Armed Forces Act (Continuation) Order 2015
Earl Howe Excerpts(9 years, 2 months ago)
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, the purpose of the order that we are considering today is to continue in force legislation governing the Armed Forces—the Armed Forces Act 2006—for a further period of one year, until November 2016. This reflects the constitutional requirement under the Bill of Rights that the Armed Forces may not be maintained without the consent of Parliament.
The legislation which makes the provision necessary for the Armed Forces to exist as disciplined forces is renewed every year. There is five-yearly renewal by Act of Parliament. That is the primary purpose of Armed Forces Acts. Between Acts, there must be an annual Order in Council. That is the purpose of the draft order that we are considering today.
If the Order in Council is not made by the end of 2 November 2015, the Armed Forces Act 2006 will automatically expire. The effect of this would be to end the powers and provisions necessary to maintain the Armed Forces as disciplined bodies.
The order will continue in force the 2006 Act until the end of 2 November 2016, when a new Act of Parliament will be required to provide for the legislation to continue for the next five years. We expect the next Armed Forces Bill to be introduced into Parliament soon, and I look forward to our debates on the Bill and on matters of great importance to our Armed Forces during its passage in your Lordships’ House. Indeed, before then, I look forward to enjoying a full and interesting debate next week on the role and capabilities of the UK Armed Forces in the light of global and domestic threats to stability and security.
Turning back to the business in hand today, I should say something about why we need to keep the 2006 Act in force. The Armed Forces Act 2006 applies to all service personnel wherever in the world they are operating. It provides nearly all the provisions for the existence of a system of command, discipline and justice for the Armed Forces, covering such matters as offences, the powers of the service police and the jurisdiction and powers of commanding officers and of service courts, in particular the courts martial. It is the basis of the service justice system that underpins the maintenance of discipline through the chain of command which is so fundamental to the operational effectiveness of our Armed Forces.
The 2006 Act also provides for a number of other important matters for the Armed Forces, such as for their enlistment, pay and redress of complaints. Members of the Armed Forces have no contracts of employment and so no duties as employees. Although members of the Armed Forces owe a duty of allegiance to Her Majesty, their obligation is essentially a duty to obey lawful orders, but without the 2006 Act, commanding officers and the courts martial would have no powers of punishment for either disciplinary or criminal misconduct. That is why the Armed Forces Act 2006 is so important and why we need to continue it in force. I beg to move.
Lord Rosser (Lab)
My Lords, I thank the Minister for his explanation of the purpose and need for the order. We have this debate on the Armed Forces continuation order each year, and I must say that I am no clearer at present than I was when I was first involved in these debates what would be the implications if the order was not carried.
I do not intend to speak at any length. We support the order and, as the Minister said, we have a separate defence debate in the Chamber next week. However, bearing in mind the wide-ranging nature of the order and the apparent consequences if it was not agreed, it has always seemed to me—if, apparently, to no one else—that consideration of the order each year could be used as the basis for an annual general defence debate in the Chamber. There is, after all, very little, if anything defence and Armed Forces-wise that it could be argued would not be relevant in a debate on an order which if not agreed calls into question the continuation of our Armed Forces as a disciplined fighting force.
As paragraph 7.1 of the Explanatory Memorandum states, the Armed Forces Act 2006, which the order extends for a further year from 2 November 2015,
“provides nearly all the provisions for the existence of a system for the armed forces of command, discipline and justice … It also contains a large number of other important provisions as to the armed forces, such as provision for enlistment, pay and redress of complaints”.
Baroness Jolly (LD)
I thank the Minister for his explanation of the order and note that his speech is somewhat familiar, as I delivered it myself last year. These things do not change an awful lot so I shall not take long.
The order reflects the constitutional requirement under the Bill of Rights that the Armed Forces may not be maintained except with the consent of Parliament. The noble Lord, Lord Rosser, has repeated some of the points and questions that I probably failed to answer last year around this whole issue of what happens should we not agree. But I would like to highlight an area that had its own legislation passed earlier this year—the Armed Forces (Service Complaints and Financial Assistance) Act 2015—in particular, complaints, which are covered in this order.
The 2014 continuation order covered the old complaints system. The 2015 legislation to set up the new Service Complaints Ombudsman amended the Armed Forces Act 2006. Will the Minister confirm that this continuation order incorporates the service complaints paragraphs of that Act? The ombudsman set up in the Act will have stronger powers than the current commissioner to investigate any maladministration in the handling of a service complaint. Will the Minister also confirm that as the Act goes live in 2016, the system set up is on track to meet the change in legislation?
I note, too, my responses last year with regard to the letter from noble Lord, Lord Tunnicliffe, to the department, and Mr Morrison’s response on the 2014 order. Can the Minister confirm whether he believes that the Explanatory Memorandum of this year reflects the contents of Mr Morrison’s letter? Will the noble Earl also confirm that next year we will be debating a 2016 Armed Forces Act, which we expect to, as it is done every five years, and does the Minister have any inkling of that timetable?
As the Minister has highlighted, we have the opportunity in next week’s debate on role and capabilities of the UK Armed Forces to explore in more detail issues of a more specific nature, and I hope that the Minister will accept the point made in last year’s debate, which the noble Lord, Lord Rosser, repeated today, that a general debate is useful. The issue could helpfully be swept up in the debate next week and the Minister could respond to areas that are defence related but are only tangentially connected with role and capability. In the mean time, I am happy to agree to the continuation order.
Earl Howe
My Lords, I am grateful to the noble Lord, Lord Rosser, and the noble Baroness, Lady Jolly, for their comments and questions. I shall address them in turn.
The noble Lord, Lord Rosser, devoted his remarks to questions around the hypothesis that were this order not to be approved, the effect on the Armed Forces would be to render them, in practice, completely ineffective. I can confirm that. The practical effect of not renewing the Act would be that the Armed Forces as we know them would cease to exist because, among the many important provisions in the Act, the key provisions are perhaps the duty to obey lawful commands and the mechanism for enforcing that duty. Without these, the Armed Forces would be unable to continue as disciplined forces. They would continue to owe allegiance to Her Majesty but to deploy the Armed Forces in practice or in theatre would be rendered almost impossible because the system of obeying duties would fall away.
Lord Rosser
Perhaps I should clarify. I understand fully the point that the noble Earl has made. Is the Minister saying that it would be impractical to undertake military action because there would be no duty to obey commands, or is it also the case that if this order was not passed it would be illegal for our Armed Forces to undertake any action? Is it an issue about practicality or is it an issue about whether it is legal?
Earl Howe
It is both, as I understand it, in that the requirement for annual renewal can be traced back, as noble Lords have pointed out, to the Bill of Rights 1688. It declared that the raising or keeping of a standing Army within the kingdom in time of peace, unless it be with the consent of Parliament, is against law. That means, essentially, that it would be illegal to have a standing Army or, indeed, a standing Royal Navy or Royal Air Force. It has not been a matter for any Government in living memory to contemplate a scenario whereby Parliament might not approve the continuation of the Armed Forces.
Lord Rosser
My Lords, I am not advocating that either but I am not entirely clear that the Explanatory Memorandum actually says that about the legality, in words of one syllable.
Earl Howe
I shall naturally take advice from those who are expert in this field. If anything that I have said is wrong or requires expansion I will of course write to the noble Lord. I agree that this is a subject of theoretical interest. I am glad to hear that there is no proposal to take the questions to their logical conclusion, but I recognise the importance of the questions that the noble Lord poses and will be happy to clarify, perhaps at greater length in writing, what the legal position amounts to.
The noble Baroness, Lady Jolly, also referred to the Bill of Rights, but focused her remarks on the system of complaints and asked whether the changes that are being introduced are on track. They are. As she knows, the Ministry of Defence worked closely with Dr Susan Atkins, the first Service Complaints Commissioner, to make the service complaints process more efficient and to strengthen the commissioner role. That was the basis of the Armed Forces (Service Complaints and Financial Assistance) Bill that received Royal Assent on 26 March this year. As she is aware, the Act shortens the complaints process and replaces the commissioner with a new Service Complaints Ombudsman. Implementation is expected in January. The ombudsman will have significant new powers, while maintaining the right balance between the authority of the military chain of command, which must be responsible for looking after its own people, and strong independent oversight through the ombudsman.
Nicola Williams, the former ombudsman in the Cayman Islands, with whom I had a useful conversation the other day, took over as the commissioner in January and will become the first ombudsman, subject to approval by Her Majesty the Queen. Nicola Williams’s first annual report on the fairness, effectiveness and efficiency of the service complaints process was published on 24 March. The Government’s response was published on 16 July 2015.
The noble Baroness, Lady Jolly, asked me whether the Explanatory Memorandum reflects the content of Mr Morrison’s letter. I will have to get back to her on the answer to that.
As for the timetable for the Armed Forces Bill, I anticipate that it will be introduced into Parliament shortly. I cannot comment on its content before that happens, but my understanding is that the Bill should be under way in October.
