare reform plans. future treaty that transferred areas of power, or competences, would be subject to a • We support the provision of free nursery care referendum on that treaty – a ‘referendum for pre-school children, and we want that lock’. We will amend the 1972 European support to be provided by a diverse range of Communities Act so that the use of any providers, with a greater gender balance in the passerelle would require primary legislation. early years workforce. • We will examine the case for a United • We will take Sure Start back to its original Kingdom Sovereignty Bill to make it clear that purpose of early intervention, increase its ultimate authority remains with Parliament. focus on the neediest families, and better involve organisations with a track record of • We will ensure that Britain does not join or supporting families. We will investigate ways prepare to join the Euro in this Parliament. of ensuring that providers are paid in part by • We will strongly defend the UK’s national the results they achieve. interests in the forthcoming EU budget • We will refocus funding from Sure Start negotiations and agree that the EU budget peripatetic outreach services, and from the should only focus on those areas where the Department of Health budget, to pay for EU can add value. 4,200 extra Sure Start health visitors. • We will press for the European Parliament to • We will investigate a new approach to helping have only one seat, in Brussels. families with multiple problems. 20 The Coalition: our programme for government

• We will publish serious case reviews, with • We will work to establish a new ‘special identifying details removed. relationship’ with India and seek closer engagement with China, while standing We will review the criminal records and • firm on human rights in all our bilateral vetting and barring regime and scale it back to relationships. common sense levels. We will maintain a strong, close and frank We will crack down on irresponsible • • relationship with the United States. advertising and marketing, especially to children. We will also take steps to tackle • We want to strengthen the Commonwealth the commercialisation and sexualisation of as a focus for promoting democratic values childhood. and development. • We will encourage shared parenting from the • We will work to promote stability in the earliest stages of pregnancy – including the Western Balkans. promotion of a system of flexible parental We will support concerted international leave. • efforts to prevent Iran from obtaining a • We will put funding for relationship support nuclear weapon. on a stable, long-term footing, and make sure We support reform of the UN Security that couples are given greater encouragement • Council, including permanent seats for to use existing relationship support. Japan, India, Germany, Brazil and African • We will conduct a comprehensive review representation. of family law in order to increase the use We will work to intensify our cultural, of mediation when couples do break up, • educational, commercial and diplomatic links and to look at how best to provide greater with many nations beyond Europe and North access rights to non-resident parents and America to strengthen the UK’s relations grandparents. with the fastest-growing areas of the world economy. 15. FOREIGN AFFAIRS • We will never condone the use of torture. The Government believes that Britain must always be an active member of the global community, promoting our national interests 16. GOVERNMENT while standing up for the values of freedom, TRANSPARENCY fairness and responsibility. This means working The Government believes that we need to throw as a constructive member of the United Nations, open the doors of public bodies, to enable the NATO and other multilateral organisations public to hold politicians and public bodies to including the Commonwealth; working to account. We also recognise that this will help to promote stability and security; and pushing for deliver better value for money in public spending, reform of global institutions to ensure that they and help us achieve our aim of cutting the reflect the modern world. record deficit. Setting government data free will • We will take forward our shared resolve bring significant economic benefits by enabling to safeguard the UK’s national security and businesses and non-profit organisations to build support our Armed Forces in Afghanistan and innovative applications and websites. elsewhere. • We will require public bodies to publish online • We will push for peace in the Middle East, the job titles of every member of staff and the with a secure and universally recognised salaries and expenses of senior officials paid Israel living alongside a sovereign and viable more than the lowest salary permissible in Pay Palestinian state. The Coalition: our programme for government 21

