UN Mission in Mali: Armed Forces Deployment
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Baroness Smith of Newnham (LD) [V]
My Lords, I start by echoing the words of the noble Lord, Lord Touhig, and the Secretary of State in expressing my gratitude to our service men and women. In particular at this time we send our thanks and best wishes to those serving in Mali and deployed anywhere else in the world in the run-up to Christmas. In particular, we send our thanks and gratitude to the families of our service men and women, without whom they would find doing their job serving our nation so much harder.
The deployment to Mali is, as the noble Lord, Lord Touhig, said, to be welcomed. It is one that the previous Secretary of State for Defence flagged up in the middle of 2019, so it is not a surprise; it is part of an international UN mission, and clearly something that our service men and women are trained for. It is precisely the sort of mission that is to be welcomed but, as the noble Lord, Lord Touhig, pointed out, it is in one of the most dangerous parts of the world. In his Statement, the Secretary of State suggested that our service men and women were well trained and equipped for the mission and have the right training, equipment and preparation to succeed in a complex operating environment. Could the Minister confirm that she believes that those deployed to Mali are appropriately kitted out and that they are not placed in any greater danger than is inevitably the case in such a deployment?
As the noble Lord, Lord Touhig, also pointed out, Mali is a country where it is extremely dangerous, because of terrorist activities, but particularly difficult to be a woman—or a girl being educated. To what extent will the change to humanitarian aid impact on Mali? The Minister is clearly responding primarily for the MoD but she is replying for the Government, so can she confirm that the Government remain committed to supporting women and girls?
In particular, what is the Government’s wider approach to sub-Saharan Africa? I note that the noble Baroness, Lady Anelay of St Johns, will speak later. She admirably chaired the committee of your Lordships’ House on which I sit, and which produced a report on sub-Saharan Africa in July. We have not yet had the opportunity as a House to debate that report, but one issue that the committee kept coming across was a difficulty in understanding whether the Government actually had a strategy for Africa. It would be helpful to understand from the Minister how far Mali fits into such a strategy. Clearly, the UK is playing an important role here as part of a UN mission, but does that fit as part of the Government’s wider strategy?
Overall, this is clearly a welcome mission, even if it is very unfortunate that Mali requires such intervention. It is welcome that the UK continues to play a global role. It is also notable that so much of that role is with our allies, including France and Sweden. Can the Minister reassure the House that, as we move forward, such security relationships will continue to be as deep and fully fledged as they have been? Those relations matter, regardless of the UK’s relations with the European Union. If the deployment to Mali fully reflects what our service men and women should be doing, sending the Navy to deal with French fishermen is perhaps not the best use of our resources.
The Minister of State, Ministry of Defence (Baroness Goldie) (Con)
My Lords, I thank the noble Lord, Lord Touhig, and the noble Baroness, Lady Smith, very much for their helpful and constructive comments. On behalf of the Government, I also thank them for their tribute to our Armed Forces personnel and, as the noble Baroness so rightly pointed out, their families. Our thoughts are certainly always with our Armed Forces personnel and their families when there is any deployment at all. The noble Lord and the noble Baroness raised a number of points, which I shall try to deal with as comprehensively as I can.
The noble Lord, Lord Touhig, raised the issue of encouraging political dialogue and how we might contribute to the need for construction and engineering skills. I say to him that the whole reason that the United Kingdom is contributing to this United Nations mission in Mali is that the underlying instability means that it is very difficult, in the face of that turbulence, to move on to the more positive and constructive issues to which he refers. We recognise that while our contribution to the security response is important, security interventions alone will not address the instability in the Sahel. We continue to advocate for state-led progress on the peace process in Mali, and for political and institutional reform in the wider region, with greater ownership and leadership of reform efforts by G5 Governments. I reassure the noble Lord that he raises an important point, but the priority at the moment is trying to address the issues of instability and lack of security.
The noble Lord and the noble Baroness also raised the issue of women. It is the case that women have been badly impacted by the consequences of the instability and turmoil. However, it is also the case that there is some cause for optimism. Over the past five years, we have seen progress. Widespread fighting between the parties has not returned, the reconstitution of a national army from members of the former armed groups and—this is the important point—the inclusion of women in the peace process, including MINUSMA’s role as mediator, have been critical to this relative stability. Important points were made about the position of women, how such civil unrest can impact on them and how we can do our best, as a contributing country, to encourage a more enhanced role for women.
The noble Lord and the noble Baroness asked what our objectives are. The Foreign Secretary recently chaired a review process looking at all the strands of the UK ODA budget. The review safeguarded support for five ODA priorities: the very poorest—that is, poverty reduction for the bottom billion; climate change; girls’ education, which will, I hope, reassure the noble Lord and the noble Baroness; Covid-19; and the role of Britain globally as a force for good.
