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DOCUMENT
IS
THE
PROPERTY
Printed
OF
HIS
for the Cabinet.
BRITANNIC
MAJESTY'S
GOVERNMENT
October 1 9 4 7
SECRET
(SOPY
H O .
4
CM. ( 4 7 )
80th Conclusions
CABINET
CONCLUSIONS
m
(47)
of a Meeting of the Cabinet held at 1 0 Downing
on Tuesday, l&th October, 1 9 4 7 , at 3 p.m.
Street,
S.W. 1,
Present:
The R i g h t H o n . C. R . A T T L E E , M P., P r i m e M i n i s t e r (in the
Chair).
The R i g h t H o n . H E R B E R T M O R R I S O N ,
M . P . , L o r d P r e s i d e n t of t h e Council.
The R i g h t Hon. ERNEST BEVIN, M.P.,
S t a t e for F o r e i g n
s e c r e t a r y of
Affairs.
The R i g h t Hon. H U G H DALTON, M.P.,
T h e R i g h t H o n . S i r STAFFORD C R I P P S ,
K . C . , M . P . , M i n i s t e r for Economic
Chancellor of t h e E x c h e q u e r .
Affairs.
The R i g h t Hon. A . V . ALEXANDER, T h e R i g h t H o n . VISCOUNT J O W I T T ,
L o r d Chancellor.
M . P . , M i n i s t e r of Defence.
T
h
e R i g h t Hon. T H E E A R L OF L I S T O W E L , The R i g h t H o n . J . C H U T E R E D E , M . P . ,
Secretary
of S t a t e for B u r m a . Secretary of S t a t e for t h e H o m e
Department. The R i g h t H o n . P . J . N O E L - B A K E R , T h e R i g h t H o n . A . WOODBURN, M . P . , Secretary of S t a t e for Scotland. M.P., Secretary of S t a t e f o r Commonwealth Relations. T h e R i g h t H o n . G. A . I S A A C S , M . P . , T h e R i g h t H o n . A N E U R I N B E V A N , M . P . , Minister of L a b o u r a n d N a t i o n a l
M i n i s t e r of H e a l t h . Service. The R i g h t H o n . T. W I L L I A M S , M . P . ,
T h e R i g h t H o n . GEORGE TOMLINSON, Minister
of
Agriculture
and
M . P . , M i n i s t e r of E d u c a t i o n . Fisheries. The Right Hon. J . H . WILSON, M.P.,
P r e s i d e n t of t h e B o a r d of T r a d e .
T h e following were also p r e s e n t
The R i g h t H o n . A L F R E D B A R N E S , M . P . , T h e R i g h t H o n . J O H N STRACHEY, M . P . , Minister of T r a n s p o r t (Items 1 - 2 ) .
M i n i s t e r of Food (Items 1 - 2 ) . The R i g h t H o n . G. R . S T R A U S S , M . P ,
The R i g h t H o n . H . T. N . GAITSKELL, Minister of Supply (Items 1 - 2 ) .
M i n i s t e r of Fuel a n d P o w e r
(Items
1-2). The Right Hon. WILLIAM WHITELEY,
M.P.,
Parliamentary
Secretary,
Treasury.
Secretariat.
S i r N O R M A N BROOK. M r . W . S. M U R R I E . 3 4 5 2 6 - 1
C A B I N E T 80 (47) CONTENTS
Minute
No.
1
Parliament
....
....
Subject
....
A m e n d m e n t of P a r l i a m e n t
2
Parliament
....
....
....
....
....
....
Page
51
....
....
....
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53
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54
Act.
....
L e g i s l a t i v e P r o g r a m m e for t h e 1 9 4 7 - 4 8 S e s s i o n .
3
Parliament
....
....
....
....
....
K i n g ' s S p e e c h e s o n t h e P r o r o g a t i o n a n d O p e n i n g of P a r l i a m e n t .
Parliament;,,
Amendment
of P a r l i a m e n t
Act.
(Previous
Reference:
C M . (46) 9 0 t h
Conclusions,
Minute
1.)
