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Is dominated by government business. This is why Bagehot thought

that the absence of a strict separation of powers made the UK con-

stitution an effective machine for ensuring government by experts.

By convention Parliament can dismiss a government by a vote of

no confidence and also require a minister to resign. These sanc-

tions are rarely used. The fact that ministers are also MPs weakens

Parliament’s independence since backbench MPs, who are meant to

hold the government to account, may be corrupted by the desire

to become ministers themselves.

Executive domination of Parliament must not be overstated. Par-

liament, although dominated by members of the executive, remains a

separate institution with large powers of its own and protection

against executive interference which it could use were it so minded.

Government proposals must be publicly explained in Parliament and

ministers must justify their decisions in public if required to do so by

Parliament. The Opposition is a formal institution protected by the

law of parliamentary procedure – a government and prime minister

in waiting. The Opposition has a duty to oppose government policy,

short of actually frustrating the governmental process, and forms a

‘shadow cabinet’ ready to take office immediately (see Brazier, 1988).

The Speaker who presides over the House of Commons has a duty to

ensure that the procedure is fair and to protect minorities. In prac-

tice, however, recent opposition parties have been extremely weak,

as a result of internal conflicts and failure to recover from damaging

election defeats.

218 General Principles of Constitutional and Administrative Law

10.3.2 The House of Lords

The House of Lords currently comprises some 695 persons. It is

unusual among legislative chambers in the following respects:

. Its members are not elected. Most of them are peers appointed by

the Crown on the advice of the prime minister, or have inherited

their seat from ancestors who were so appointed. There are also

26 senior Church of England bishops. Thus in many cases member-

ship is compulsory although attendance is not.

. Members other than the bishops sit for life.

. Members receive no payment other than expenses.

. Members have no constituencies and are accountable to no one.

About 25% of the members are independent of political parties.

. By long-standing practice the proceedings of the House are regu-

lated by the House itself without formal rules or disciplinary sanc-

tions, members being treated as bound by ‘personal honour’.

The House of Lords could therefore be depicted as a constitutional

abomination, as a valuable ingredient of a mixed constitution or as

an anomalous relic which from a pragmatic perspective might never-

theless have some useful functions.

A common justification for a second chamber is to represent the

different units of a federal system with the first chamber representing

the popular vote, as for example in the United States. The conven-

tional justification for the existence of a second chamber in the UK

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