Syria: UK Military Involvement
Earl Howe Excerpts(9 years, 4 months ago)
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Lord Green of Deddington
To ask Her Majesty’s Government whether they specifically authorised the involvement of British military personnel in allied offensive action over Syria, and if so, why.
The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, the Secretary of State for Defence gave approval for UK personnel embedded with US and Canadian forces to strike in Syria. Embedded UK personnel operate as if they were the host nation’s personnel under that nation’s command chain, but are still subject to UK domestic and international law and to the host nation’s law. Embed posts allow personnel to gain experience of key capabilities and equipment and to make a positive contribution to our defence relationships.
Lord Green of Deddington (CB)
I thank the noble Earl for his very full reply. Does it mean that the Government now accept that ISIL poses a very serious threat to British interests at home and abroad and that the regime in Damascus most certainly does not? Secondly, do the Government recognise that the collapse of the regime in Damascus would lead to a situation of total chaos from which the main beneficiary would indeed be ISIL?
Earl Howe
My Lords, I certainly agree, as do Her Majesty’s Government, that ISIL is a serious threat to us as well as many other western countries. That is why we are engaged as fully as we can be in the fight against ISIL over Iraq, and we are conducting surveillance operations with our coalition partners over Syria. As well as that, we are training moderate Syrian opposition forces and forces in Iraq, as the noble Lord will be aware. His analysis of the position relating to the Damascus regime is, I am sure, one that the House will note, but we are clear that we should do nothing to prolong unduly that regime which, as noble Lords will be aware, has conducted appalling atrocities on its own people.
Lord West of Spithead (Lab)
My Lords, in September this year I will have been on the active list in the Navy for 50 years. All my experience seems to indicate that the handling of this situation of the embeds has been a total cock-up. When one makes a cock-up one should just admit it, learn and move on. My question relates to a clarification. Are we now saying that UK personnel embedded in other nations will be allowed to be engaged on the ground and in the air over Syria? How many naval pilots are in the air wing of the next carrier which is moving out to replace the carrier in the Gulf, and will be flying operations in Syria?
Earl Howe
My Lords, it will not surprise the noble Lord to know that I do not share his analysis of the handling of this matter. I can tell him that UK pilots embedded with the Royal Canadian Air Force and USAF have permission to strike ISIL targets in Syria should their mission require them to do so. The US unit that UK pilots are currently embedded with has conducted strikes in Syria, but it is important to emphasise that neither the US nor Canada is authorised to attack Syrian regime military forces.
Lord Glenarthur (Con)
My Lords, is it not the case that secondment or exchange has been part of the services’ policy, rightly, for very many years and provides very valuable experience and expertise in both directions, and that, once seconded, our servicemen fill a vital role as part of the services that they are seconded to? Does the noble Earl further agree that, should our servicemen not be able to play a full operational part on deployment, secondment would be worthless and disruptive to the other nations, who are often our allies—probably all our allies—to whom the individuals are on exchange?
Earl Howe
I fully agree with my noble friend. In a nutshell, one could say that service personnel are either embedded or they are not. The value to our people from being embedded with the United States Navy is the key skills that they are acquiring to operate the Queen Elizabeth class carriers when those come into service later in the decade. The experience gained by flying and supporting US fixed-wing aircraft will allow the pilots to retain the suitably qualified and experienced person status needed to operate the F35B.
Baroness Jolly
My Lords, in the Syria Statement yesterday, the Secretary of State’s words were carefully chosen. At the moment, our actions could be construed as the West versus Islam, so could the Minister see any likelihood of future pilots being embedded in Middle Eastern partners’ forces? Would any ministerial permission therefore need to be sought?
Earl Howe
My Lords, exchange of personnel is a regular feature of our Armed Forces, as the noble Baroness will be aware, and this has been the case for many years. I asked for figures relating to our personnel embedded with the forces of other nations, but that statistic is more difficult to come by than might be initially supposed. However, if I can enlighten the noble Baroness, and indeed the House, I would be happy to do so once the information has been gathered.
Lord Elystan-Morgan
My Lords, I am grateful. I wonder if the noble Earl can kindly tell the House what in public international law is the status that Her Majesty’s Government regard President Assad as occupying, bearing in mind that some two years ago, in respect of all the belligerents that were opposed to President Assad, we accepted a status for each and every one of them—including, as it so happened, ISIL.
Counter-ISIL Coalition Strategy
Earl Howe Excerpts(9 years, 4 months ago)
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, with the leave of the House, I shall now repeat a Statement made in another place by my right honourable friend the Secretary of State earlier this afternoon on “Counter-ISIL Coalition Strategy”. The Statement is as follows.
“Mr Speaker, ISIL poses a direct threat to the UK and to countries around the world. Last month, 30 British citizens were murdered on a beach in a brutal and cowardly attack inspired by ISIL. It is right that the UK is making a significant contribution to the international coalition to defeat ISIL and destroy its bases in Iraq and Syria.
More than 60 countries, both within the region and from outside, are part of that international effort, demonstrating the widespread opposition to and abhorrence of ISIL’s barbarous terrorism. There is a well-planned, integrated strategy to defeat ISIL which includes: action to cut off its funding; stopping the flow of foreign fighters; humanitarian assistance to both Iraq and Syria; strategic communications co-chaired by the UK to tackle its poisonous ideology; and the military campaign.
This strategy is overseen by Ministers from all the key nations, including the Prime Minister of Iraq, Haider al-Abadi. Our strategy is therefore comprehensive and broader than simply military action. It deals with the ideology and territory that is ISIL’s centre of gravity that it is committed to expanding. However, the military element is essential. The coalition has helped to halt and hold ISIL after its rapid advance across Iraq last summer. Coalition airpower, including sophisticated UK aircraft, flies daily missions to strike ISIL targets and gather intelligence.
The air campaign is helping to turn the tide and it will support ground forces to ultimately defeat ISIL. The Iraqi Prime Minister has been very clear that those forces must be local forces. Western troops operating in a ground combat role would serve only to promote ISIL’s ideological narrative and radicalise more people.
Our expertise is being used to help train local forces and to support efforts to generate Sunni forces to retake and hold the ground in Sunni areas. So far, the coalition has trained nearly 11,000 Iraqi personnel, with the UK training over 1,700. Iraqi forces, supported by coalition airpower, have had some successes against ISIL, retaking Tikrit, pushing ISIL out of Baiji and away from the Kurdish region of Iraq, and they have recently begun operations to retake Ramadi. Since August last year, ISIL has lost about a quarter of the territory that it held in Iraq.
Roadside and vehicle-borne bombs are slowing the progress of Iraqi forces. I can announce today to the House that the first additional counter improvised explosive device training team will deploy around mid-August. When complete, that will bring the number of British troops inside Iraq to 275.
Tackling ISIL only in Iraq is illogical when ISIL itself does not respect international borders. Its command and control centre is in northern Syria. It is from there that its weapons and fighters flow into Iraq. It is from there that its global influence spreads and from where the direct threat to the UK comes. In Syria, the UK is contributing up to 85 personnel to the US-led programme to train and equip the New Syrian Forces trained outside of Syria, but which will fight ISIL once reinserted back into Syria. Our aircraft are gathering intelligence over Syria for the coalition and we are also the only country flying manned intelligence, surveillance and reconnaissance aircraft over Syria. Some 30% of the entire surveillance operation is British.
Let me turn now to the issue of embedded personnel. As I reported to the House earlier today, while the UK is not conducting air strikes in Syria, our Armed Forces regularly have embeds in the forces of our close partners. Embedded UK personnel operate as if they were the host nation’s personnel under that nation’s chain of command, but they remain subject to UK domestic, international and host nation law. Ministerial approval is required for UK embeds to deploy with allied forces on operations. Over the last 12 months, a total of five pilots have been embedded at one time or another with forces conducting strikes over Syria; none is currently involved in air strikes. A further 75 personnel have been embedded with US, Canadian and French forces in a range of operations against ISIL.
ISIL has killed many of our fellow citizens and it is actively plotting to kill more. The Prime Minister today set out our plans to tackle extremism and radicalisation at home. We are also determined to use the forces at our disposal to do more to tackle ISIL at its source. I commend this Statement to the House”.
My Lords, that concludes the Statement.
Lord Wallace of Saltaire (LD)
My Lords, I am most worried about the statement in this Statement:
“There is a well-planned, integrated strategy to defeat ISIL”.
That is not what it looks like to many on these Benches and elsewhere. We are in an extremely complex situation in the Middle East in which some of our partners are on our side in some respects and on the other side for other purposes. I was being briefed at lunchtime today about the complexities around the Kurdish forces which are involved in the conflict both in Syria and in Iraq, and the deeply ambivalent attitude of the Turks and of the Iraqi Government to their activities. That is merely one of the many complexities that we face.
The coalition, after all, includes Turkey, Qatar, Saudi Arabia, Jordan, and many others, many of which have reservations about how we see the conflict. For many purposes, Iran is effectively now an additional member of the coalition, and one of the strongest forces opposing ISIS. I wish I could see a well-integrated strategy. I fear that it is not possible to have one, given the complexity of the situation facing us.
