Editing Legislative consent motion

{{Short description|Consent to UK law affecting devolved matter}}
{{Use dmy dates|date=November 2016}}
{{Use British English|date=November 2016}}
{{Politics of United Kingdom}}
{{PoliticsScotland}}
{{Politics of Wales}}
{{Politics of Northern Ireland}}
A '''legislative consent motion''' ('''LCM''', also known as a '''Sewel motion''' in Scotland) is a [[Motion (parliamentary procedure)|motion]] passed by either the [[Scottish Parliament]], [[Senedd]], or [[Northern Ireland Assembly]], in which it consents that the [[Parliament of the United Kingdom]] may (or may not) pass [[legislation]] on a [[devolution in the United Kingdom|devolved issue]] over which the devolved government has regular legislative authority.<ref>{{cite web |title=Legislative Consent Motions |url=https://senedd.wales/en/bus-home/research/bus-assembly-publications-monitoring-services/bus-lcm_monitor/Pages/bus-lcm_monitor.aspx |website=Senedd Cymru / Welsh Parliament |access-date=2 October 2020}}</ref>

{{As of|February 2022}}, the three devolved governments have refused or partially refused legislative consent motions on 20 occasions. However, even if consent is refused, the Parliament of the United Kingdom may still pass legislation on the devolved issue in question under the doctrine of [[parliamentary sovereignty]] and the understanding that the United Kingdom is a [[unitary state]].<ref name="ifg2022">{{cite web | title = Explainer: Sewel convention | website = The Institute for Government | first1 = Akash | last1 = Paun | first2 = Jess | last2 = Sargeant | first3 = Elspeth | last3 = Nicholson | first4 = Lucy | last4 = Rycroft | date = 2022 | url = https://www.instituteforgovernment.org.uk/explainers/sewel-convention | access-date = 10 July 2022}}</ref>

==Background==
The [[Scotland Act 1998]] devolved many issues relating to legislation for Scotland to the Scottish Parliament.  The [[Parliament of the United Kingdom|UK Parliament]] maintains [[parliamentary sovereignty]] and may legislate on any issue, with or without the permission of the devolved assemblies and parliaments.

The motions were named after [[John Sewel, Baron Sewel|Lord Sewel]], then Parliamentary [[Under-Secretary of State for Scotland]] who announced the policy in the [[House of Lords]] during the passage of the Scotland Act 1998. Noting that the Act recognised the parliamentary sovereignty of the British Parliament, he said that HM Government "would expect a convention to be established that Westminster would not normally legislate with regard to devolved matters in Scotland without the consent of the Scottish Parliament".

The devolved governments have no formal say in how the British Parliament legislates on [[reserved and excepted matters|reserved matters]].

==Use and application==
There are two uses for a legislative consent motion, taking Scotland as the example:

# When the UK Parliament is considering legislation extending only (or having provisions extending only) to [[England and Wales]], and the Scottish Parliament, being in agreement with those provisions, wishes for the UK Parliament to extend them to Scotland.  This saves the need for separate, similar legislation to be passed by the Scottish Parliament.
# When Westminster is considering legislation applying to Scotland but which relates to both devolved and reserved matters, where it would otherwise be necessary for the Scottish Parliament to legislate to complete the jigsaw.

As well as legislation about devolved matters, the convention extends to cases where UK bills give executive powers to Scottish Ministers, including in reserved areas, or which seek to change the boundary between reserved and devolved matters.

Guidance on the use of legislative consent motions for [[Whitehall]] departments is set out in ''Devolution Guidance Note 10''.

Chapter 9B of the Scottish Parliament's Standing Orders specify the procedure for considering Sewel motions.