1. The Prime Minister r e m i n d e d the Cabinet that, if legisla­
tion a m e n d i n g the P a r l i a m e n t Act, 1911, w a s to be passed in t h e
lifetime of the present P a r l i a m e n t , i t o u g h t to be i n t r o d u c e d i n
the coming Session so that, if i t w e r e rejected by the House of L o r d s ,
i t s passage i n t o l a w could be enforced u n d e r t h e e x i s t i n g provisions
of the P a r l i a m e n t A c t before t h e n e x t G e n e r a l Election. I n these
circumstances he invited t h e C a b i n e t to consider w h e t h e r the p r o ­
g r a m m e of Government legislation for the 1947-48 Session should
not include a Bill l i m i t i n g t h e power of the House of L o r d s to
p r e v e n t the passage of legislation desired by t h e H o u s e of
Commons, possibly on t h e lines proposed i n the m e m o r a n d u m
( C P . (46) 376) submitted to the Cabinet by the L o r d Chancellor
i n October 1946.
The C a b i n e t first discussed w h e t h e r i t w a s expedient t h a t such
legislation should be i n t r o d u c e d a t the p r e s e n t time. I n the D e c i a r a ­
tion of L a b o u r Policy issued-before the last G e n e r a l Election the
statement of the P a r t y ' s domestic policy h a d been prefaced by the
declaration : ' ' W e give clear notice t h a t we will not tolerate
obstruction of the p e o p l e d will by the House of L o r d s . " H a v i n g
been r e t u r n e d to power on the basis of t h a t declaration, the Govern­
ment h a d a clear r i g h t to l i m i t the powers of the House of L o r d s
if those powers were used to prevent the p a s s a g e of Government
legislation. H i t h e r t o , however, the House of L o r d s h a d not rejected
any Government Bill a n d h a d in fact passed a n u m b e r of i m p o r t a n t
socialisation measures. I t would, therefore, be a r g u e d t h a t , as the
House of L o r d s h a d not obstructed the passage of Government
legislation, the situation envisaged in the P a r t y ' s D e c l a r a t i o n of
Policy h a d not i n fact arisen a n d the Government h a d no m a n d a t e from
the electorate to introduce legislation a m e n d i n g the P a r l i a m e n t A c t .
There m i g h t be a demand t h a t t h i s issue should be specifically r e f e r r e d
to the electorate, a n d m o d e r a t e opinion t h r o u g h o u t the country m i g h t
be alienated. Moreover, i t should not be assumed t h a t the H o u s e of
L o r d s would necessarily become more inclined to obstruct Govern­
ment legislation i n the r e m a i n i n g Sessions of this P a r l i a m e n t t h a n
they h a d been in the first two Sessions. T h e r e were some g r o u n d s
for believing t h a t the H o u s e of L o r d s w e r e apprehensive of the
political consequences of exercising t h e i r powers u n d e r the P a r ­
liament A c t ; a n d it was a r g u a b l e t h a t on t h i s account they would
r e f r a i n from r e j e c t i n g even a Bill for the socialisation of the i r o n
a n d steel i n d u s t r y , especially if the Bill reached t h e m t o w a r d s the
end of t h e life of the p r e s e n t P a r l i a m e n t . A few M i n i s t e r s felt
t h a t i n these circumstances it m i g h t be bad political tactics for the
Government to introduce a t this stage, w i t h o u t any provocation from
the House of Lords, legislation l i m i t i n g t h e powers of the H o u s e of
L o r d s to delay the passage of Government legislation.
On the other side i t w a s a r g u e d t h a t because the House of L o r d s
h a d r e f r a i n e d from o b s t r u c t i n g Government legislation i n the first
two Sessions of this P a r l i a m e n t i t could n o t be assumed t h a t they
would be equally reasonable t h r o u g h o u t the r e m a i n i n g Sessions.