We are talking about local forces that are engaging ISIS. Jabhat al-Nusra is one of the forces that engage ISIS but I am not entirely sure that we want to support it or provide it with more assistance. Some of the Shia militias in Iraq are not as easy as we would like, and sadly the Free Syrian Army, which we have been training, is not one of the strongest forces in the land. I was also worried by what the Prime Minister said at the weekend about domestic radicalisation and counterterrorism because we are all clear that there are direct links between domestic radicalisation and the actions of some of our allies and partners in promoting radical and jihadist versions of Islam against moderate Islamic practices.
We recognise that the Government are edging towards asking for British planes to be involved in bombing in Syria. A small number of British planes bombing ISIS in Syria is no more likely to resolve the multiple conflicts across the Middle East than bombing Damascus would have done two years ago. There is no shortage of aircraft in the Gulf states and Turkey that are quite capable of bombing ISIS from the air. It worries me that we are told that 30% of the surveillance activities over Syria are being conducted by British planes. That suggests that not many other planes apart from American ones are flying over Syria.
Sadly, some of the Governments have themselves supported radical Islamic groups and are still ambivalent about attacking Sunni groups, however radical or brutal, such as Jabhat al-Nusra. It is not in Britain’s interests to cling to the hard-line Sunni side of a developing Sunni-Shia conflict. Nor is it in our interests to present ourselves to ISIS as an existential enemy—I note that the Statement downgrades “existential threat” to “direct threat”, which is perhaps a little better—when ISIS is a much more direct threat to moderate Muslims and to regimes across the Middle East. We should be working with others to promote a coherent response from the neighbours of Syria and Iraq, which we can support, not repeating the mistake of the 2003 Iraq war when we followed the Americans into bombing and then occupying an Arab country.
Some of Britain’s allies in the Middle East have actively funded radical Islamic mosques and movements in the UK and elsewhere. The Prime Minister’s commitment to combat radicalisation within Britain would be more persuasive if he spelled out to the Saudi Government, in particular, our condemnation of Saudi money funding radical groups, and that the Saudis must now themselves take responsibility for containing violent jihadism among Sunni Muslims.
The Prime Minister responded positively to a request from our Middle East partners that we should conduct an inquiry into the Muslim Brotherhood. It is now time for the Prime Minister to ask them in return to conduct an inquiry into the funding of radical Islamic groups in our territory.
I have some questions, if I may. Which local forces are responding? Do they include Kurdish forces in Syria and Iraq? Do they include the Shia militias? What is their attitude to Jabhat al-Nusra? How many of our Middle Eastern partners are currently flying air strikes over Syria? I was told the other day that only one was doing so—Jordan. In terms of embedded personnel, how many RAF pilots are embedded in US drone units, which are flying drones, including armed drones, over the Middle East? How many embedded personnel from other states are currently embedded in British forces? I have been told that French pilots are flying in RAF strike fighters, for example. We, of course, know about the Dutch in the UK/Netherlands Amphibious Force. Are there others? Would it not be proper, either now or later, to give us at least a Written Statement telling us what the position is the other way round as well?
Earl Howe
My Lords, I am grateful to both noble Lords for their comments.
The implication, if not the overt proposition, of the remarks made by the noble Lord, Lord Rosser, was that Her Majesty’s Government had been guilty of bad faith towards Parliament. I ask him to accept that there has been no bad faith towards Parliament. Indeed, that is the last thing that Ministers want.
I take the House’s mind back to the vote that took place in the House of Commons on 29 August 2013. The context of that vote was a proposal to approve UK military action to prevent and deter the use of chemical weapons by the Assad regime. The Motion before the House was not about, and significantly did not cover or forbid, anything else. It explicitly did not recognise the rise of ISIS, which had not by then occurred. What has ensued from those votes?
At no time have British pilots or British aircraft been involved in strikes against the Assad regime under the British flag. The will of Parliament has, therefore, not been flouted in that sense. Indeed, the United States has not been involved in air strikes against the Assad regime. In accordance with a decision of the House of Commons on 26 September 2014 we have been involved in coalition operations against ISIL in Iraq, and we have supported our allies in their operations against ISIL in Syria—notably in surveillance operations. There have not, on the other hand, been any UK airstrikes over Syria. What we are talking about now are US airstrikes against ISIL in Syria, which have included some embedded UK pilots over the last few months.
Embedded personnel are not acting under a UK chain of command. That is why Ministers did not think it incumbent on them to report to Parliament about the potential use of those embeds. I was asked when formal authority was given. I understand that it was given in early October last year by the Secretary of State for Defence and the Prime Minister. Operations conducted by the United States did not in our judgment fall within the scope of the Government’s commitment to return to Parliament if the UK were ever to propose to take military action in Syria.
I naturally regret it if the noble Lord feels that he would have taken a different view. However, it has been long-standing practice by Governments of all colours not routinely to publicise embeds, as they are not our forces or indeed our operations. Those operations are a matter for the forces concerned. The view of Ministers was and remains that there was no need to change that position as these pilots were operating as members of the host nations’ military, so the House should be clear that this is not Britain conducting airstrikes in Syria. However, of course, we confirm the position, if asked. When my department received a request we were happy to set out the position.
I can say, too, that there is a clear legal basis for coalition operations in Syria, which governs any activity that takes place in that country. Any activity by UK personnel embedded within US or Canadian forces will be conducted in accordance with the UK’s interpretation of international law, and of UK law and the appropriate rules of engagement.
With regard to the future, the House will be aware that we do not regularly update either House of Parliament on this routine area of defence activity. As I said, we respond to parliamentary inquiries when those are put to us. UK forces are regularly embedded in the forces of other nations. They have been for many years, and we have a long-standing exchange programme with allies, meaning that there will always be a small number of UK military personnel operating under the command of foreign nations. It would be quite impractical to have some kind of unwieldy, running commentary on military operations conducted by other nations.
I turn to the remarks of the noble Lord, Lord Wallace, many of which I welcomed and agreed with. ISIL cannot be defeated on the battlefield alone. We continue to work to support the kind of inclusive political settlements that would help to deal with the causes of ISIL’s rise. In Syria, this means that we are working to support the moderate opposition and to push for a political settlement.
The noble Lord said that, in his perception, there was no visible sign of a strategy. However, I bring his attention to the fact that there is a very concerted political mechanism overseeing the campaign against ISIL, of which the military component is only one part. That strategy involves a number of key nations. There have already been two significant meetings, at Lancaster House and in Paris, to draw up and take stock of the strategy. It has five strands, as the Statement indicated: counterinformation, the flow of fighters, the humanitarian dimension, countering the financial flows that ISIL receives, and military operations. We are supporting the Iraqi Government in their commitment to inclusive governance and reconciliation between communities, particularly as they re-establish security and governance in areas liberated from ISIL’s control. We are also pressing Prime Minister Abadi to progress his national guard law to strengthen the Iraqi security services’ accountability.
The noble Lord asked me what the value-added of a UK component in offensive operations in Syria would be, were we ever to come to Parliament to seek permission for that. He asked me a number of detailed questions. If he will allow me, I will reply in writing to the extent that I have the information, but the United Kingdom can and does offer some unique capabilities that would undoubtedly be seen as extremely helpful if we were to join offensive operations over Syria, not least a capability for precision bombing.
I also ask the House to reflect on the overall context of what we are talking about. ISIL is a ruthless organisation. It has murdered several of our innocent citizens in Tunisia and in other parts of the world very brutally. It is right that we support our United States allies in what they are doing to counter ISIL. As the Statement made clear, ISIL’s centre of operations is in northern Syria. While we are not proposing ever to flout the will of Parliament in terms of conducting offensive operations against Syria ourselves, nevertheless we will continue to play our part in what has become a very effective coalition.
Lord King of Bridgwater (Con)
Does my noble friend recognise that the House thinks the Government are quite right to bring forward, before the House rises, this Statement on their strategy to counter ISIL? It is against a situation that every single Member of this House recognises is extraordinarily grave, in terms of both security and the possible humanitarian catastrophe that might affect some of the countries we are dealing with. Against that background, I find it absolutely mind-blowing that the sole contribution from the Opposition Front Bench was to argue against the system of embedding, which anybody involved in defence knows has been long-established for many years by different countries. We take in officers and other ranks from other countries; we likewise enjoy the benefit of them. They are under other people’s command. It is run as effectively as possible.
The noble Lord, Lord Wallace, made a much more measured contribution on the question of the objectives. In addition to the military objectives and the diplomatic objectives—Russia, Iran and others have a contribution to make in this area—is resources and funding. Anyone who has had to deal with terrorism knows that very often, at the back of it, money has a lot to do with it. The greatest effort that can be made, in addition to the military and security effort, is to try to switch off the resources that are undoubtedly available to ISIL in its various activities.