Band 1 of the Senior Civil Service pay scale, 17. IMMIGRATION and organograms that include all positions in those bodies. The Government believes that immigration has enriched our culture and strengthened our • We will require anyone paid more than the economy, but that it must be controlled so that Prime Minister in the centrally funded public people have confidence in the system. We also sector to have their salary signed off by the recognise that to ensure cohesion and protect Treasury. our public services, we need to introduce a cap • We will regulate lobbying through introducing on immigration and reduce the number of non- a statutory register of lobbyists and ensuring EU immigrants. greater transparency. • We will introduce an annual limit on the • We will also pursue a detailed agreement on number of non-EU economic migrants limiting donations and reforming party funding admitted into the UK to live and work. in order to remove big money from politics. We will consider jointly the mechanism for implementing the limit. • We will strengthen the powers of Select Committees to scrutinise major public • We will end the detention of children for appointments. immigration purposes. • We will introduce new protections for • We will create a dedicated Border Police whistleblowers in the public sector. Force, as part of a refocused Serious Organised Crime Agency, to enhance national • We will take steps to open up government security, improve immigration controls and procurement and reduce costs; and we will crack down on the trafficking of people, publish government ICT contracts online. weapons and drugs. We will work with police • We will create a level playing field for open- forces to strengthen arrangements to deal source software and will enable large ICT with serious crime and other cross-boundary projects to be split into smaller components. policing challenges, and extend collaboration between forces to deliver better value for • We will require full, online disclosure of all money. central government spending and contracts over £25,000. • We support E-borders and will reintroduce exit checks. • We will create a new ‘right to data’ so that government-held datasets can be requested • We will apply transitional controls as a matter and used by the public, and then published on of course in the future for all new EU Member a regular basis. States. • We will require all councils to publish meeting • We will introduce new measures to minimise minutes and local service and performance abuse of the immigration system, for example data. via student routes, and will tackle human trafficking as a priority. • We will require all councils to publish items of spending above £500, and to publish contracts • We will explore new ways to improve the and tender documents in full. current asylum system to speed up the processing of applications. • We will ensure that all data published by public bodies is published in an open and standardised format, so that it can be used easily and with minimal cost by third parties. 22 The Coalition: our programme for government

18. INTERNATIONAL • We will push hard in 2010 to make greater DEVELOPMENT progress in tackling maternal and infant mortality. The Government believes that even in these difficult economic times, the UK has a moral • We will work to accelerate the process of responsibility to help the poorest people in the relieving Heavily Indebted Poor Countries of world. We will honour our aid commitments, their debt. but at the same time will ensure much greater • We will support efforts to establish an transparency and scrutiny of aid spending to International Arms Trade Treaty to limit the deliver value for money for British taxpayers and sales of arms to dangerous regimes. to maximise the impact of our aid budget. • We will support pro-development trade • We will honour our commitment to spend deals, including the proposed Pan-African Free 0.7% of GNI on overseas aid from 2013, and Trade Area. to enshrine this commitment in law. • We will support innovative and effective • We will encourage other countries to fulfil smaller British non-governmental their aid commitments. organisations that are committed to tackling • We will support actions to achieve the poverty. Millennium Development Goals. In particular, • We will explore ways of helping the very we will prioritise aid spending on programmes poorest developing countries to take part in to ensure that everyone has access to clean international climate change negotiations. water, sanitation, healthcare and education; to reduce maternal and infant mortality; and to • We will ensure that UK Trade and Investment restrict the spread of major diseases like HIV/ and the Export Credits Guarantee AIDS, TB and malaria. We will recognise the Department become champions for British vital role of women in development, promote companies that develop and export innovative gender equality and focus on the rights of green technologies around the world, instead women, children and disabled people to of supporting investment in dirty fossil-fuel access services. energy production. • We will use the aid budget to support the • We will provide a more integrated approach development of local democratic institutions, to post-conflict reconstruction where the civil society groups, the media and enterprise; British military is involved – building on the and support efforts to tackle corruption. Stabilisation Unit in Whitehall and creating a new Stabilisation and Reconstruction Force to • We will introduce full transparency in aid bridge the gap between the military and the and publish details of all UK aid spending reconstruction effort. online. We will push for similarly high levels of transparency internationally. • We will review what action can be taken against ‘vulture funds’. • We will create new mechanisms to give British people a direct say in how an element of the • We will support reform of global financial aid budget is spent. institutions such as the World Bank and the International Monetary Fund in order • We will keep aid untied from commercial to increase the involvement of developing interests, and will maintain DfID as an nations. independent department focused on poverty reduction. • We will stick to the rules laid down by the OECD about what spending counts as aid. The Coalition: our programme for government 23