==Legal status==

The convention under which the UK government uses legislative consent motions is not legally binding. It was originally contained in a "memorandum of understanding" between the UK government and the devolved administrations.<ref name="MOU2013">{{cite web|title=Memorandum of Understanding and Supplementary Agreements Between the United Kingdom Government, the Scottish Ministers, the Welsh Ministers, and the Northern Ireland Executive Committee|url=https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/316157/MoU_between_the_UK_and_the_Devolved_Administrations.pdf|website=www.gov.uk|access-date=8 November 2016|date=October 2013}}</ref> That document states in an explanatory note that it is not intended to be legally binding, and the paragraph dealing with the convention makes clear that the UK Parliament retains authority to legislate on any issue, whether devolved or not.

{{Blockquote|quote=14. The United Kingdom Parliament retains authority to legislate on any issue, whether devolved or not. It is ultimately for Parliament to decide what use to make of that power. However, the UK Government will proceed in accordance with the convention that the UK Parliament would not normally legislate with regard to devolved matters except with the agreement of the devolved legislature. The devolved administrations will be responsible for seeking such agreement as may be required for this purpose on an approach from the UK Government. |source=Memorandum of Understanding (October 2013)<ref name="MOU2013" />}}

Since then, however, the convention has been incorporated into law in both Scotland and Wales. However, despite this inclusion, the statements are not legally binding on the [[UK Parliament]].

===Scotland Act 2016===
In 2016 the UK Parliament passed the [[Scotland Act 2016]] which amended the [[Scotland Act 1998]] to contain an explicit and specific legal reference to the so-called Sewel convention. Section 2 of the 2016 Act reads as follows:

{{Blockquote|'''2 The Sewel convention'''

In section 28 of the Scotland Act 1998 (Acts of the Scottish Parliament) at the end add—
"(8) But it is recognised that the Parliament of the United Kingdom will not normally legislate with regard to devolved matters without the consent of the Scottish Parliament."}}

===Wales Act 2017===
In 2017 the UK Parliament passed the [[Wales Act 2017]] which amended the [[Government of Wales Act 2006]] to contain an explicit and specific legal reference to Westminster legislation on matters that are devolved to the [[Welsh Assembly]]. Section 2 of the 2017 Act reads as follows:

{{Blockquote|'''2 Convention about Parliament legislating on devolved matters'''

In section 107 of the Government of Wales Act 2006 (Acts of the National Assembly for Wales), after subsection (5) insert—
"(6) But it is recognised that the Parliament of the United Kingdom will not normally legislate with regard to devolved matters without the consent of the Assembly."}}

==Current situation and review==

In 2005 the Procedures Committee undertook an inquiry into the use of Sewel motions, and heard evidence from Lord Sewel, [[Henry McLeish]] (the former [[First Minister of Scotland]]), and [[Anne McGuire]], [[Member of Parliament (United Kingdom)|MP]] (the Parliamentary [[Under-Secretary of State for Scotland]]). Following the review, the motions were retitled legislative consent motions and the procedures enshrined in the parliament's standing orders.

{{As of|2013|10|7}}, 131 legislative consent motions had been passed by the Scottish Parliament, 39 in the first session (1999–2003), 38 in the second (2003–2007), 30 in the third (2007–11) and 24 so far in the fourth (2011–16).<ref>{{cite web|url=http://www.scottish.parliament.uk/parliamentarybusiness/Bills/19023.aspx|title=Legislative and Public Bodies Act Consent Memorandums and Motions statistics|date=15 October 2010}}</ref>

In December 2022, the [[Labour Party (UK)|Labour Party]] announced proposals to strengthen the Sewel convention such that it becomes "constitutionally protected", as part of a report on [[Constitutional reform in the United Kingdom|constitutional reform]] led by former Prime Minister [[Gordon Brown]].<ref>{{Cite book |url=https://labour.org.uk/wp-content/uploads/2022/12/Commission-on-the-UKs-Future.pdf |title=A New Britain: Renewing our Democracy and Rebuilding our Economy - Report of the Commission on the UK’s Future |date=5 December 2022 |publisher=Labour Party }}</ref><ref>{{Cite news |date=2022-12-05 |title=Gordon Brown: Labour plan would make UK work for Scotland |language=en-GB |work=BBC News |url=https://www.bbc.com/news/uk-scotland-scotland-politics-63853652 |access-date=2024-01-02}}</ref>