Lord West of Spithead (Lab)
My Lords, I am delighted that we now have a well-planned and integrated strategy, because until now we did not seem to have one at all. I thought the Prime Minister’s speech today about the UK aspect of that was very good. We are beginning to tackle this, but my goodness me, we need to get our act together on all the strands that the noble Earl talked about.
My question relates specifically to Syria. Clearly, the Americans are running the air tasking order for that region, which is highly complex. As the noble Earl said, we are using a lot of ISTAR assets over Syria, so the Americans must at the very least be dealing with Assad and his integrated air defence system, talking to him prior to these operations going on. I would be interested to know how much we have been involved in talking to Assad and his people about this. Clearly he has given permission for this to happen, aside from saying that the Iraqis have. Looking ahead, it makes no military sense only to attack targets in Iraq and not in Syria, as has been said. What sorts of deals will we be doing with Assad? In the final analysis, even if we clear Iraq of ISIL fighters—which we will—we will not have beaten ISIL because it has a haven and base in Syria. We will end up having to do something in Syria that is unbelievably complex and difficult. I am not at all clear how we can move forward in that arena.
Earl Howe
My Lords, again, I agree with much of what the noble Lord, Lord West, said. I am not aware of any discussions that have been going on with the Assad regime on the part of UK Ministers. If there is anything I can tell him on that front in writing I will, although he will understand that much of this territory has to remain confidential. Indeed, we do not comment on the detail of specific operations, as he knows. Nevertheless, the overarching point that he makes is fair. We certainly do not want anything we do to assist the Assad regime. I do not believe that we have been guilty of that. However, it is important to counter ISIL wherever it appears and to push it back from the territory that it has gained. After that, we need to address the Assad regime and how, on an international basis, we set about displacing it.
Lord Wright of Richmond (CB)
My Lords, at the risk of repeating some of the points already made, does the Minister accept that several members of the international coalition, such as Turkey and Saudi Arabia, attach a higher priority to the removal of the Syrian regime, as part of the Sunni/Shia or Arab/Iranian dispute, than they do to the containment of ISIL? The Statement makes clear that any strategy is overseen by Ministers from key nations, including the Prime Minister of Iraq. What about Syria? What steps is the coalition taking to co-ordinate its action with the Syrian armed forces, which after all are taking the main brunt of ISIL’s military expansion in Syria? Finally, would the Minister tell us what contact, if any, we or our European partners have with the Government in Damascus?
Earl Howe
The noble Lord’s question is very similar to that asked by the noble Lord, Lord West. The short answer is that I do not know. If there is an answer I can give to the noble Lord about that, I will be happy to do so. However, these matters are very delicate. As he said, the political forces at play—if I can put it that way—in that part of the world are extremely complex. He rightly points to the priorities of some countries in the region being different from those of the United Kingdom, and I agree. I think the same could be said for Turkey, which perhaps puts greater emphasis on countering the Kurds in the southern part of Turkey than we do. Nevertheless, we are working with our Turkish friends and they are extremely supportive of the work we are doing. I am advised that there are no direct discussions with President Assad or his regime. However, if there is any further detail I can give the noble Lord, I will, as I say, follow up in writing.
Baroness Falkner of Margravine (LD)
My Lords, I have great respect for the noble Earl, Lord Howe, so it is sad to see his semantic convulsions to avoid the impression that UK forces are flying in bombing missions over Syria. If one of those five pilots were shot down during a bombing raid, how would he explain in plain English to the country that this was not a military operation by UK forces over Syria? On the broader point, is he aware of the comments over the weekend of the noble and gallant Lord, Lord Richards, former Chief of the General Staff, that an ideology such as ISIL’s cannot be defeated militarily other than through boots on the ground and a full-on war, even if one were to go that far? Therefore, will he tell the House what happens when ISIL is displaced to other countries such as Afghanistan and Pakistan? Are we going to reinvade those countries? What strategy do the Government think they are achieving through the military part of this campaign?
Earl Howe
My Lords, I did see the comments of the noble and gallant Lord, Lord Richards. I simply point out that, as for the proposition that the United Kingdom, or, for that matter, any of the coalition allies, should put boots on the ground in Iraq, or, indeed, Syria, that course of action would not be conducive to a satisfactory end game or resolution. We are in Iraq at the invitation of the Iraqi Government. They have said in terms that they do not wish to see western ground troops in their country for the very good reason that the more we, as western nations, are seen to occupy Iraq, the more likely it is that local people and, indeed, individuals in this country will be radicalised, so that cannot be a way forward there. Let us be in no doubt, though, that the air strikes have achieved very significant results. I am sure all noble Lords agree that no air campaign could hope to win the war. However, the contribution that the air campaign has made is beyond question. It has stalled ISIL in its tracks, has enabled ground forces in Iraq to recapture large slices of territory previously occupied by ISIL, and has been effective in keeping ISIL at bay. It is not the whole story. That is why, along with our allies, we are engaged in training Iraqi forces and their officers. This is very welcome to the Iraqi Government. It is necessary, I believe, and this activity will continue.
I hope that the noble Baroness will allow me to avoid her first question about what might happen if a British pilot were captured, as contingency plans are in place for the retrieval of pilots by the coalition if need be. However, I do not wish to go into the detail of what those plans are.
Lord Howell of Guildford (Con)
I very much welcome the way in which my noble friend presented this very clear Statement on coalition strategy to the House. It casts new light on an issue about which there has been doubt in the past, and we all understand more clearly what is being done. It is of course complete nonsense to say that Parliament voted against attacking ISIS two years ago. ISIS did not even exist then and the vote two years ago was about a completely different issue. I cannot understand why that sort of “silly season” approach has been used by the Opposition.
My noble friend is also completely right to point out that ISIS makes a thing of ignoring international boundaries and national frontiers. It operates across countries and denies the existence of nations. As I think the Statement implied, it is absolutely clear that, in destroying ISIS, and this barbaric, evil movement, which is a challenge to all civilised nations, we have to operate on the same basis and in more than one country. That is absolutely clear. I am very glad to hear that for the future that is clearly the way the Government are thinking. I believe it is also important to recognise that this is not just a US-led western approach. The entire organised, civilised world is threatened and we need the maximum co-ordination but not from merely the regional powers; it needs to be eastern, Asian, western and southern powers as well—all are involved in bringing together this coalition, and strengthening it should be our prime task from now. Does he agree with that?
Earl Howe
My Lords, I do agree and I am grateful to my noble friend for his comments. He is quite right: ISIL does not respect international boundaries. My Secretary of State has said publicly that he thinks it is logically incoherent that the United Kingdom is unable to engage in offensive operations over the border into Syria, whereas it is able to do so in Iraq. Nevertheless, we have been absolutely clear that we will return to Parliament for a separate decision if we propose to take military action against ISIL in Syria. Having said that, as the Prime Minister has made clear, if there were a critical British national interest at stake, or a need to act to prevent a humanitarian catastrophe, we would act immediately in those circumstances and explain to Parliament afterwards.
Lord Dannatt (CB)
My Lords, I have no particular brief to offer an explanation of what my noble and gallant friend Lord Richards said recently. However, if we take seriously the fact that ISIL must be defeated, the broad strategy of the coalition must be pursued with all vigour. I am sure that the noble Earl agrees with that. We need to do that to make sure that we do not, in extremis, ultimately have to put British soldiers and British units on the ground. Therefore, we must do everything short of doing that. Does the noble Earl agree that, although it is tremendous that there is now a coalition of 60 nations fighting ISIL, those myriad 60 countries can lead to confusion among those we are trying to help? A country such as the United Kingdom has great expertise in providing training teams, equipment and know-how to those fighting on the ground. Therefore, will the noble Earl bring to bear all the influence he can within the Ministry of Defence to ensure that we deploy our maximum efforts to send British training teams, so that our expertise is maximised and the confusion which a number of the recipient countries are experiencing is reduced?
Earl Howe
I agree with the thrust of the noble Lord’s points and questions. He is absolutely right that, to the extent that we are able to do so, we should use our strongest endeavours to contribute to the anti-ISIL effort. We will contribute around 85 military personnel to US-led training of the moderate Syrian opposition, training thousands of screened members of the opposition over the next three years in, for example, the use of small arms, infantry tactics and medical skills. More than 6,000 Syrians have volunteered for the train-and-equip programme and are in various stages of registration, pre-screening and vetting. It is imperative that we attract, recruit and retain the right candidates. We screen potential recruits thoroughly.
Our focus will initially be on helping the new Syrian forces defend communities against ISIL and eventually lead offences against its brutal attacks. Training will take place in Turkey and other countries in the region. I have already referred to the training we are undertaking in Iraq, which, as I have said, is welcomed by the Iraqi Government and is proving effective.