19. JOBS AND WELFARE • We will draw on a range of Service Academies to offer pre-employment training and work The Government believes that we need to placements for unemployed people. encourage responsibility and fairness in the welfare system. That means providing help for • We will develop local Work Clubs – places those who cannot work, training and targeted where unemployed people can gather to support for those looking for work, but exchange skills, find opportunities, make sanctions for those who turn down reasonable contacts and provide mutual support. offers of work or training. • We will investigate how to simplify the • We will end all existing welfare to work benefit system in order to improve incentives programmes and create a single welfare to to work. work programme to help all unemployed people get back into work. 20. JUSTICE • We will ensure that Jobseeker’s Allowance claimants facing the most significant barriers The Government believes that more needs to to work are referred to the new welfare be done to ensure fairness in the justice system. to work programme immediately, not after This means introducing more effective sentencing 12 months as is currently the case. We will policies, as well as overhauling the system of ensure that Jobseeker’s Allowance claimants rehabilitation to reduce reoffending and provide aged under 25 are referred to the programme greater support and protection for the victims of after a maximum of six months. crime. • We will realign contracts with welfare to • We will introduce a ‘rehabilitation revolution’ work service providers to reflect more closely that will pay independent providers to reduce the results they achieve in getting people back reoffending, paid for by the savings this new into work. approach will generate within the criminal justice system. • We will reform the funding mechanism used by government to finance welfare to work • We will conduct a full review of sentencing programmes to reflect the fact that initial policy to ensure that it is effective in investment delivers later savings through deterring crime, protecting the public, lower benefit expenditure, including creating punishing offenders and cutting reoffending. In an integrated work programme with outcome particular, we will ensure that sentencing for funding based upon the DEL/AME switch. drug use helps offenders come off drugs. • We will ensure that receipt of benefits for • We will explore alternative forms of secure, those able to work is conditional on their treatment-based accommodation for mentally willingness to work. ill and drugs offenders. • We support the National Minimum Wage • We will implement the Prisoners’ Earnings because of the protection it gives low- Act 1996 to allow deductions from the income workers and the incentives to work it earnings of prisoners in properly paid work to provides. be paid into the Victims’ Fund. • We will re-assess all current claimants of • We will consider how to use proceeds from Incapacity Benefit for their readiness to work. the Victim Surcharge to deliver up to 15 new Those assessed as fully capable for work will rape crisis centres, and give existing rape crisis be moved onto Jobseeker’s Allowance. centres stable, long-term funding. • We will support would-be entrepreneurs • We will carry out a fundamental review of through a new programme – Work for Legal Aid to make it work more efficiently. Yourself – which will give the unemployed access to business mentors and start-up loans. 24 The Coalition: our programme for government