The noble Lord also raised the important issue of how we work with other forces from contributing countries and allies. Indeed, the noble Baroness also talked about that and about our security relationships. I commend them both: they have touched on something really significant. At the heart of this is the fact that we are part of a United Nations mission and we are proud to play our role. We want to be a positive influence to help those countries that have suffered such insurgency and insurrection, particularly Mali, to move on to a better and more stable course. We want that because it is good not just for Mali but for the broader security of the region and the world at large. As the noble Lord alluded to, if we can bring greater stability to that area, we can begin to introduce more robust political processes. If we look at the country’s infrastructure, a great deal of progress has been made in taking the country forward.
The noble Lord and the noble Baroness will be aware that we work closely with France in particular. We are part of the Operation Barkhane mission, which is operative in the Sahel. Unlike MINUSMA, Barkhane is a counterterrorism mission, of course. It has a different purpose but it is an example of the importance of working with allies whom we know well, with whom we get on and with whom we are very proud to work in partnership to improve the overall situation.
I think that I have managed to cover the points made by the noble Lord and the noble Baroness. If I have omitted anything, I shall have a look at Hansard and undertake to rectify it. Again, I express to both the noble Lord and the noble Baroness my appreciation of their constructive comments, particularly their recognition of the tremendous role that our Armed Forces are asked to play.
The Deputy Speaker (Baroness Morris of Bolton) (Con)
My Lords, we now come to the 20 minutes allocated for Back-Bench questions.
Baroness Anelay of St Johns (Con)
My Lords, I also pay tribute to those who serve in Mali and wish them a safe return.
The noble Baroness, Lady Smith of Newnham, referred to the report of our Select Committee on International Relations and Defence, The UK and Sub-Saharan Africa. In it, we welcome
“the UK’s increased attention to instability in the Sahel”
and its decision to contribute troops to the MINUSMA mission. However, we received evidence that
“the UK still had ‘lessons to learn from Iraq and Afghanistan’, including those relating to equipment, regional understanding and engagement with local counterparts.”
Can my noble friend the Minister say what the MoD has learned from that experience, which is now informing its approach to the support we are giving to MINUSMA’s important mission?
Baroness Goldie (Con)
I thank my noble friend for raising a very important point. I also pay tribute to her role as chairman of the International Relations and Defence Committee and to its very positive and useful report, The UK and Sub-Saharan Africa: Prosperity, Peace and Development Co-Operation. My noble friend was in discussion with the FCDO. I think she received a fairly full letter of clarification about the points she felt were not addressed. I hope that has gone some way towards reassuring her of the Government’s good intent to make a positive contribution in this region of Africa.
Preparation and equipment are very important. There has been analysis of the tasks the UK contingent will conduct on mission, particularly the terrain and the threat they will face. For example, the deploying vehicles have been specifically selected to address these singular and challenging demands. There will be a number of vehicle types used for different tasks. They have previously been tested on operations and will include the Foxhound, Ridgback, Coyote and Jackal. When I read these, I wondered whether we were talking about a zoo, but we are talking about mechanical devices on wheels that will clearly be a very important support to our forces out in Mali. These vehicles have been chosen for a specific purpose. The analysis identified these types of vehicles as being most appropriate for the terrain and the tasks faced.
Our Armed Forces are professional and well trained. This is a United Nations mission, so they are under the command of Lieutenant General Gyllensporre, who is the Swedish commanding officer. I say to the noble Baroness that, yes, previous conflicts have identified the particular challenges of operating in difficult terrain—in coping with extremes of heat or cold—and lessons have been learned from that. I reassure my noble friend that our Armed Forces and their commanding officers are very mindful of that before asking troops to deploy to any region in the world.
Lord Craig of Radley (CB) [V]
My Lords, is the Minister aware that more than 200 MINUSMA troops have been killed and others wounded? This deployment to a faraway country of which we know little is risky. For the record, and to reassure the families and loved ones of any UK casualty, will the Minister explain why deploying in Mali fully justifies these acknowledged dangers to our forces? Have our rules of engagement been agreed with the UN force commander?
Baroness Goldie (Con)
The noble and gallant Lord raises a very important point. We very much hope our Armed Forces remain safe and that they will not come under threat of loss of life or of injury. He is right to inquire why they are there, what we expect them to do and how we expect them to do it. As I said earlier, this is part of our contribution to the security response. We recognise that security interventions alone will not address the instability in the Sahel and continue to advocate for state-led progress in the peace process in Mali. As I said earlier, that involves political and institutional reform in the wider region.