Lord Ashdown of Norton-sub-Hamdon (LD)
My Lords, I am sure I heard the Minister say that were British aircraft to be used over Syria to bomb ISIL, they would bring—I think his phrase was—unique capabilities. Will he explain, within his ability to do so, what those unique capabilities would be that were not already fully supplied in good measure by the United States, apart from anyone else? Were the Government to bring to the House a proposition to use British aircraft over Syria, and were we to believe that that was anything other than token bombing for political purposes and to cheer ourselves up, we would need to be convinced that the very small amount of high explosive that the British could add to the huge weight of high explosive already in theatre, which can in fact not be used because it cannot acquire the targets, would make any material difference whatever. Surely our skills and ability would be better served by following the line proposed by the noble Lords, Lord King and Lord Howell, to see if we can build the wide coalition—building on the Tehran deal, bringing in Iran and bringing in Russia—that will be necessary to make sense of military action, which, without that, seems to have very little.
Earl Howe
I agree on the need for a wide coalition. As has been said, there are already 60 nations involved in the current coalition. I also agree that it is important that we bring along with us as many other nations as we can.
As regards the proposition that United Kingdom forces under a UK flag should conduct offensive operations in Syria, as I said, that would be subject to a separate vote in Parliament. But it is right for me to make it clear that the Government would not wish to come to Parliament with a half-baked proposal. We would want to garner as widespread support as possible across the political spectrum, including from the Opposition, and that entails demonstrating that the UK could make not only a positive contribution to the coalition effort but one that would in a real sense be unique or nearly unique.
I mentioned precision bombing as one of the capabilities that we have that other nations do not, apart from the United States. We are certainly in a prime position to offer state-of-the-art surveillance capabilities to any operation, and we are second to none in the quality of the training that we supply to foreign countries.
Lord Naseby
Is my noble friend aware that I was an embedded RAF officer responsible to the Canadian Government in the 1950s and that there is nothing unusual about that? Will he please clarify the point about airspace raised by the noble Lord, Lord West? Is he saying that there is an air exclusion zone across the 30% of the ground area of Syria that is controlled by ISIL? Is he further saying that the surveillance drones are surveilling only that 30%?
Earl Howe
There is not an air exclusion zone because, as has been made clear, we are conducting surveillance operations on behalf of the coalition and we have always been open about that. What I hope I have been clear about is that we have not gone that stage further and commissioned or commanded British forces to engage in offensive operations over that territory.
Commonwealth War Graves Commission
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, I warmly thank my noble friend Lord Forsyth for tabling this Question for Short Debate and for giving the House the opportunity to give due recognition to the work of the Commonwealth War Graves Commission. Last year we paid national tribute to those who fell in their millions in World War I, at the centenary of the start of what was justifiably known as the Great War. It is now 70 years on from VE and VJ Day, and we are remembering those who fell fighting for the Commonwealth in the Second World War, liberating Europe and the Far East from tyranny. Recently this year we also paid tribute to the thousands who perished in the seas and on the rocky hillsides of Gallipoli. All this shows the importance that we all place on the act of remembrance, so it could not be a more apposite time to have this debate and to recognise the excellent work done by the commission, especially with its own centenary coming up.
It is worth reminding ourselves of the value and significance of what the commission does. The Commonwealth War Graves Commission ensures that 1.7 million people who died in the two world wars will never be forgotten. Its cemeteries and memorials are designed to be a lasting tribute to the war dead, and places where visitors can come to remember their sacrifice. The commission cares for cemeteries and memorials at 23,000 locations in 154 countries. Its principles, laid out in 1917, that no distinction should be made on account of military or civil rank, race or creed, are as relevant today as they were almost 100 years ago.
At the same time, we also have a responsibility to maintain what the commission’s founder Sir Fabian Ware described as that “immortal heritage”. With regard to the fallen:
“Age shall not weary them, nor the years condemn”,
yet the gravestones of the fallen are prone to the vagaries of climate, pollution and even vandalism, so conservation and maintenance is an ongoing task. Each year around 20,000 headstones are either replaced or repaired. As well as existing graves, sometimes new stones and even new graves are required to inter the remains of those brave souls only recently discovered, as has been mentioned in this debate. In 2010, for example, 250 Australian and British casualties from the Battle of Fromelles required the construction of an entirely new cemetery, Fromelles (Pheasant Wood) Military Cemetery in northern France.
The CWGC is at the heart of World War I centenary commemorations and, working with the Department for Culture, Media and Sport, will support the UK Government in their delivery of a series of high-profile state-level events, the majority of which will take place at commission locations, to mark key World War I anniversaries. The focus for commemoration of the Battle of Jutland will be Lyness in the Orkneys, and Thiepval will host the event for the Battle of the Somme. The CWGC aims to mark these centenaries appropriately while engaging new generations in the importance of ongoing remembrance of the war dead and of visiting their sites.
Although when you think of a Commonwealth war grave cemetery you almost automatically think of those in Flanders and France, there are, as my noble friend Lord Forsyth mentioned, more than 300,000 Commonwealth service men and women who died in the two world wars who are commemorated in the United Kingdom. Their graves, numbering some 170,000, are to be found at over 13,000 locations. In addition, some 130,000 missing Royal Navy, Royal Air Force and Merchant Navy casualties are commemorated on the great memorials at Chatham, Plymouth, Portsmouth, Tower Hill and Runnymede. This is the highest total of world war commemorations in any country other than France, yet most people are completely unaware of this commemorative legacy on their doorstep. These widely dispersed and varied war graves are maintained directly by the commission’s staff or through more than 4,500 maintenance contracts and arrangements with individuals, contractors and burial and church authorities.
The CWGC has been working with the All-Party Parliamentary War Heritage Group, the education community and local communities to raise awareness of this nationally important commemorative heritage and to encourage communities to use these places as part of their efforts to remember those who died. New signage to help people identify sites containing war graves is being erected at more than 3,000 locations. Education and outreach initiatives are also under way. In the UK, the CWGC is aiming to raise awareness, appreciation and use of the war graves and memorials that exist here. It also seeks to raise understanding and acceptance of the fact that war graves in municipal cemeteries or churchyards cannot be maintained in the same way as those in dedicated war cemeteries—a point raised by the noble Lord, Lord Rosser. The unique approach to war graves in the UK—with the vast majority of graves scattered in burial grounds not owned or controlled by the CWGC rather than in military cemeteries or plots—means that they must inevitably be dealt with differently from the war cemeteries directly owned and managed by the CWGC overseas.
The noble Viscount, Lord Slim, highlighted the power and importance of visits. With so many locations, it is only natural that some are more visited than others. As a result of the public engagement in the World War I and World War II anniversaries, visitor numbers to the major cemeteries and memorials on the former Western Front are at an all-time high, yet many cemeteries get few or no visitors at all. Some places, such as Palestine, Salonika, east Africa and northern Italy, despite being significant visitor destinations, get few or no pilgrims to the war graves there. We would like to encourage visitors to take some time out when abroad, see if there is a British cemetery nearby and, if so, visit it. The level of sacrifice in both world wars is such that there are a very large number of such locations.
As the noble and gallant Lord, Lord Stirrup, rightly said, we should not forget that behind every single headstone and name on a memorial is a person, with a family, friends and a story to tell. The two world wars were global conflicts, and the contribution of the entire Commonwealth was vital to allied success. However, the sacrifice of men and women from undivided India, the West Indies and Africa is known but not extensively written about or recognised. Many of them are interred in the commission’s cemeteries. The CWGC has produced a series of award-winning education resources that attempt to address this overlooked aspect of our shared history, thereby ensuring an inclusive commemoration of the war dead.
The Government will never forget their responsibility towards the commission, and I reassure noble Lords that we remain committed to maintaining current levels of support in line with the official inflation rate. Apart from the UK, five other Commonwealth countries —Australia, Canada, South Africa, New Zealand and India—contribute to the cost in proportion to the number of graves that they have. The noble Lord, Lord Rosser, asked about unilateral funding reductions, and I am pleased to clarify that each of the CWCG member Governments has an equal say in the running of the CWCG. The UK contribution amounts to almost 80% of the total annual funding, which in 2015 was in excess of £47 million. In addition, the MoD provides £1.3 million to the CWGC for the cost of maintaining 20,000 Boer War graves in South Africa and a further 21,000 non-world war graves around the world.
As well as its numerous ongoing tasks, I know that the CWGC will be particularly busy this year. Arrangements are in place for the CWGC to continue the maintenance of post-war graves in cemeteries at Rheindahlen and Hanover as British forces withdraw from Germany. Discussions are also taking place on the maintenance of graves in the Falkland Islands. The commission continues to transform its business, delivering efficiency and financial stability, and making sure that the money it receives can go further.
The commission should be in no doubt of the value of its work to the Armed Forces, to the nation and to future generations. For almost a century it has played a critical part in the vital work of remembrance. It has made sure that those who fought for our freedom are given the honour and dignity they deserve in death. I know that all noble Lords will want to join me in giving the commission our thanks for everything that it does.
Defence: Budget
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, I thank my noble friend Lord Sterling for giving us the opportunity to debate a topic of fundamental importance for the security and prosperity of this country. He brings to our deliberations a wealth of experience in both business and politics, and I listened to him, as I always do, with the closest attention. However, he has also enabled me, as the new Minister on the block, to benefit from the wisdom of the other speakers here this evening, and I am grateful to all of them for their contributions. I shall of course write on those questions that I am unable to address tonight.