== List of refused legislative consent motions ==
{{Update section|date=May 2023}}
{| class="wikitable"
|+
!Date
!Devolved body
!Legislation
!Votes for
!Votes against
!Subsequent actions
|-
|8 February 2011
|[[National Assembly for Wales]]
|[[Police Reform and Social Responsibility Act 2011]]<ref>[https://business.senedd.wales/Data/Plenary%20-%20Third%20Assembly/20110208/Agenda/The%20Record%20(PDF,%20784KB)%20(08-02-2011).pdf The Record of Proceedings, 8 February 2011]. Page 108.</ref>
|{{Composition bar|17|60|hex=green}}
|{{Composition bar|23|60|hex=red}}
| Membership of police and crime panels in Wales was changed to be upon the appointment of the Home Secretary.
|-
|22 December 2011
|[[Scottish Parliament]]
|[[Welfare Reform Act 2012]]<ref>{{cite web|url=https://www.bbc.co.uk/news/uk-scotland-scotland-politics-16292327|title=MSPs withhold consent from UK Welfare Reform Bill|work=BBC News|date=22 December 2011|access-date=23 June 2018}}</ref>
|{{Composition bar|18|129|hex=green}}
|{{Composition bar|100|129|hex=red}}
|Scottish ministers were given competency in administering the new [[Universal Credit]] and [[Personal Independence Payment]] benefits.
|-
|29 January 2013
|National Assembly for Wales
|[[Enterprise and Regulatory Reform Act 2013]]<ref>{{cite web |title=Legislative Consent: Enterprise and Regulatory Reform Bill |url=https://business.senedd.wales/mgDecisionDetails.aspx?IId=4027&Opt=1 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|18|60|hex=green}}
|{{Composition bar|33|60|hex=red}}
|The Welsh Assembly subsequently passed its own legislation, the [[Agriculture Sector (Wales) Act 2013]], which was referred to the [[Supreme Court of the United Kingdom]], who found that the Acts dealt with devolved competencies.
|-
|12 November 2013
|National Assembly for Wales
|[[Local Audit and Accountability Act 2014]]<ref>{{cite web |title=Legislative Consent Memorandum: Local Audit and Accountability Bill |url=https://business.senedd.wales/mgDecisionDetails.aspx?IId=6814&Opt=1 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|28|60|hex=green}}
|{{Composition bar|29|60|hex=red}}
|Cross-border [[internal drainage board]]s, which almost entirely operated in Wales, were exempted from the auditing scheme in England.
|-
|26 November 2013
|National Assembly for Wales
|[[Anti-Social Behaviour, Crime and Policing Act 2014]]<ref>{{cite web |title=Legislative Consent: Anti-social Behaviour, Crime and Policing Bill |url=https://business.senedd.wales/mgDecisionDetails.aspx?IId=6815&Opt=1 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|1|60|hex=green}}
|{{Composition bar|55|60|hex=red}}
|The UK Government maintained that the change in devolved competencies due to the abolition and replacement of [[anti-social behaviour order]]s was consequential and did not require consent, but in light of the refusal of legislative competence, the exception for the replacement orders was to be "interpreted narrowly".
|-
|3 February 2015
|National Assembly for Wales
|[[Medical Innovation Bill|Medical Innovations Bill 2014–2015]]<ref>{{cite web |title=Legislative Consent: Medical Innovation Bill |url=https://business.senedd.wales/mgDecisionDetails.aspx?IId=11886&Opt=1 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|0|60|hex=green}}
|{{Composition bar|54|60|hex=red}}