We believe it is very important the United Kingdom supports the United Nations in attempting to deal with this area of instability. It matters because if that instability is not addressed then it has an effect of contagion. Instability is a threat that can spread. It can allow hostile operators to flourish and can encourage them to take their unwelcome activities to other countries. That could include the United Kingdom. There is an underlying purpose and we believe it is important that the United Kingdom supports the United Nations in this important mission.
I said earlier that the mission, being a United Nations mission, is led by a civilian—a special representative of the United Nations Secretary-General. The peace- keeping force element involves our own military and highly trained soldiers. Because it is a peacekeeping mission, and our forces are principally concerned with reconnaissance, this is clearly slightly different from an operation such as Operation Barkhane. But our force will provide critical capabilities at a vital time. MINUSMA was selected as a mission on the basis that it was where the UK could provide maximum benefit based on the expertise the UK Armed Forces have to offer. I reassure the noble and gallant Lord that this is a carefully constructed contribution from the UK; it is for a specific period; it involves an identified, set number of personnel; and it is a contained contribution.
Lord Boateng (Lab) [V]
My Lords, the struggle against poverty and for development in the Sahel requires peace and security in that increasingly troubled region. No country has invested more in development in ECOWAS than the United Kingdom. So, will the Minister recognise that, in addition to enjoying the support and appreciation of these brave men and women this House offers, the whole of the ECOWAS region, anglophone and francophone, welcomes their deployment? Will the Minister also take the opportunity of the review of ODA and the newly created FCDO to strengthen our military diplomacy in our missions in Africa as part of our development offer?
Baroness Goldie (Con)
I thank the noble Lord for alluding to an important point. He is right; I outlined earlier the principal objectives identified by the Foreign Secretary for ODA. In respect of our military activity, it is important we align these two so that there is a complementary effect. He is correct that these are not problems that one solution will address; there has to be a multifaceted approach.
Lord Campbell of Pittenweem (LD)
My Lords, as we have heard, this is a most dangerous peacekeeping mission, which has seen 220 fatalities already, together with many injuries. I welcome the range of vehicles to be provided as part of force protection, but that will not be the only element of force protection required. Is the Minister in a position to give us more detail on that matter?
Returning to the matter raised by the noble and gallant Lord, Lord Craig, the rules of engagement are extremely important in a theatre of the kind we are discussing. Will the forces there deployed be acting under the rules of engagement of the United Kingdom or the United Nations?
Baroness Goldie (Con)
My understanding is that the direct line of command will be to the overall commander, Lieutenant-General Gyllensporre. But, obviously, our deployment unit has a commanding officer as well. As for specific rules of engagement, these would not normally be disclosed, but I seek to reassure the noble Lord that there is clarity as to why our deployment is there, what it is there to do and how it is intended it should do that.
Lord Lancaster of Kimbolton (Con)
I declare my interest as a member of the Army Reserve. I would like to explore the Government’s attitude to risk. After years of campaigning in Iraq and Afghanistan, risk was mitigated through a sophisticated use of ISTAR, enhanced medical capabilities and air cover operations to name but a few. But these mitigations are unlikely to be as sophisticated or mature in Mali. Are the Government prepared to take more risk, as many in the military would like them to do, or are we going to have to limit the scale of our operations in Mali, even if, ultimately, that means we will limit the impact the UK can have?
Baroness Goldie (Con)
We take assessment of risk extremely seriously and we will keep mitigation and management of risk under continuous review. On the specific issue of medevac capability, as in all United Nations missions, United Nations member states are relied on to provide the nations’ capabilities, including helicopters and aeromedical evacuation teams for the benefit of all United Nations troops on MINUSMA. The facility is there. It is the collective responsibility of the United Nations to provide that. We constantly assess risk and keep mitigation and management of risk under review.
Viscount Waverley (CB) [V]
My Lords, common interest with France, a close ally, is welcome co-operation. The Sahel belt has long been a hotbed of Islamists, separatists and appalling banditry, with recent unrest in Niger and Katsina state in Nigeria, in addition to that in Mali and beyond. The Minister stated that instability could spread but suggested that the United Kingdom’s involvement would be for a limited period. However, will the Government urgently join in planning and implementing a Sahel-wide strategy—[inaudible]—the regional mix of the US and Morocco, having engaged in a major arms deal, together with the just-announced recognition, has the potential to further regional alienation, by some, of Western Sahara—by the US and Morocco.
Baroness Goldie (Con)
I slightly missed a bit in the middle of the noble Viscount’s question, but I will try to deal with the overall concept of his question as to what we are doing in the Sahel. Our objectives are to contribute to improving the situation. We recognise a number of different actors already present in the Sahel. We aim to work with them to better deliver for the people of the region. The UK’s deployment to MINUSMA is a vital part of our work in the Sahel to build stability, bolster conflict resolution, improve the humanitarian response and strengthen partnerships between the international community and regional Governments.