As this debate has shown, the House recognises that the first duty of government is to protect its people and promote our interests around the world. Therefore, I preface my remarks by making clear that the influence that this country continues to exercise globally and the respect that we command through our military, diplomatic and development capabilities are major national advantages that the Government are committed to maintain.
The defence budget, and the way we use that budget, are of course key components in the way we achieve this. Listening to noble Lords this evening, I cannot fail to be aware of the anxieties that exist in some quarters about current and future defence funding. At the same time, I suggest that we need to take a realistic and measured view, both of what we are doing currently and of what we plan to do. At present, the UK has the fifth-largest defence budget in the world, the second-largest in NATO and the largest in the EU. That budget has enabled us to commit our Armed Forces, as we speak, to 21 operations in 19 different countries. It has enabled us to achieve genuine global reach in Iraq, Afghanistan, the Baltic, west Africa and, most recently, Nepal and the Mediterranean, to name only a few examples.
In Iraq we bring niche capabilities such as intelligence, surveillance and reconnaissance, air refuelling, counter-IED, and command and control to the US-led coalition which few other nations can replicate. We are the US’s largest partner in the coalition air effort against ISIL.
In Afghanistan we can be proud of what we have achieved in our largest coalition operation of recent times, Operation Herrick. We have helped to set the conditions for a more viable state, improving the lives of ordinary Afghans, while substantially reducing the terrorist threat to the UK from this region.
This year, our contribution to NATO assurance measures will be as significant as last year, with more than 4,000 UK personnel set to deploy on various reassurance exercises, including a number in eastern alliance territories.
In Nepal we demonstrated our disaster relief capabilities when we deployed one C130 Hercules transport aircraft, two C17 transport aircraft and more than 250 personnel to the region to support relief efforts, on top of our existing Gurkha presence. In Sierra Leone we led the fight against Ebola, committing 900 troops. In the Mediterranean we have demonstrated other elements of our naval capability, deploying HMS “Bulwark” along with three Merlin helicopters to rescue—so far—2,900 migrants in difficulty.
These are our Armed Forces as they are today—capable of responding to a complex variety of challenges quickly and effectively. But, as my noble friend has emphasised, we need to pay equal attention to the defence needs of the future. That is indeed why the Government are in the process of carrying out a full strategic defence and security review, along with a refreshed national security strategy. I say to the noble Lord, Lord Dannatt, that this is not prevarication. The SDSR will take as its starting point a hard-headed appraisal of our foreign policy, our security objectives and the role that we wish our country to play on the world stage. It will be informed also by a full evaluation of the risks and challenges facing us as a country.
Not all these risks can be foreseen but, through the work of the National Security Council and by ensuring that the national security strategy builds on the progress made since 2010, we will be well placed to define the military and other capabilities we need to ensure that Britain has the broad range of capabilities and strategies to respond to threats and maintain its position as a global leader. The noble Baroness, Lady Dean, can be reassured that this will indeed factor in the well-being of our personnel.
However, in so doing, the SDSR will need to balance strategic challenge with fiscal realities. It is unrealistic to think that any part of government can operate in a vacuum, without having regard to the resource constraints that the country faces. Economic security and national security are two sides of the same coin. I cannot therefore comment on what our defence spending will be after this financial year. Such decisions, as my noble friend will understand, will be determined by the spending review later this year, running alongside the SDSR. However, he should, I hope, be reassured in one respect at least. By its very nature, the SDSR will look ahead at the longer term as well as the short and medium term. And here, I suggest, we start from a good position. This Government were elected with a mandate to maintain the size of the Regular Armed Forces, to increase the equipment budget in real terms every year and to renew our four nuclear ballistic submarines.
We have committed to spending more than £160 billion on equipment and equipment support over the next decade; including on new joint strike fighters, more surveillance aircraft, hunter-killer submarines, two aircraft carriers and the most advanced armoured vehicles. We continue to spend 20% of our defence budget on major equipment and equipment support—one of only four NATO members to do so.
This equipment will be innovative and high technology, giving our Armed Forces a battle-winning edge. For example, our procurement of the Scout Specialist Vehicle will transform the way that the Army undertakes operations, enabling commanders to engage at ranges and at a tempo not previously possible.
The F-35 Joint Strike Fighter is a fifth-generation multi-role combat aircraft and marks a step change in capability for the UK. The Queen Elizabeth-class aircraft carriers will be the largest, most capable and powerful surface warships ever constructed in the UK, able to meet the widest range of tasks around the world. All these programmes have a positive impact on the UK’s defence industry, either through their manufacture or through many years of future support.
I assure my noble friend Lord Lyell that the equipment and weapons currently fielded by the British Army are genuinely second to none.
I have read the paper published by King’s College London and mentioned by my noble friend Lord Sterling. We know how important it is to be able to act independently. That is why key principles of the 2012 White Paper, National Security Through Technology, are open procurement and technology advantage. Where essential on grounds of national security, we will do whatever is necessary to protect our operational advantage over our adversaries and our freedom of action. This means being able to conduct combat operations at a time and place of our choosing with the assurance that capabilities will perform as required, when required.
We will spend 2% of GDP on defence in this financial year. But as my noble friend Lord Howell emphasised quite rightly, it is not just the size of the defence budget that is important but also how you spend it. That is why we are continuing with our successful defence transformation programme, which has balanced the defence budget, removing the £37 billion black hole left by the last Labour Government, and committed the department to finding £5 billion of efficiency savings over the last five years, reducing administration costs and critically examining our defence equipment needs, helping us to achieve better deals with our contractors.
Lord Davies of Stamford
I am aware that the Minister is very new to this brief, but I regret very much that he is continuing to mention this complete nonsense and propaganda about a £35 billion black hole deficit. If defence expenditure had gone on increasing at the rate of 1.5% per annum in real terms, which we were committed to, there would have been no such black hole at all.
Earl Howe
My Lords, I totally repudiate that comment. Not only was there a black hole of that size, but I was briefed on it the other day and it is even greater than that figure—but we will not go into that now, if the noble Lord will allow.
There is no point in having a £34 billion defence budget if it is not spent efficiently. That is why it is important that we continue our work from the previous Parliament so that we can maximise defence spending on our Armed Forces. This is demonstrated in our 10-year fully funded equipment plan which we published in January. That plan gives industry certainty over MoD investment in different areas for the next decade, helping us to deliver the equipment we need for our Armed Forces. I say again, the fiscal challenge that has faced defence has not impacted on our ability to conduct operations to support our foreign policy objectives —far from it—as I have already indicated with examples of our many military operations around the world.
As has been said, we are not only using military intervention to protect our interests and promote our values; we have a leading diplomatic network which spans 268 posts in 168 countries and territories, and nine multilateral organisations. These unique capabilities have enabled the UK to play a leading role in talks to address Iran’s nuclear programme, disarming Syria of its declared chemical weapons stockpile and establishing a global arms trade treaty. We are also the only G7 nation to meet the UN OECD target to spend 0.7% of gross national income on international development, building stability and supporting economic growth overseas and contributing, importantly, to the security and prosperity of the UK.
The achievements of our defence and diplomatic services speak for themselves. The UK can be proud to have such world-renowned services to call upon. As my noble friend Lord Glenarthur said, the upcoming SDSR is an opportunity to look again at our foreign policy objectives and ensure that we have the assets necessary to address these in the context of the resources available to us. As I said to this House earlier this month, in the words of Churchill, we will do what is necessary to keep Britain safe and will remain part of the international effort to defeat the adversaries that threaten us.
Gurkhas: Anniversary
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, like so many people across the country and on all sides of this House, I have a huge admiration and respect for the Gurkhas. As has been said by all speakers, for 200 years Gurkhas have fought loyally for this country and they rightly deserve their reputation as being among the bravest and most fearless of soldiers. Gurkhas hold a special place in the heart of the British people, and evidence of this can be seen in the generous support given by the British public following the recent devastating earthquake in Nepal.
Before I speak about that disaster, I would like to emphasise the Gurkhas’ primary role, that of soldiers. The Brigade of Gurkhas remains a vital part of the British Army’s military capability. The noble Lord, Lord Rosser, summarised very well their role in our history. Both battalions of the Royal Gurkha Rifles and subunits of the three main corps units all deployed on operations in Afghanistan under Operation Herrick, where they have demonstrated their outstanding war-fighting skills and cultural adaptability. I am proud to have two Queen’s Gurkha orderly officers with me here this evening.
Moving on to recent events in Nepal, the major earthquake tragically led to significant loss of life and destruction to property, and our thoughts are with the people and Government of Nepal at this difficult time. The United Kingdom’s disaster relief response has been led by the Department for International Development, which has provided over £33 million in direct and indirect aid, as was rightly pointed out by my noble friend Lord Sheikh. This aid included the provision of search and rescue teams, trauma medics and logistic supplies. I can say to the noble Lord, Lord Davies of Stamford, that the Ministry of Defence supported these efforts with an airlift and by deploying over 100 additional Gurkha personnel. We offered the services of our Chinooks, but the Government of Nepal did not consider that they were necessary. My right honourable friend the Secretary of State for International Development has visited to inspect and assess the damage and speak to those delivering aid.