H i t h e r t o , they h a d acted i n the knowledge t h a t the Government h a d
power to enforce the passage of legislation a m e n d i n g the P a r l i a ­
xnent Act. If such legislation w e r e not i n t r o d u c e d i n the coming
session, the House of L o r d s could prevent its becoming l a w before
the next G e n e r a l E l e c t i o n ; and, once the t h r e a t of such legislation
h a d been removed, there m i g h t be a change i n the a t t i t u d e of the
House of L o r d s t o w a r d s Government legislation. A c c o u n t m u s t
also be t a k e n of the s t r e n g t h of the political feeling w h i c h would
be aroused by the I r o n a n d Steel Bill. T h i s wduldx cause f a r more
controversy t h a n the earlier socialisation measures which h a d been
accepted by the House of L o r d s ; a n d a n u m b e r of P e e r s who did
not normally a t t e n d the s i t t i n g s of the House of L o r d s m i g h t be p r o ­
voked to a t t e n d a n d vote for the rejection of the Bill. If t h a t
situation arose it w a s unlikely t h a t the more m o d e r a t e counsels of
the L e a d e r s of the Opposition P a r t i e s in the H o u s e of L o r d s would
prevail.
T h e following a r g u m e n t s were also p u t f o r w a r d i n -favour of
early legislation a m e n d i n g the P a r l i a m e n t A c t : —
..
;
(a) F a i l u r e to i n t r o d u c e t h i s legislation would reduce the
G o v e r n m e n t s prospects of e n a c t i n g a n I r o n a n d Steel Bill in the
present P a r l i a m e n t . I f T h e K i n g ' s Speech contained no reference
to the a m e n d m e n t of the P a r l i a m e n t Act, some of the G o v e r n m e n t s
s u p p o r t e r s would infer t h a t the Government h a d abandoned the idea
of e n a c t i n g f u r t h e r measures of socialisation in this Parliament';
a n d t h i s w a s likely to cause c o n t i n u i n g difficulties w i t h Government
s u p p o r t e r s i n the House of Commons. On the other hand, a decision
to proceed w i t h legislation a m e n d i n g the P a r l i a m e n t A c t would
offset the d i s a p p o i n t m e n t w h i c h would be felt by many Government
s u p p o r t e r s a t the decision to postpone the I r o n a n d Steel Bill until
a later Session of this P a r l i a m e n t .
(b) I f the Government i n t e n d e d to i n t r o d u c e this legislation,
i t w a s p r e f e r a b l e t h a t they should do so now when none of the
by-elections held since the l a s t General Election h a d gone against
them.
(c) I t w a s also a r g u a b l e t h a t i t would be preferable to take this
step before a n y controversy h a d arisen between the two Houses of
P a r l i a m e n t . T h e issues could then be discussed on their merits, and
would n o t be clouded by political bitterness over some other issue
such as the n a t i o n a l i s a t i o n of i r o n a n d steel.
T h e C a b i n e t s conclusion w a s t h a t the balance of the arguments
lay on t h e side of i n t r o d u c i n g legislation i n the coming Session to
l i m i t the power of the House of L o r d s to delay the passage of
Government legislation.
T h e Cabinet next considered the form w h i c h this legislation
should t a k e . T h e P a r l i a m e n t Act, 1911, provided that a Bill passed
by the H o u s e of Commons in three successive Sessions w i t h i n a period
of two y e a r s should become law, n o t w i t h s t a n d i n g its rejection by
the H o u s e of L o r d s . T h e proposal made by the L o r d Chancellor
i n October 1946 ( C P . (46) 376) h a d been t h a t t h i s period during
which t h e H o u s e of L o r d s could delay the passage of Government
legislation should be reduced to t w o successive Sessions w i t h i n a
period of one year. T h i s change could be m a d e by a simple amending
Bill. I t w a s , however, a r g u e d t h a t such a Bill might be open to
two objections.