Lord Hain (Lab) [V]
My Lords, I agree with the Minister that this is an important UN mission that we must support. I associate myself with my noble friend Lord Touhig’s remarks. The Sahel region is beset by an increasingly dangerous and violent Islamist insurgency, and in the east of Mali militants repeatedly attack French, European and local armed forces, including 50 killed in 2017 in a suicide attack on a military base. The Minister said that lessons had been learned from previous missions. How certain can she be that Mali will be very different from, for example, Helmand? I clearly recall similar assurances to those she has given being given to us in the Cabinet in 2006 on a straightforward mission, yet 454 soldiers, including British ones, were subsequently killed in combat operations against the Taliban.
Baroness Goldie (Con)
That was indeed a very sad outcome. It is one we remain mindful of, and that we cannot and will not forget. The answer to the noble Lord’s question is probably best explained by returning to the role of the United Nations, because this is what we are part of. The United Kingdom believes in peacekeeping as a way to stabilise and contain conflict. Our contribution to MINUSMA, alongside our enduring commitment to the United Nations’ peacekeeping operation in, for example, Cyprus, and the staff officers we have employed in other operations, is the UK playing its part in a multinational effort to contain the worst consequences of violent conflict and to help build confidence in the political processes.
As I said, we constantly assess and after 18 months we will review this mission. We will analyse what has been happening and assess our role as a contributor to the mission. The noble Lord is right to be alert to what we must always be on our guard against. We want to be very sure that our presence is positive and that the contribution we make makes a difference to providing a more positive future for Mali. That is something we will constantly keep under consideration.
Lord Marlesford (Con) [V]
My Lords, I echo the apprehension of the noble Lord, Lord Hain. We have sent only some 300 of our elite soldiers to fight against the Islamist terrorists in Mali. We must remember that it took more than three years and massive military support to subdue the Islamic State in Syria and Iraq when it sprang into action in April 2014. We must also remember that the French have been battling against the Islamists who seek to overthrow the secular Government in Mali since September 2013. Can we be sure that, if necessary, the British will add to their commitment and their force to see that this job is done at least in the case of Mali? Africa is now a big target of the Islamic State, which would put paid to the hopes of the African people.
Baroness Goldie (Con)
The last part of my noble friend’s question encapsulates why the United Nations is there and why we are proud to make to our contribution to that mission. Our force may be 300, but that is part of a force of thousands, reflected by the other contributors to the mission. My noble friend is quite correct: there is a challenge—we do not diminish that—but it is best addressed in partnership with like-minded nations working together. Acting under the umbrella of the United Nations is a constructive and positive way in which to do that.
Lord Alton of Liverpool (CB)
My Lords, on March 12, in evidence to the inquiry on sub-Saharan Africa of the International Relations and Defence Select Committee, which has been referred to already, General Sir Richard Barrons said that the UK’s role in MINUSMA, the UN peacekeeping mission in Mali, was
“not in support of a strategy of any kind other than ‘We should do a bit more UN peacekeeping’”.
When the noble Lord, Lord Ahmad, answered my Question on 17 June, he said that our strategic approach would
“help tackle the underlying causes of poverty and conflict in the region”
but he said nothing about the role of jihadists from both al-Qaeda and Isis, who have been referred to by a number of noble Lords. What has changed since General Barrons made his remarks in March about the lack of a strategy? Given the history of jihadism in Mali, including terrible attacks on women and the destruction of Sufi monuments in Timbuktu, will the Government be clear about who and what we are fighting in Mali and why, and reflect on the dangers of mission creep?
Baroness Goldie
I go back to what we are doing and why we are there. We are part of this United Nations mission. It is important to remember the umbrella character of that mission. I fully agree with the noble Lord that mission creep would be undesirable, but there is a minimal risk of that happening for the reasons which I stated earlier. This is a mission for our UK deployment of finite time—it is three years; there will be a review after 18 months. It is a fixed number of personnel; it is a peacekeeping mission—our role is one of reconnaissance. There are therefore clear boundaries round what we are doing there. That is not to say that our presence is ineffectual or not capable of achieving anything substantive—I would totally disagree with that as an assessment. As part of this broader commitment organised by the United Nations, we are contributing to addressing the issues which have made the country so challenging and dangerous. The noble Lord is quite correct. I do not seek in any way to diminish the threat, the dangers or the difficulties—they are real and they are there—but I am proud to say that, in so far as the United Kingdom is concerned, we have highly-trained, very capable and professional soldiers. I am confident that they will make a singular and important contribution to the broader objectives of the mission.