The additional Gurkha personnel went into Nepal under the auspices of British Gurkhas Nepal, which is the unit based in Nepal looking after recruitment and welfare matters for the brigade. British Gurkhas Nepal and the Gurkha welfare scheme, which is the field arm of the Gurkha Welfare Trust, are working together to ensure that our pensioners and families are looked after alongside all needy persons in villages affected by the earthquake. It is important to state that we are not discriminating as to who gets the help. Instead, we are providing to the neediest first with the aim of everyone being under cover with access to water before the monsoon rains arrive.
Reconstruction efforts are to focus in the short term on protecting isolated Gurkha communities through the approaching monsoon season. This will include the construction of temporary shelters, the provision of clean water supplies and basic sanitation, and the delivery of aid and basic medical supplies. A squadron from the Queen’s Gurkha Engineers is currently deployed on this task. Subject to Government of Nepal approval, work priorities will primarily be driven by humanitarian need within the Gurkha communities, rather than uniquely supporting the families of serving Gurkhas and Gurkha veterans. To answer the noble Lord, Lord Burnett, we believe that the museum at Pokhara was not badly damaged.
The Gurkha Welfare Trust is the principal Gurkha charity and it maintains through its field arm, the Gurkha Welfare Scheme, a network of welfare centres in Nepal to look after Gurkha veterans in need. The Government provide financial support to the Gurkha Welfare Trust by means of an annual grant in aid of over £1.5 million which pays for the majority of the costs of the Gurkha Welfare Scheme in Nepal. In addition, the Government announced in January that they were giving the trust £5 million from the LIBOR fines to assist its work in Nepal, so I would say to the noble Lord, Lord Bilimoria, and the noble Baroness, Lady Flather, that this is a clear statement of the commitment to and recognition of the work done by the trust in support of Gurkha veterans.
This year we celebrate 200 years of Gurkha service to the Crown. This milestone is a further opportunity to thank the Gurkhas for all that they have done to preserve our freedom and security in many conflicts around the world, most recently in Afghanistan. To celebrate the Gurkhas’ unique service, there are over 100 events of varying size taking place, both in the United Kingdom and around the world, reflecting the brigade’s previous service. These events are being conducted by the serving brigade, the Gurkha Brigade Association and the Gurkha Welfare Trust.
Major events have already taken place. In late March, a gathering of over 3,000 people attended a celebration in Kathmandu, before the earthquake struck. On 30 April, contingents from the four major Gurkha units, with the Band of the Brigade of Gurkhas and the Queen’s Truncheon, marched from Wellington Barracks down the Mall to the Gurkha statue outside the Ministry of Defence. This was followed by a short service to commemorate those from the brigade who have given their lives in the service of the Crown.
Most recently, throughout May, each of the four major Gurkha units has conducted public duties, providing the guards at Buckingham Palace, St James’ Palace and the Tower of London. And as we have heard, a major event, the Gurkha 200 pageant, took place last night at the Royal Hospital Chelsea in aid of the Gurkha Welfare Trust. Her Majesty the Queen attended, along with other members of the Royal Family. I am delighted to note that at least two noble Lords here this evening were able to attend.
I shall answer a few of the questions that were put to me. I turn first to the noble Lord, Lord Burnett, who asked whether the Gurkha battalion would remain in Brunei. The answer to that is yes, because a new agreement was recently signed with the Sultan. He also talked about jungle warfare training. As he knows, this is carried out in Brunei by the Gurkha battalion and other British Army units. In addition, the British Army Jungle Warfare Training School is based in Brunei and is supported by the Gurkhas.
Questions were asked by the noble Lord, Lord Burnett, and others about recruitment. No decisions have been taken about increasing the number of Gurkhas at present, but equally no decisions at all have been taken about reducing their numbers. I can say to the noble Viscount, Lord Slim, that the Brigade of Gurkhas has been wholehearted in its support for its kith and kin in Nepal. Its members are all very keen to deploy in order to support and assist if they can. The brigade has been incredibly active in fundraising and has generated in excess of £300,000 to help the relief effort, which is a commendable achievement.
I would like to thank the noble Lord, Lord Bilimoria, for raising this important subject for debate. I will write to noble Lords on questions that I have not been able to cover this evening, but I am pleased to have had the opportunity to explain the Government’s position on both the support we are providing for the Gurkha Welfare Trust in Nepal following the tragic events of the earthquake and the celebrations behind 200 years of Gurkha service to the Crown.
Lord Bilimoria
I thank the noble Earl for his response, but there was one very specific question: can the Government assure us that there will be no further cuts to the Gurkhas, regardless of the SDSR?
Earl Howe
My Lords, I am sure the noble Lord knows that I cannot separate the Gurkhas out from the SDSR. It would be as impossible to do that for the Gurkhas as for any other part of the British Army. However, I note the strength of feeling that the noble Lord has expressed, and I am sure that that will be conveyed back to those who are in the throes of preparing the initial stages of the SDSR.
Lord Rosser
My Lords, I understand that a commitment has been given by the Prime Minister that there will be no further cuts in our Regular Army. Why is there any doubt that there will be any cuts so far as the Gurkhas are concerned? Are they not covered by the pledge that was given by the Prime Minister?
Lord Martin of Springburn (CB)
My Lords, I will not take a moment. I have been very impressed by all the contributions to the debate. If Gurkha veterans living in the United Kingdom in their advancing years need to do so, will they get access to the hospital charities such as Erskine in Scotland, along with the other military hospitals?
Armed Forces: Airborne Maritime Patrol
Earl Howe Excerpts(9 years, 5 months ago)
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Lord Empey
To ask Her Majesty’s Government what plans they have to improve the United Kingdom’s airborne maritime patrol capability.
The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, we have been clear for some time that the right point to look again at the requirement for a maritime patrol aircraft is in the forthcoming strategic defence and security review, the SDSR. That decision will be informed by the latest threat assessments and the conclusions come to in recent years. We continue to embed around 30 former Nimrod air crew in the maritime patrol communities of allied air forces in order to reduce the time and risks associated with regenerating a capability.
Lord Empey (UUP)
Steady on. Does the Minister not agree with me that one does not need a review to know that, as an island nation with a sea-borne nuclear deterrent capability, we are not even in a position to secure our own deterrent, because we do not have the capability to do so? I understand that all things have to be reviewed, but this is such a no-brainer. It is obviously of great concern if we cannot protect our own sea lanes against an increasingly aggressive Russian naval force. Will the Minister go back to his right honourable friend in the other place and say that we should be proceeding now to prepare the necessary facilities to ensure that we have adequate protection for our nuclear deterrent as well as for our shores?
Earl Howe
My Lords, I absolutely do not accept that we cannot protect our own sea lanes. We have acknowledged that we have a capability gap, following the decision not to bring the Nimrod MRA4 into service, but at the same time we made it clear that we chose to accept that gap because we knew that we could mitigate it through employment of other assets, as well as through co-operation with allies. Even taking operational activity into account, we remain of the view that the SDSR is the right context in which to take a decision of this significance.
Lord Reid of Cardowan
My Lords, does the noble Earl accept that there is an ingenuity in the MoD in producing euphemisms? I was once told that something was being put not into mothballs, but into a “state of extended readiness”. When he mentions the capability gap, will he accept that the maritime patrol aircraft and its facilities is not an optional add-on for a nuclear deterrent but an essential component providing surveillance, security and secrecy of location? What is the point of having a continuous at-sea submarine-based nuclear deterrent if it does not have those features? This has all the hallmarks not of a minor housekeeping problem for the MoD but of a major strategic blunder.
Earl Howe
My Lords, I emphasise again that this matter will be looked at very closely in the context of the SDSR—indeed, some preparatory work has already been done. I do not accept the noble Lord’s contention that we are without protection in this important area. We have the use of other military assets, as I said, including Type 23 frigates, submarines and Merlin anti-submarine warfare helicopters, and we rely on the assistance that we get from our allies and partners.
Lord Craig of Radley (CB)
My Lords, the Minister mentioned that some preparatory steps are being taken in the MoD. What date is the MoD planning for the introduction, assuming an agreement through the review that he mentioned?
Earl Howe
My Lords, I think that the noble and gallant Lord will accept that we must not leap ahead of ourselves too much. However, I can tell him that the capabilities required from a future maritime patrol aircraft have been studied by the MoD over the past two and a half years. The study has received representations from a number of defence industrial organisations, which have allowed us to understand better the nature of the platforms in existence, as well as the timeframe in which novel technologies are likely to mature.
Baroness Jolly (LD)
My Lords, given the Minister’s response just now, can he reassure the House in the mean time how we will be able to meet our international obligations on search and rescue—for example, were an aircraft to crash in the furthermost corner of our sector of the Atlantic?