F i r s t , the Government m i g h t find difficulty in
d e f e n d i n g such a measure : for, on the one h a n d , it could not be
r e p r e s e n t e d as a n emergency Bill to overcome House of Lords
obstruction of the G o v e r n m e n t s legislative programme, a s no such
obstruction h a d yet been offered; and, on t h e other hand, the Govern­
ment w o u l d not wish to r e p r e s e n t i t as their final contribution
t o w a r d s t h e problem of r e f o r m i n g t h e H o u s e of Lords. Secondly,
i t w a s suggested t h a t a measure which merely limited the length
of time for w h i c h the H o u s e of L o r d s could delay the passage of
G o v e r n m e n t legislation would t e n d to confirm the r i g h t of the House
of L o r d s to i n t e r f e r e w i t h such legislation a n d m i g h t even strengthen
t h e i r position. Some M i n i s t e r s felt that, a s the effective government
of the c o u n t r y h a d for m a n y years been m a i n t a i n e d i n a single
Chamber, i t would be a m i s t a k e to promote legislation affirming
the p r i n c i p l e of a bi-cameral legislature. O t h e r M i n i s t e r s con­
sidered t h a t the House of L o r d s performed a useful function in
revising legislation passed by the House of Commons a n d that, if
i t w a s to continue to exercise t h a t function, i t must be allowed
reasonable time for the s c r u t i n y of legislation. T h a t being so, the
r i g h t course would be to reduce the p e r i o d w i t h i n which i t was
r e q u i r e d to dispose of legislation passed by the House of Commons.
T h a t p e r i o d m i g h t , however, be less t h a n t h a t suggested by the Lord
Chancellor in C P . (46) 376. T h u s , the Bill m i g h t provide that
legislation b r o u g h t u p from the H o u s e of Commons should be passed
by the H o u s e of L o r d s w i t h i n six months or by the end of t h e current
Session whichever w a s the shorter period. Alternatively, it might
provide merely t h a t legislation passed by the Commons should be
passed by the L o r d s i n the same Session, provided t h a t i t reached
the L o r d s w i t h i n a reasonable period before the end of t h e Session.
5 3
CM.
so (my
L e g i s l a t i o n on these lines could be justified, not on t h e basis of
c u t t i n g down t h e r i g h t s a n d privileges of the H o u s e of L o r d s , but
on the ground t h a t for the efficient conduct of its business a Govern­
m e n t must be assured t h a t i t s legislative p r o g r a m m e for a given
Session could be passed i n t o law w i t h i n t h a t Session.
T h e Cabinet reached no final conclusion on the precise form
of the legislation to be i n t r o d u c e d t o a m e n d the P a r l i a m e n t A c t ,
1911, a n d agreed t h a t this question should be f u r t h e r considered by
the Machinery of Government Committee.
The C a b i n e t ­
(1) Agreed t h a t legislation a m e n d i n g the P a r l i a m e n t Act, 1911,
should be introduced i n the coming Session;
(2) I n v i t e d the M a c h i n e r y of Government C o m m i t t e e to con­
sider a n d r e p o r t to t h e C a b i n e t w h a t form this legisla­
tion should take.
Parliament.
Legislative
Programme
for
the
1947-48
Session.
(Previous
Reference:
C.M.(47)47th
Conclusions,
Minute.
4.)
2. The Cabinet considered a. m e m o r a n d u m by the L o r d P r e s i ­
d e n t ( C P . (47) 281) s u b m i t t i n g for t h e i r a p p r o v a l a final P r o g r a m m e
of Government L e g i s l a t i o n for t h e 1947-48 Session.
The Lord President said that, w h e n allowance w a s m a d e for a n
a u t u m n B u d g e t a n d other essential business, the P r o g r a m m e set out
i n the A n n e x to C P . (47) 281 would occupy almost t h e whole of
t h e time available for legislation in the coming Session. I n a d d i ­
tion, time must be found for the Bill a m e n d i n g the P a r l i a m e n t Act,
w h i c h the Cabinet h a d now decided to include i n the P r o g r a m m e
(see M i n u t e 1 above), a n d for the Bills now unforeseen which would
inevitably be found to be r e q u i r e d in the course of the Session. T h e
1946-47 P r o g r a m m e h a d imposed a very heavy s t r a i n both on
M i n i s t e r s a n d on P a r l i a m e n t , a n d a t their m e e t i n g on 20th M a r c h
( C M . (47) 30th Conclusions, M i n u t e 4) the Cabinet h a d agreed t h a t
the 1947-48 P r o g r a m m e should be lightened. No f u r t h e r a d d i t i o n s
to the P r o g r a m m e i n C P . (47) 2 8 1 could therefore be m a d e w i t h o u t
some compensating omissions from it.