|Bill did not pass the House of Commons due to Parliament being prorogued ahead of the [[2015 United Kingdom general election|2015 general election.]]
|-
|7 December 2015
|[[Northern Ireland Assembly]]
|[[Enterprise Act 2016]]<ref>{{cite web |title=Legislative Consent Motion - Enterprise Bill |url=https://aims.niassembly.gov.uk/plenary/details.aspx?tbv=0&ptv=0&mcv=0&mtv=0&sp=0&spv=-1&per=1&it=0&pid=2&sid=p&pn=0&ba=1&doc=250136%20&fd=07/12/2015&td=07/12/2015 |website=Northern Ireland Assembly |access-date=31 March 2024}}</ref>
|{{Composition bar|40|108|hex=green}}
|{{Composition bar|51|108|hex=red}}
|Cap on public sector exit payments was not applied to Northern Ireland.
|-
|26 January 2016
|National Assembly for Wales
|[[Trade Union Act 2016]]<ref>{{cite web |title=Legislative Consent: Trade Union Bill |url=https://business.senedd.wales/mgDecisionDetails.aspx?IId=14087&Opt=1 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|13|60|hex=green}}
|{{Composition bar|43|60|hex=red}}
|The Welsh Assembly subsequently passed its own legislation, the [[Trade Union (Wales) Act 2017]], to disapply the provisions to which the Assembly disagreed. The UK Government did not refer it to the Supreme Court, but later announced plans to repeal this law, seeing [[industrial relations]] as a reserved matter.<ref>{{cite web | url=https://eachother.org.uk/government-plans-to-scrap-welsh-trade-union-law-attack-on-rights/ | title=Government Plans to Scrap Welsh Trade Union Law 'Attack on Rights' | date=13 July 2022 }}</ref><ref>{{Cite web|url=https://www.southwalesargus.co.uk/news/20244361.no-worker-lightly-takes-industrial-action---rhianon-passmore-ms-islwyn/|title='No worker lightly takes industrial action' – Rhianon Passmore, MS for Islwyn|website=South Wales Argus|accessdate=30 June 2022}}</ref><ref>{{Cite web|url=https://www.walesonline.co.uk/news/politics/welsh-independence-no-longer-fringe-24362359|title=Welsh independence is no longer a fringe issue, it's mainstream|first=Luke|last=Fletcher|date=30 June 2022|website=WalesOnline|accessdate=30 June 2022}}</ref>
The Scottish Government had likewise tried to introduce a legislative consent motion, but the [[Presiding Officer of the Scottish Parliament|Presiding Officer]] ruled the bill related only to reserved matters.
|-
|15 March 2016
|National Assembly for Wales
|[[Housing and Planning Act 2016]]<ref>{{cite web |title=Legislative Consent: Housing and Planning Bill |url=https://business.senedd.wales/ieIssueDetails.aspx?IId=14304&PlanId=0&Opt=3 |website=Senedd Cymru |access-date=31 March 2024}}</ref>
|{{Composition bar|0|60|hex=green}}
|{{Composition bar|52|60|hex=red}}
|Changes to [[compulsory purchase order]]s were removed from the bill.
|-
|15 May 2018
|Scottish Parliament
|[[European Union (Withdrawal) Act 2018]]
|{{Composition bar|30|129|hex=green}}
|{{Composition bar|93|129|hex=red}}
| Enacted by UK Parliament without change.
|-
|7 October 2020
|Scottish Parliament
|[[United Kingdom Internal Market Act 2020]]<ref>{{Cite web|url=https://archive2021.parliament.scot/parliamentarybusiness/report.aspx?r=12878&i=116422|title=Official Report|first=Official|last=Report|date=24 January 2014|website=archive2021.parliament.scot}}</ref>
|{{Composition bar|28|129|hex=green}}
|{{Composition bar|90|129|hex=red}}
| Enacted by UK Parliament without change.
|-
