Christmas Island Nuclear Testing: Compensation
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The Parliamentary Under-Secretary of State for Defence (Mr Tobias Ellwood)
I begin by thanking the hon. Member for Glasgow North West (Carol Monaghan) for securing the debate. She raises a very sensitive matter, which has been brought to this House on many occasions.
Before I go into the detail of the subject matter, it is important for us to understand that this is not a question of the thermonuclear testing and Britain’s decision to use and develop a nuclear deterrent, although our parties may have different opinions on that; this is to do with the actual positioning—the geographical location—and the manner in which the tests were conducted in the south Pacific in the 1950s.
The hon. Lady spoke about Operation Grapple—the decision to pursue a nuclear deterrent. That did involve the Royal Fleet Auxiliary Service, who, I make it very clear, are civilians; they are not part of our armed forces in that sense. It is important that we express and put on record on behalf of the House our gratitude for what they do, not just then but today. Without them, it would not be possible for our Navy—our naval ships—to maintain the food, fuel, stores and ammunition that they require to keep our seas safe and protect our shores. We are very grateful to all those who serve in the Royal Navy and in the Royal Fleet Auxiliary Service. In present times, the RFA provides logistical support in the areas I have just mentioned and are involved in humanitarian operations, disaster relief and help with counter-piracy.
This debate focuses on a very sensitive issue and I know there are strong feelings on both sides of the House. It is a highly complicated issue, so it is worth breaking the subject matter down into three separate stages. The first stage relates to the facts of the matter. The UK’s atmospheric nuclear test programme experimented on weapons, not personnel. The weapons were the focus of the operations in the south Pacific. Many thousands of service personnel deployed to the south Pacific, including Christmas Island, from 1956 to 1961, were in support of testing the UK’s first thermo- nuclear weapon system. The hon. Lady alluded to 17 RFA ships being deployed in support of operations. None was exposed to direct radiation beyond the background radiation that was expected. Only the Royal Navy’s HMS Diana came into direct contact with radiation, as she was expressly required to sail through the nuclear plume after the explosion had taken place.
Carol Monaghan
That simply is not the case, as I explained in my speech. The Wave Sovereign was there. It was present. The crew were on board and the crew witnessed the blast.
Mr Ellwood
I am not denying that they were in the vicinity. It is the distance and proximity to the explosion that we are talking about. It is worth putting it in context. Other nations went through these experiments. It is difficult to compare apples with pears regarding the proximity of any of the individuals who witnessed the tests. I simply make it clear that the locality of the ships, in comparison with HMS Diana, was very different indeed. That is all I can say about that.
Other Royal Navy and RFA vessels were located in safe zones many, many miles away from the bomb’s ground zero—or surface zero, as it is called at sea—from which it was detonated. The role of the RFA vessels was to restock and refuel Royal Navy support ships that were closer to it. They were withdrawn from those locations before detonation. Otherwise, radiation risk to Royal Navy and RFA crews, and all other participants, was low, with prevention measures that reflected best practice in the contemporary understanding of the day.
The second point relates to the subsequent reports and investigations. As I mentioned, this issue has been looked at in the past. Protection, health and welfare of all those involved in the tests were in place, and that is confirmed by well documented safety measures and monitoring during the tests. To date, there is no expert evidence of excess illness or mortality among nuclear test veterans in general that could be linked to their participation in the tests.
In response to health concerns raised in the 1980s, the Government commissioned an independent study from the National Radiological Protection Board. This looked at mortality for all causes, as well as cancer incidence and mortality. Three reports followed in 1988, 1993 and 2003, which compared over 20,000 participants in nuclear tests with a similar-sized control group of non-deployed service personnel. They found no detectable effect on participants’ life expectancy or risk of developing most cancers, but did find a small increase in the risk of leukaemia, excluding chronic lymphatic leukaemia, with clinical onset in the first 25 years after presence at the tests. A fourth report is now expected next spring. Should those findings produce new evidence, with new ways of measuring such things, that will be reflected in policy.
Carol Monaghan
One issue that I raised was the offspring of test veterans. It seems that they are not being included in the medical tests, but we know that the incidence of leukaemia and other cancers in their offspring is 10 times that of the general population.