The following points were m a d e in discussion :—
(a) The Prime Minister
i n v i t e d the Cabinet to endorse the
recommendation of the F u t u r e L e g i s l a t i o n Committee t h a t a G a s
Bill should be included in the P r o g r a m m e and t h a t the I r o n a n d
Steel Bill should be postponed to a l a t e r Session.
The Minister of Health s a i d t h a t , i n view of t h e decision to
introduce in the coming Session legislation to a m e n d the P a r l i a ­
m e n t Act, he would not press for the inclusion of the I r o n a n d Steel
Bill in t h i s P r o g r a m m e .
The Minister of Supply asked t h a t a n a u t h o r i t a t i v e s t a t e m e n t
should be made a t an early stage, preferably by t h e P r i m e M i n i s t e r
i n the Debate on the A d d r e s s , e x p l a i n i n g why t h e Bill was being
postponed and p r o m i s i n g t h a t i t would be i n t r o d u c e d i n the 1948-49
Session. I t would also be convenient if he could communicate t h e
C a b i n e t ' s decision in advance to representatives of the two sides of
the industry.
The Prime Minister
said t h a t some such s t a t e m e n t would be
m a d e in the course of the Debate on the A d d r e s s . N o communica­
tion could, however, be made to the i n d u s t r y i n advance of T h e
K i n g ' s Speech.
(b) The Lord President suggested t h a t the R e s t r i c t i v e P r a c t i c e s
Bill should for the p r e s e n t be placed among those to be passed i n
the 1947-48 Session if time p e r m i t t e d .
The President
of the Board of Trade said t h a t , while he h a d
hoped t h a t the Bill would secure a definite place i n the 1947-48
P r o g r a m m e , he would not oppose t h i s proposal.
(c) The Lord President
p o i n t e d out t h a t i n p r e s e n t cireum­
stances little o r n o effective w o r k could be c a r r i e d out under the
powers to be conferred by t h e M o t o r w a y s Bill a n d the Milk
(Special D e s i g n a t i o n s ) Bill. H e therefore proposed t h a t these Bills
should be o m i t t e d altogether from t h e P r o g r a m m e .
The Minister of-Food s a i d t h a t , while he would n o t press for
the inclusion of a M i l k (Special Designations) Bill i n the P r o ­
g r a m m e , h e hoped t h a t he m i g h t have the d r a f t Bill p r i n t e d and
published.
of Labour suggested t h a t t h e T r a i n i n g and
(d) The Minister
E m p l o y m e n t Bill, w h i c h w a s a t p r e s e n t included among those Bills
to be i n t r o d u c e d if time p e r m i t t e d , should be given a. definite place
in t h e P r o g r a m m e , on the u n d e r s t a n d i n g t h a t t h e Factories Bill
would be postponed to a later Session.
(e) The Lord Chancellor said t h a t h e hoped t h a t a definite
place would be found for t h e L e g a l A i d Bill i n the Programme.
H e h a d been strongly pressed i n t h e House of L o r d s to implement
the recommendations of the Rusheliffe R e p o r t , the existence of which
m e a n t t h a t the p r e s e n t i n a d e q u a t e system of legal a i d w a s becoming­
even less effective, since the v o l u n t a r y effort on which i t depended
w a s no longer forthcoming to t h e same extent. T h e principles of
the Bill h a d been a p p r o v e d by h i s colleagues a n d were supported
by t h e legal profession a n d by the Opposition.
The Lord President
pointed out t h a t if this Bill w a s given a
definite place i n t h e P r o g r a m m e i t could only be a t the cost of
excluding some other measure.