• We will change the law so that historical 22. NHS convictions for consensual gay sex with over- 16s will be treated as spent and will not show The Government believes that the NHS is an up on criminal records checks. important expression of our national values. We are committed to an NHS that is free at the • We will extend anonymity in rape cases to point of use and available to everyone based on defendants. need, not the ability to pay. We want to free • We will introduce effective measures to tackle NHS staff from political micromanagement, anti-social behaviour and low-level crime, increase democratic participation in the NHS including forms of restorative justice such as and make the NHS more accountable to the Neighbourhood Justice Panels. patients that it serves. That way we will drive up standards, support professional responsibility, deliver better value for money and create a 21. NATIONAL SECURITY healthier nation. The Government believes that its primary • We will guarantee that health spending responsibility is to ensure national security. We increases in real terms in each year of the need a coherent approach to national security Parliament, while recognising the impact this issues across government, and we will take action decision will have on other departments. to tackle terrorism, and its causes, at home and • We will stop the top-down reorganisations abroad. of the NHS that have got in the way of • We have established a National Security patient care. We are committed to reducing Council and appointed a National Security duplication and the resources spent on Adviser. administration, and diverting these resources back to front-line care. • We have commenced a Strategic Defence and Security Review, commissioned and overseen • We will significantly cut the number of health by the National Security Council, with strong quangos. Treasury involvement. We will also develop • We will cut the cost of NHS administration and publish a new National Security Strategy. by a third and transfer resources to support • We will urgently review Control Orders, as doctors and nurses on the front line. part of a wider review of counter-terrorist • We will stop the centrally dictated closure of legislation, measures and programmes. We A&E and maternity wards, so that people have will seek to find a practical way to allow the better access to local services. use of intercept evidence in court. • We will strengthen the power of GPs as • We will deny public funds to any group that patients’ expert guides through the health has recently espoused or incited violence or system by enabling them to commission care hatred. We will proscribe such organisations, on their behalf. subject to the advice of the police and security and intelligence agencies. • We will ensure that there is a stronger voice for patients locally through directly elected • We believe that Britain should be able to individuals on the boards of their local deport foreign nationals who threaten primary care trust (PCT). The remainder our security to countries where there are of the PCT’s board will be appointed by the verifiable guarantees that they will not be relevant local authority or authorities, and tortured. We will seek to extend these the Chief Executive and principal officers will guarantees to more countries. be appointed by the Secretary of State on the advice of the new independent NHS board. This will ensure the right balance between The Coalition: our programme for government 25

locally accountable individuals and technical • We will seek to stop foreign healthcare expertise. professionals working in the NHS unless they have passed robust language and competence The local PCT will act as a champion for • tests. patients and commission those residual services that are best undertaken at a wider • Doctors and nurses need to be able to use level, rather than directly by GPs. It will also their professional judgement about what is take responsibility for improving public health right for patients and we will support this by for people in their area, working closely giving front-line staff more control of their with the local authority and other local working environment. organisations. • We will strengthen the role of the Care • If a local authority has concerns about a Quality Commission so it becomes an significant proposed closure of local services, effective quality inspectorate. We will develop for example an A&E department, it will have Monitor into an economic regulator that will the right to challenge health organisations, oversee aspects of access, competition and and refer the case to the Independent price-setting in the NHS. Reconfiguration Panel. The Panel would then We will establish an independent NHS provide advice to the Secretary of State for • board to allocate resources and provide Health. commissioning guidelines. We will give every patient the right to choose • We will enable patients to rate hospitals and to register with the GP they want, without • doctors according to the quality of care they being restricted by where they live. received, and we will require hospitals to be • We will develop a 24/7 urgent care service in open about mistakes and always tell patients if every area of England, including GP out-of- something has gone wrong. hours services, and ensure every patient can We will measure our success on the health access a local GP. We will make care more • results that really matter – such as improving accessible by introducing a single number cancer and stroke survival rates or reducing for every kind of urgent care and by using hospital infections. technology to help people communicate with their doctors. • We will publish detailed data about the performance of healthcare providers online, We will renegotiate the GP contract and • so everyone will know who is providing a incentivise ways of improving access to good service and who is falling behind. primary care in disadvantaged areas. We will put patients in charge of making We will make the NHS work better by • • decisions about their care, including control of extending best practice on improving their health records. discharge from hospital, maximising the number of day care operations, reducing • We will create a Cancer Drugs Fund to delays prior to operations, and where possible enable patients to access the cancer drugs enabling community access to care and their doctors think will help them, paid for treatments. using money saved by the NHS through our pledge to stop the rise in Employer National We will help elderly people live at home • Insurance contributions from April 2011. for longer through solutions such as home adaptations and community support • We will reform NICE and move to a system programmes. of value-based pricing, so that all patients can access the drugs and treatments their doctors We will prioritise dementia research within • think they need. the health research and development budget. 26 The Coalition: our programme for government