Mr Ellwood
Because it is an independent study, I do not have the details of the fourth report, but I will write to the hon. Lady to confirm whether the offspring are included. I hope that they are. It would make sense, because often these things can get passed down, as we saw with the tests after Nagasaki and Hiroshima.
Mr Kevan Jones
On the family risk, as part of the compensation that was offered and never taken forward, a study was done in, I think, 2009 of family members. The Minister may well want to look at that study. If he wants access to that file, it is under my papers and I am quite happy to give him the authorisation.
Mr Ellwood
The fact that the right hon. Gentleman had to deal with this when he was a Defence Minister reflects how long this issue has been alive. I would be grateful for any further information that helped us. Ultimately, we want to do the best we can for those who are serving and who have served.
On the pension and compensation issues that are involved, the Government’s policy on claims arising from nuclear test programmes is based on detailed and impartial analysis of world literature, including the National Radiological Protection Board reports. A revised MOD policy statement for armed forces personnel was published in December 2017, and it takes into account scientific studies that have been published since 2003. It is important to make it clear that the Government do not accept in general that those present at sites were exposed to harmful levels of ionising radiation. RFA personnel are covered by the mercantile marine scheme, based on the personal injury civilian scheme, which was extant during world war two. Like the scheme, the MMS applies only in wartime to war injuries and is enacted specifically for such events. Most recently, that was relevant in the 1990-91 Gulf war. The UK atmospheric tests were a peacetime operation, as the hon. Member for Glasgow North West mentioned.
Jamie Stone (Caithness, Sutherland and Easter Ross) (LD)
It is absolutely correct that this was a peacetime operation, and I thank the Minister for the thoughtful way he is taking us through this issue. I was approached by an elderly constituent who was there—he was serving in the armed forces at the time—and he had to turn his back and all the rest of it. He said, “I’ve not been ill”, but he did say, “All my teeth fell out not terribly long after the test.” The point he put to me was that because it was peacetime, there was no idea of any campaign medal or decoration for those who were there, but he asked whether any other consideration could be given by the MOD, such as perhaps a letter signed by the Minister or somebody, saying, “You were there and we recognise your contribution.”
Mr Ellwood
I would be delighted to meet the hon. Gentleman, perhaps one to one, to discuss that. The issue of medals is always sensitive. As he is aware, many campaign groups are seeking to provide recognition for valour and conduct in peace and war operations. Recognition of service is always very important. Thanks to our predecessors, we are able to enjoy the freedoms that we do, so I would be delighted to meet him to discuss that further.
I stress that RFA personnel are civilian and not military and, therefore, they come under a different form of compensation. They are covered by the industrial injuries disability scheme and are certainly entitled to claim civilian damages, should they wish to pursue that, but that is separate from the strand of support and compensation that those in the armed forces would pursue.
Angus Brendan MacNeil (Na h-Eileanan an Iar) (SNP)
This debate is about establishing compensation and giving those veterans or the people in the vicinity justice. Does the Minister think that justice has happened at this point?
Mr Ellwood
I am not a lawyer and it is not for me to make those judgments; it is for me to clarify—[Interruption.] I will not be pressed to give a judgment—that would be wrong. I am sorry the hon. Gentleman feels the need to press me on it. There needs to be a process that anybody who feels they require justice can pursue, and it is my job to make that clear. I hope he will agree.
This is an important issue and one that concerns me. We must provide clarity in the upcoming fourth report. I am grateful to the hon. Lady for addressing these matters this evening. The Government continue to recognise the work of all those who participated in the British nuclear testing programme, both civilian and RFA personnel and those in the armed forces. They contributed a great deal to keeping our nation secure during the cold war and since by ensuring the UK was equipped with the appropriate nuclear capability. I assure the entire House that the Government will continue to monitor closely the health risks to participants, and we look forward to the fourth report, which is expected to be published next year.
Carol Monaghan
I raised the recognition by Lord MacKay that RFA personnel would be considered as veterans for the purpose of war pensions. The Minister has not addressed that. I wonder whether he will before he finishes.
Mr Ellwood
I am happy to write to the hon. Lady in more detail. It was my plan to do that anyway after this debate. She has raised several points. I do not have all the details now, but I would be happy to share them with her in closer context, and I will certainly look at this issue. I would again make the distinction between the different models of support that apply to people in civilian and military roles, which I alluded to earlier, but I would happy to write to her with more details.
Question put and agreed to.