The C a b i n e t ­
(1) A g r e e d t h a t t h e G a s Bill a n d a Bill to amend the P a r l i a ­
ment A c t should be included among t h e major Bills to
be passed i n the 1947-48 Session;
(2) Took note t h a t t h e P r i m e M i n i s t e r would consider, in con­
s u l t a t i o n w i t h the L o r d P r e s i d e n t a n d the Minister of
S u p p l y t h e form a n d t i m i n g of a s t a t e m e n t about the
p o s t p o n e m e n t of legislation to b r i n g t h e iron and steel
i n d u s t r y u n d e r public o w n e r s h i p ;
(3) A g r e e d t h a t t h e R e s t r i c t i v e P r a c t i c e s Bill and the Legal
A i d Bill should remain a m o n g those which might be
i n t r o d u c e d if time p e r m i t t e d ;
(4) I n v i t e d the M i n i s t e r of L a b o u r to discuss with the Lord
P r e s i d e n t w h e t h e r t h e T r a i n i n g a n d Employment Bill
m i g h t be included a m o n g the medium-sized Bills to be
passed i n the 1947-48 Session if the F a c t o r i e s Bill were
postponed to a later Session;
(5) I n v i t e d the M i n i s t e r of Food to raise w i t h the Legislation
Committee the question w h e t h e r the Milk (Special
D e s i g n a t i o n s ) Bill could be p r i n t e d a n d published, not­
w i t h s t a n d i n g t h a t i t w a s n o t intended to proceed with it
d u r i n g the 1947-48 Session.
(6) Subject to (1) a n d (4) above, approved G r o u p s I to V I
of t h e A n n e x to O P . (47) 281 as the Legislative P r o ­
g r a m m e for the 1947-48 Session, a n d invited the Legis­
i a t i o n Committee to keep t h e P r o g r a m m e u n d e r review.
Parliament.
King's
Speeches
the
on
Proroga­
tion and
O p e n i n g of
Parliament.
(Previous
Reference:
C M . (46) 9 0 t h
Conclusions,
M i n u t e 2.)
3. T h e Cabinet h a d before t h e m a note by the L o r d President
( C P . (47) 282) covering d r a f t s of T h e K i n g ' s Speeches on the
Prorogation a n d O p e n i n g of P a r l i a m e n t p r e p a r e d by a Committee
of M i n i s t e r s u n d e r h i s C h a i r m a n s h i p .
T h e following p o i n t s were m a d e i n discussion :—
(a) References to A u s t r i a should be included i n p a r a g r a p h 6
of t h e P r o r o g a t i o n Speech a n d p a r a g r a p h 9 of the O p e n i n g Speech.
(b) A n expression of r e g r e t for the disorders in I n d i a and
P a k i s t a n should be included i n p a r a g r a p h 12 of the Prorogation
Speech.
(c) T h e reference to events i n B u r m a i n p a r a g r a p h 13 of the
P r o r o g a t i o n Speech should be omitted.
C M .
80
(IF);
id) P a r a g r a p h s 26 a n d 27 of the P r o r o g a t i o n Speech should b e
recast i n t o a single p a r a g r a p h covering both Scotland a n d W a l e s .
(e) A p a r a g r a p h d e a l i n g w i t h housing should be a d d e d t o the
P r o r o g a t i o n Speech.
(/) T h e O p e n i n g Speech should s t a t e t h a t legislation would be
introduced t o a m e n d the P a r l i a m e n t Act.
(g) There should be a reference i n the O p e n i n g Speech t o the
i n t e n t i o n t o introduce a L a w R e f o r m (Personal I n j u r i e s ) Bill, b u t
no mention should be made of t h e L e g a l A i d Bills.
I n a d d i t i o n , various a m e n d m e n t s of d r a f t i n g were a p p r o v e d .
The Cabinet—
(1) I n v i t e d the L o r d P r e s i d e n t , the M i n i s t e r for Economic
Affairs, the M i n i s t e r of H e a l t h a n d the S e c r e t a r y of
S t a t e for Scotland t o settle the t e r m s of the reference
t o be m a d e to h o u s i n g i n the P r o r o g a t i o n Speech;
(2) Subject to (1) a n d t o t h e a m e n d m e n t s a g r e e d upon i n the
discussion, a p p r o v e d the d r a f t Speeches a n n e x e d t o
C P . (47) 282.
Cabinet Office, S.W. t,
Uth October, 1947.