• We will introduce a new dentistry contract • We will phase out the default retirement age that will focus on achieving good dental health and hold a review to set the date at which the and increasing access to NHS dentistry, with state pension age starts to rise to 66, although an additional focus on the oral health of it will not be sooner than 2016 for men and schoolchildren. 2020 for women. We will end the rules requiring compulsory annuitisation at 75. • We will provide £10 million a year beyond 2011 from within the budget of the • We will implement the Parliamentary and Department of Health to support children’s Health Ombudsman’s recommendation hospices in their vital work. And so that to make fair and transparent payments to proper support for the most sick children Equitable Life policy holders, through an and adults can continue in the setting of their independent payment scheme, for their choice, we will introduce a new per-patient relative loss as a consequence of regulatory funding system for all hospices and providers failure. of palliative care. • We will explore the potential to give people • We will encourage NHS organisations to greater flexibility in accessing part of their work better with their local police forces to personal pension fund early. clamp down on anyone who is aggressive and We will protect key benefits for older people abusive to staff. • such as the winter fuel allowance, free TV • We are committed to the continuous licences, free bus travel, and free eye tests and improvement of the quality of services to prescriptions. patients, and to achieving this through much We will simplify the rules and regulations greater involvement of independent and • relating to pensions to help reinvigorate voluntary providers. occupational pensions, encouraging • We will give every patient the power companies to offer high-quality pensions to to choose any healthcare provider that all employees, and we will work with business meets NHS standards, within NHS prices. and the industry to support auto enrolment. This includes independent, voluntary and community sector providers. 24. POLITICAL REFORM The Government believes that our political 23. PENSIONS AND OLDER system is broken. We urgently need fundamental PEOPLE political reform, including a referendum on The Government believes that people deserve electoral reform, much greater co-operation dignity and respect in old age, and that they across party lines, and changes to our political should be provided with the support they system to make it far more transparent and need. That means safeguarding key benefits and accountable. pensions, and taking action to make it easier for • We will establish five-year fixed-term older people to work or volunteer. Parliaments. We will put a binding motion • We will restore the earnings link for the basic before the House of Commons stating that state pension from April 2011, with a ‘triple the next general election will be held on the guarantee’ that pensions are raised by the first Thursday of May 2015. Following this higher of earnings, prices or 2.5%. motion, we will legislate to make provision for fixed-term Parliaments of five years. This • We will commit to establishing an legislation will also provide for dissolution if independent commission to review the long- 55% or more of the House votes in favour. term affordability of public sector pensions, while protecting accrued rights. The Coalition: our programme for government 27

• We will bring forward a Referendum Bill on • We will cut the perks and bureaucracy electoral reform, which includes provision for associated with Parliament. the introduction of the Alternative Vote in the We will consult with the Independent event of a positive result in the referendum, • Parliamentary Standards Authority on how as well as for the creation of fewer and more to move away from the generous final-salary equal sized constituencies. We will whip pension system for MPs. both Parliamentary parties in both Houses to support a simple majority referendum on • We will fund 200 all-postal primaries over the Alternative Vote, without prejudice to this Parliament, targeted at seats which have the positions parties will take during such a not changed hands for many years. These referendum. funds will be allocated to all political parties with seats in Parliament that they take up, in We will bring forward early legislation to • proportion to their share of the total vote in introduce a power of recall, allowing voters the last general election. to force a by-election where an MP is found to have engaged in serious wrongdoing and • We will ensure that any petition that secures having had a petition calling for a by-election 100,000 signatures will be eligible for formal signed by 10% of his or her constituents. debate in Parliament. The petition with the most signatures will enable members of the We will establish a committee to bring • public to table a bill eligible to be voted on in forward proposals for a wholly or mainly Parliament. elected upper chamber on the basis of proportional representation. The committee • We will introduce a new ‘public reading stage’ will come forward with a draft motion by for bills to give the public an opportunity to December 2010. It is likely that this will comment on proposed legislation online, and advocate single long terms of office. It is a dedicated ‘public reading day’ within a bill’s also likely that there will be a grandfathering committee stage where those comments will system for current Peers. In the interim, be debated by the committee scrutinising Lords appointments will be made with the the bill. objective of creating a second chamber that We will improve the civil service, and make is reflective of the share of the vote secured • it easier to reward the best civil servants and by the political parties in the last general remove the least effective. election. We will reform the Civil Service We will bring forward the proposals of • • Compensation Scheme to bring it into line the Wright Committee for reform to the with practice in the private sector. House of Commons in full – starting with the proposed committee for management • We will put a limit on the number on Special of backbench business. A House Business Advisers. Committee, to consider government business, We will introduce extra support for people will be established by the third year of the • with disabilities who want to become MPs, Parliament. councillors or other elected officials. We will reduce electoral fraud by speeding • We will open up Whitehall recruitment by up the implementation of individual voter • publishing central government job vacancies registration. online. We will establish a commission to consider • We will publish details of every UK project the ‘West Lothian question’. • that receives over £25,000 of EU funds. We will prevent the possible misuse of • We will give residents the power to instigate Parliamentary privilege by MPs accused of • local referendums on any local issue. serious wrongdoing. 28 The Coalition: our programme for government