|30 December 2020
|Scottish Parliament
|[[European Union (Future Relationship) Bill|European Union (Future Relationship) Act 2020]]<ref>{{Cite web|title=Brexit deal rejected - gov.scot|url=https://www.gov.scot/news/brexit-deal-rejected/|access-date=2020-12-30|website=www.gov.scot}}</ref><ref>{{Cite web|url=https://archive2021.parliament.scot/parliamentarybusiness/report.aspx?r=13040&i=117972|title=Official Report|first=Official|last=Report|date=24 January 2014|website=archive2021.parliament.scot}}</ref>
|{{Composition bar|30|129|hex=green}}
|{{Composition bar|92|129|hex=red}}
| Enacted by UK Parliament without change.
|-
|15 February 2022
|Senedd
|rowspan=2| [[Nationality and Borders Act 2022]]<ref>{{cite web |title=Votes Summary - Tuesday, 15 February 2022 13.30 |url=https://business.senedd.wales/documents/b41280/Votes%20Summary%20Tuesday%2031-Jan-2023%2013.30%20Plenary.pdf?T=9 |website=Senedd Cymru |access-date=28 April 2025}}</ref><ref>{{cite web |title=Trade (Australia and New Zealand) Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-08205 |website=Scottish Parliament |access-date=28 April 2025}}</ref>
|{{Composition bar|15|60|hex=green}}
|{{Composition bar|39|60|hex=red}}
|rowspan=2| Enacted by UK Parliament without change.
|-
|22 February 2022
|Scottish Parliament
|{{Composition bar|29|129|hex=green}}
|{{Composition bar|94|129|hex=red}}
|-
|29 June 2022
|Scottish Parliament
|rowspan=2|[[Northern Ireland Protocol Bill]]<ref>{{cite web |title=Northern Ireland Protocol Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-05235 |website=Scottish Parliament |access-date=28 April 2025 |language=en}}</ref><ref>{{cite web |title=Vote Outcomes Plenary 22/11/2022 |url=https://record.senedd.wales/VoteOutcome/13047/? |website=Welsh Parliament |access-date=28 April 2025 |language=en}}</ref>
|{{Composition bar|25|129|hex=green}}
|{{Composition bar|86|129|hex=red}}
|rowspan=2| Bill allowed to lapse at the end of the session.
|-
|22 November 2022
|Senedd
|{{Composition bar|15|60|hex=green}}
|{{Composition bar|35|60|hex=red}}
|-
|17 January 2023
|Senedd
|rowspan=2| Genetic Technology (Precision Breeding) Act<ref>{{cite web |title=Votes Summary - Tuesday, 17 January 2023 13.30 |url=https://business.senedd.wales/documents/b41261/Votes%20Summary%20Tuesday%2017-Jan-2023%2013.30%20Plenary.pdf?T=9 |website=Senedd Cymru |access-date=28 April 2025}}</ref><ref>{{cite web |title=Genetic Technology (Precision Breeding) Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-07615 |website=Scottish Parliament |access-date=28 April 2025}}</ref>
|{{Composition bar|15|60|hex=green}}
|{{Composition bar|36|60|hex=red}}
|rowspan=2| Enacted by UK Parliament without change.
|-
|23 January 2023
|Scottish Parliament
|{{Composition bar|30|129|hex=green}}
|{{Composition bar|93|129|hex=red}}
|-
|31 January 2023
|Senedd
|rowspan=2| Trade (Australia and New Zealand) Act 2023<ref>{{cite web |title=Votes Summary - Tuesday, 31 January 2023 13.30 |url=https://business.senedd.wales/documents/b41280/Votes%20Summary%20Tuesday%2031-Jan-2023%2013.30%20Plenary.pdf?T=9 |website=Senedd Cymru |access-date=28 April 2025}}</ref><ref>{{cite web |title=Trade (Australia and New Zealand) Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-08205 |website=Scottish Parliament |access-date=28 April 2025}}</ref>