• We will stop plans to impose supplementary 25. PUBLIC HEALTH business rates on firms if a majority of the firms affected do not give their consent. The Government believes that we need action to promote public health, and encourage behaviour • We will give residents the power to veto change to help people live healthier lives. We excessive council tax increases. need an ambitious strategy to prevent ill-health • We will continue to promote peace, stability which harnesses innovative techniques to help and economic prosperity in Northern Ireland, people take responsibility for their own health. standing firmly behind the agreements • We will give local communities greater negotiated and institutions they establish. control over public health budgets with We will work to bring Northern Ireland back payment by the outcomes they achieve in into the mainstream of UK politics, including improving the health of local residents. producing a government paper examining potential mechanisms for changing the • We will give GPs greater incentives to tackle corporation tax rate in Northern Ireland. public health problems. • We will implement the proposals of the • We will investigate ways of improving access Calman Commission and introduce a to preventative healthcare for those in referendum on further Welsh devolution. disadvantaged areas to help tackle health inequalities. • We will review the control and use of accumulated and future revenues from the • We will ensure greater access to talking Fossil Fuel Levy in Scotland. therapies to reduce long-term costs for the NHS. • We recognise the concerns expressed by the Holtham Commission on the system of devolution funding. However, at this time, 26. SCHOOLS the priority must be to reduce the deficit The Government believes that we need to and therefore any change to the system reform our school system to tackle educational must await the stabilisation of the public inequality, which has widened in recent years, finances. Depending on the outcome of the and to give greater powers to parents and pupils forthcoming referendum, we will establish a to choose a good school. We want to ensure process similar to the Calman Commission high standards of discipline in the classroom, for the Welsh Assembly. We will take robust standards and the highest quality teaching. forward the Sustainable Homes Legislative We also believe that the state should help Competence Order. parents, community groups and others come • We will make the running of government together to improve the education system by more efficient by introducing enhanced starting new schools. Departmental Boards which will form • We will promote the reform of schools in collective operational leadership of order to ensure that new providers can government departments. enter the state school system in response to parental demand; that all schools have greater freedom over the curriculum; and that all schools are held properly to account. • We will fund a significant premium for disadvantaged pupils from outside the schools budget by reductions in spending elsewhere. • We will give parents, teachers, charities and local communities the chance to set up new The Coalition: our programme for government 29