|{{Composition bar|15|60|hex=green}}
|{{Composition bar|36|60|hex=red}}
|rowspan=2| Enacted by UK Parliament without change.
|-
|23 January 2023
|Scottish Parliament
|{{Composition bar|30|129|hex=green}}
|{{Composition bar|88|129|hex=red}}
|-
|6 June 2023
|Senedd
|rowspan=2| [[Retained EU Law (Revocation and Reform) Act 2023]]<ref>{{cite web |title=Votes Summary - Tuesday, 6 June 2023 13.30 |url=https://business.senedd.wales/documents/b41895/Votes%20Summary%20Tuesday%2006-Jun-2023%2013.30%20Plenary.pdf?T=9 |website=Senedd Cymru |access-date=28 April 2025}}</ref><ref>{{cite web |title=Retained EU Law (Revocation and Reform) Bill – UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-09375 |website=Scottish Parliament |access-date=28 April 2025}}</ref>
|{{Composition bar|17|60|hex=green}}
|{{Composition bar|36|60|hex=red}}
|rowspan=2| Enacted by UK Parliament without change.
|-
|8 June 2023
|Scottish Parliament
|{{Composition bar|27|129|hex=green}}
|{{Composition bar|79|129|hex=red}}
|-
|26 June 2023
|Scottish Parliament
|Northern Ireland Troubles (Legacy and Reconciliation) Bill<ref>{{cite web |title=Northern Ireland Troubles (Legacy and Reconciliation) Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-09722 |website=Scottish Parliament |access-date=28 April 2025 |language=en}}</ref>
|{{Composition bar|27|129|hex=green}}
|{{Composition bar|83|129|hex=red}}
| Enacted by UK Parliament without change.
|-
|20 March 2024
|Scottish Parliament
|[[Economic Activity of Public Bodies (Overseas Matters) Bill]]<ref>{{cite web |title=Economic Activity of Public Bodies (Overseas Matters) Bill - UK Legislation |url=https://www.parliament.scot/chamber-and-committees/votes-and-motions/S6M-12551 |website=Scottish Parliament |access-date=28 April 2025 |language=en}}</ref>
|{{Composition bar|27|129|hex=green}}
|{{Composition bar|88|129|hex=red}}
| Bill not passed in [[wash-up period]].<ref>{{cite web |title=The Economic Activity of Public Bodies Bill has been dropped - a welcome side effect of the calling of the General Election? |url=https://www.burges-salmon.com/articles/102j9ul/the-economic-activity-of-public-bodies-bill-has-been-dropped-a-welcome-side-eff/ |website=Burges Salmon |access-date=28 April 2025}}</ref>
|}

==See also==
* [[Neil MacCormick]], who has argued that parliamentary sovereignty is an "exclusively English doctrine".

==References==
<references/>

==External links==
* [http://www.dca.gov.uk/constitution/devolution/guidance/dgn10.pdf Devolution Guidance Note 10 (pdf).]
* [http://www.scottish.parliament.uk/parliamentarybusiness/26512.aspx Chapter 9b of the Scottish Parliament's standing orders]
* [http://www.gov.scot/About/Sewel Scottish Government information on Sewel convention.]
* [https://web.archive.org/web/20070903083911/http://www.scottish.parliament.uk/business/legConMem/index.htm Scottish Parliament information on Legislative Consent Motions]
* [https://www.bbc.co.uk/blogs/opensecrets/2009/11/devolution_tensions_exposed.html BBC Open Secrets blog – Devolution tensions exposed]
*[http://researchbriefings.files.parliament.uk/documents/CBP-8274/CBP-8274.pdf Cowie, Graham. 2018. Brexit: Devolution and legislative consent. House of Commons Library.]

[[Category:Government of Scotland]]
[[Category:Scottish Parliament]]
[[Category:Constitutional conventions of the United Kingdom]]