schools, as part of our plans to allow new • We will keep external assessment, but will providers to enter the state school system in review how Key Stage 2 tests operate in response to parental demand. future. • We will support Teach First, create Teach • We will ensure that all new Academies follow Now to build on the Graduate Teacher an inclusive admissions policy. We will work Programme, and seek other ways to improve with faith groups to enable more faith schools the quality of the teaching profession. and facilitate inclusive admissions policies in as many of these schools as possible. • We will reform the existing rigid national pay and conditions rules to give schools greater freedoms to pay good teachers more and deal 27. SOCIAL ACTION with poor performance. The Government believes that the innovation • We will help schools tackle bullying in schools, and enthusiasm of civil society is essential especially homophobic bullying. in tackling the social, economic and political • We will simplify the regulation of standards in challenges that the UK faces today. We will education and target inspection on areas of take action to support and encourage social failure. responsibility, volunteering and philanthropy, and make it easier for people to come together to • We will give anonymity to teachers accused improve their communities and help one another. by pupils and take other measures to protect against false accusations. • We will support the creation and expansion of mutuals, co-operatives, charities and social • We will seek to attract more top science and enterprises, and enable these groups to have maths graduates to be teachers. much greater involvement in the running of • We will publish performance data on public services. educational providers, as well as past exam • We will give public sector workers a new papers. right to form employee-owned co-operatives • We will create more flexibility in the exams and bid to take over the services they deliver. systems so that state schools can offer This will empower millions of public sector qualifications like the IGCSE. workers to become their own boss and help them to deliver better services. • We will reform league tables so that schools are able to focus on, and demonstrate, the • We will train a new generation of community progress of children of all abilities. organisers and support the creation of neighbourhood groups across the UK, • We will give heads and teachers the powers especially in the most deprived areas. they need to ensure discipline in the classroom and promote good behaviour. • We will take a range of measures to encourage charitable giving and philanthropy. • We believe the most vulnerable children deserve the very highest quality of care. • We will introduce National Citizen Service. We will improve diagnostic assessment for The initial flagship project will provide a schoolchildren, prevent the unnecessary programme for 16 year olds to give them a closure of special schools, and remove the bias chance to develop the skills needed to be towards inclusion. active and responsible citizens, mix with people from different backgrounds, and start • We will improve the quality of vocational getting involved in their communities. education, including increasing flexibility for 14–19 year olds and creating new Technical • We will use funds from dormant bank Academies as part of our plans to diversify accounts to establish a ‘Big Society schools provision. Bank’, which will provide new finance for 30 The Coalition: our programme for government

neighbourhood groups, charities, social 29. TAXATION enterprises and other non-governmental bodies. The Government believes that the tax system needs to be reformed to make it more • We will take a range of measures to competitive, simpler, greener and fairer. We need encourage volunteering and involvement in to take action to ensure that the tax framework social action, including launching a national day better reflects the values of this Government. to celebrate and encourage social action, and make regular community service an element • We will increase the personal allowance of civil service staff appraisals. for income tax to help lower and middle income earners. We will announce in the first Budget a substantial increase in the 28. SOCIAL CARE AND personal allowance from April 2011, with the DISABILITY benefits focused on those with lower and middle incomes. This will be funded with the The Government believes that people needing money that would have been used to pay for care deserve to be treated with dignity and the increase in employee National Insurance respect. We understand the urgency of thresholds proposed by the Conservative reforming the system of social care to provide Party, as well as revenues from increases much more control to individuals and their in Capital Gains Tax rates for non-business carers, and to ease the cost burden that they and assets as described below. The increase in their families face. employer National Insurance thresholds • We will establish a commission on long-term proposed by the Conservatives will go ahead care, to report within a year. The commission in order to stop the planned jobs tax. will consider a range of ideas, including both • We will further increase the personal a voluntary insurance scheme to protect the allowance to £10,000, making real terms steps assets of those who go into residential care, each year towards meeting this as a longer- and a partnership scheme as proposed by term policy objective. We will prioritise Derek Wanless. this over other tax cuts, including cuts to • We will break down barriers between Inheritance Tax. health and social care funding to incentivise • We will also ensure that provision is made preventative action. for Liberal Democrat MPs to abstain on • We will extend the greater roll-out of budget resolutions to introduce transferable personal budgets to give people and their tax allowances for married couples without carers more control and purchasing power. prejudice to the coalition agreement. • We will use direct payments to carers and • We will reform the taxation of air travel by better community-based provision to improve switching from a per-passenger to a per-plane access to respite care. duty, and will ensure that a proportion of any increased revenues over time will be used to • We will reform Access to Work, so disabled help fund increases in the personal allowance. people can apply for jobs with funding already secured for any adaptations and equipment • We will seek ways of taxing non-business they will need. capital gains at rates similar or close to those applied to income, with generous exemptions for entrepreneurial business activities. • We will make every effort to tackle tax avoidance, including detailed development of Liberal Democrat proposals. The Coalition: our programme for government 31

• We will increase the proportion of tax • We will support sustainable travel initiatives, revenue accounted for by environmental including the promotion of cycling and taxes. walking, and will encourage joint working between bus operators and local authorities. • We will take measures to fulfil our EU treaty obligations in regard to the taxation of • We are committed to fair pricing for rail holiday letting that do not penalise UK-based travel. businesses. • We will work towards the introduction of • We will review the taxation of non-domiciled a new system of HGV road user charging to individuals. ensure a fairer arrangement for UK hauliers. • We will stop central government funding for 30. TRANSPORT new fixed speed cameras and switch to more effective ways of making our roads safer, The Government believes that a modern including authorising ‘drugalyser’ technology. transport infrastructure is essential for a dynamic and entrepreneurial economy, as well as to • We will tackle rogue private sector wheel improve well-being and quality of life. We need clampers. to make the transport sector greener and more sustainable, with tougher emission standards and support for new transport technologies. 31. UNIVERSITIES AND FURTHER EDUCATION • We will mandate a national recharging network for electric and plug-in hybrid The Government believes that our universities vehicles. are essential for building a strong and innovative economy. We will take action to create more • We will grant longer rail franchises in order to college and university places, as well as help give operators the incentive to invest in the to foster stronger links between universities, improvements passengers want – like better colleges and industries. services, better stations, longer trains and better rolling stock. • We will seek ways to support the creation of apprenticeships, internships, work pairings, • We will reform the way decisions are made and college and workplace training places as on which transport projects to prioritise, part of our wider programme to get Britain so that the benefits of low carbon proposals working. (including light rail schemes) are fully recognised. • We will set colleges free from direct state control and abolish many of the further • We will make Network Rail more accountable education quangos. Public funding should be to its customers. fair and follow the choices of students. • We will establish a high speed rail network as • We will await Lord Browne’s final report into part of our programme of measures to fulfil higher education funding, and will judge its our joint ambitions for creating a low carbon proposals against the need to: economy. Our vision is of a truly national high speed rail network for the whole of Britain. – increase social mobility; Given financial constraints, we will have to – take into account the impact on student achieve this in phases. debt; • We support Crossrail and further – ensure a properly funded university sector; electrification of the rail network. – improve the quality of teaching; • We will turn the rail regulator into a powerful passenger champion. – advance scholarship; and 32 The Coalition: our programme for government

– attract a higher proportion of students from disadvantaged backgrounds. • If the response of the Government to Lord Browne’s report is one that Liberal Democrats cannot accept, then arrangements will be made to enable Liberal Democrat MPs to abstain in any vote. • We will review support for part-time students in terms of loans and fees. • We will publish more information about the costs, graduate earnings and student satisfaction of different university courses. • We will ensure that public funding mechanisms for university research safeguard its academic integrity. The Coalition: our programme for government 33 34 The Coalition: our programme for government The deficit reduction programme takes precedence over any of the other measures in this agreement, and the speed of implementation of any measures that have a cost to the public finances will depend on decisions to be made in the Comprehensive Spending Review.

The Government fully supports the devolution of powers to Northern Ireland, Scotland and Wales. As a result of devolution, many decisions made by UK Ministers or in the Westminster Parliament now apply to England only. The Northern Ireland Executive, the Scottish Executive and the Welsh Assembly Government make their own policy on their devolved issues. This document therefore sets out the agreed priorities for the Coalition Government in Westminster. Cabinet Office 22 Whitehall London SW1A 2WH

Publication date: May 2010

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