Earl Howe
My Lords, a range of other military aircraft provide search and rescue radar capability to the Armed Forces. We have the E-3D Sentry system, which admittedly is optimised for the air-to-air role, but its radar has a maritime search mode. C-130 Hercules aircraft are fitted with radar systems that, combined with visual search, provide basic maritime search capabilities. RAF Sea King helicopters, and Royal Navy Merlin and Lynx helicopters all possess short-range surface search radar for use in maritime search operations.
Lord Rosser (Lab)
I welcome the Minister to his first Defence Question since his appointment. He has moved from the health of the nation to the health of our Armed Forces. He referred to the strategic defence and security review and our maritime patrol capability. Can he confirm that, in pursuit of a bipartisan approach to defence policy, Her Majesty’s loyal Opposition will also be involved in the consultations on the SDSR, which the Government told us last Thursday in this House are now taking place?
Lord West of Spithead (Lab)
My Lords, the surveillance of our offshore economic zone and our waters is much broader than just the submarine issue. There is a real resource and money issue. We have already sent two Border Force cutters to the Mediterranean, one of our offshore patrol vessels for fishery protection has gone to the West Indies, and there is insufficient money in the defence budget. If we are going to provide this capability, what capabilities are going to be removed because there is just not enough money to do the things we need to do without going up to at least the 2% of GDP and, ideally, more?
Earl Howe
My Lords, it is important to emphasise that the SDSR will be underpinned by a very robust assessment of the threats that face us and the needs that we have to meet those threats. On the noble Lord’s wider point, the Ministry of Defence is just one organisation with a role in the security of the UK’s territorial waters. Under the UK national strategy for maritime security we have a ministerial working group chaired by the FCO. That has been established to focus on maritime security in its entirety.
Queen’s Speech
Earl Howe Excerpts(9 years, 6 months ago)
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The Minister of State, Ministry of Defence (Earl Howe) (Con)
My Lords, it is a privilege for me to open this debate on Her Majesty’s gracious Speech, in which we will consider the Government’s priorities for foreign affairs, European affairs, international development and defence in the year ahead. We have a long and distinguished list of speakers in front of us, but we look forward with particular anticipation to the maiden speech of my noble friend Lady Helic.
It is also a pleasure for me to represent defence again after an interval of almost 20 years, but first I pay tribute to my predecessor, my noble friend Lord Astor of Hever, who did such a fantastic job over the course of the last Parliament. He brought harmony where there might have been discord and ensured that the debate, while lively and sometimes vociferous, was always conducted in a productive and positive spirit.
When I was last in the MoD, I was responsible for taking through an Armed Forces Bill. That will be one of my responsibilities once more this time around. However, that is one of the few similarities between then and now because the world we contemplate today is a very different place. An arc of instability is spreading from the fringes of Europe and the heart of the Middle East to the horn of Africa. We have seen the resurgence of old threats, with an aggressive Russia annexing Crimea and continuing to destabilise Ukraine. We have seen the rise of new threats with non-state actors such as ISIL and Boko Haram, motivated by an evil religious fanaticism, attempting to set up their own state entities while laying waste to some of the most precious treasures in human history. At the same time, our adversaries are proving ever more ingenious in their methods of attack, using hybrid warfare and cybertechnologies.
In such a world, we must prove ourselves equally innovative and agile in response. That is why, in the gracious Speech, the Government have pledged to do whatever is necessary in an age of persistent competition to keep Britain safe. We will do our utmost to reduce the threat from nuclear weapons, cyberattacks and terrorism and will continue to remain at the forefront of the NATO and international effort to degrade and ultimately defeat the adversaries that affect and threaten us all. We in government will work in parallel across development, defence and diplomacy to enhance the standing and security of Britain in this unstable world. Together we will pursue a coherent policy that protects our security, promotes our prosperity and projects our values.
I turn to some of the specific priorities for this Government in the coming year. I start with defence. First and foremost, we will be focused on the strategic defence and security review. This will be a Cabinet Office-led cross-Whitehall piece of work covering the full spectrum of national security and defence. Work on it has begun and it will report in due course. It will be aligned with the comprehensive spending review and the national security strategy and will be driven by a hard-headed appraisal of our foreign policy and security objectives and the role we wish our country to play. It will recognise that we face an increasingly complex and challenging international and domestic security environment and that our security at home and overseas is intrinsically interlinked. It will also recognise that we must act to prevent, contain and tackle threats that put at risk our way of life and that economic security and national security are two sides of the same coin.
Once the NSS and the national security risk assessment have been established and define where and when the threats may come from, we will be able to identify the resources needed to respond. We should not forget that the UK is a global player with the largest defence budget in the EU and second largest in NATO. We have a huge diplomatic presence, world-leading Armed Forces and intelligence agencies, a strong police force and an impressive National Crime Agency. Noble Lords will appreciate that I am not at liberty to say too much about the review at this juncture. Suffice to say that in 2010, and largely as a result of the reforms that we have made over the last five years, we are in a much better place. The MoD is now a far more efficient, more effective and more innovative organisation. Whatever the outcome, we will be ready to deliver, not least because the UK is proud to call upon some of the best, most dedicated personnel in the world.
In this Parliament we will continue to recruit both the regulars and the reserves we need for our future force, and will work to retain the very best regulars, reserves and civilians in both specialist and non-specialist posts. We will make sure that this agile, flexible force has the right equipment to do the job. That means meeting our manifesto pledge to fund our £160 billion equipment plan at 1% above inflation for this coming Parliament. That investment will allow us to bring in the carriers as well as the ships, helicopters and planes our services need to project power across the globe. In an increasingly dangerous and uncertain world, we will also retain our continuous at-sea nuclear deterrent—it has been there for 45 years and counting—with a fleet of four deterrent submarines, the minimum number necessary.
When our forces are deployed, we need to make sure that they are able to operate without fear of inappropriate and onerous litigation, particularly as a result of spurious allegations. We have debated the issue of legal action on freedom to conduct operations a number of times before in this House. Respect for human rights and the protection of civilians is an essential element of training for our Armed Forces and is reinforced by the service justice system. As we set out in our manifesto, we intend to ensure that our Armed Forces conducting essential military operations overseas are not assailed by human rights claims that lack merit and undermine their ability to do their job. Our plans for effecting this commitment will be set out in due course.
Finally on defence, we will ensure that those who have laid their lives on the line for this country continue to receive the support and assistance they need by strengthening our Armed Forces covenant.
Turning to international development, the Government believe that we must do more than simply mitigate the threats that we face. We believe in being a country that shapes the world. Tackling poverty overseas means tackling the root causes of global problems such as disease, drugs, migration and terrorism. This is not only the right thing to do but is firmly in Britain’s own national interest. The UK is already a global leader in this area. In fact, we are the only G7 nation to meet the UN/OECD target to spend 0.7% of gross national income on international development, and we are proud of that commitment.
The UK delivers aid to where it is most needed and where the best results can be gained for taxpayers’ money. In Afghanistan, British support has helped get girls into school, improved healthcare and created jobs, and we will continue to stand shoulder to shoulder with the Afghan people in the years ahead. In Sierra Leone, the UK can be immensely proud of its lifesaving work leading the international humanitarian response to Ebola. Retaining our spending commitment will allow us to continue promoting stability and economic growth overseas over the coming years. This means saving 1.4 million children’s lives by immunising 76 million children against killer diseases, improving nutrition for millions in the poorest countries, opening up access to a proper education and leading efforts to tackle violence against women and girls.
In everything that we do we will look to boost growth, jobs, business and trade—the only way in which people and countries can sustainably exit poverty and aid dependency. We will support the foundation stones of development—what our Prime Minister calls the “golden thread of development”: good governance, the rule of law, property rights, democracy and the absence of conflict.
That brings me to my last point, on European affairs. When it comes to democracy in the EU, the British public are clear that the EU needs to change. That means reforming welfare and immigration rules, increasing economic competitiveness to create jobs and growth for the working population and protecting Britain’s interests outside the euro. It also means halting the constant flow of powers to Brussels, including by ensuring a stronger role for national Parliaments and dealing with the concept of ever-closer union, which may appeal to some countries but does not work for Britain. My right honourable friend the Prime Minister will lead the renegotiation, working closely with my right honourable friends the Chancellor and the Foreign Secretary, while of course consulting his Cabinet and Conservative Party colleagues.
The Prime Minister has already started to discuss his plans for reform and renegotiation with his EU colleagues. We expect him to set out some further detail at the European Council meeting at the end of June. Following a renegotiation, the Prime Minister has also been clear that he will hold an in/out referendum on the UK’s membership of the EU by the end of 2017. We have today delivered on our promise with the introduction of the European Union Referendum Bill into the House of Commons.
As the Chancellor set out, we go into the negotiations aiming to be constructive and engaged but also firm and resolute. However, we are not starting from scratch. From cutting the EU budget for the first time in history through to protecting British taxpayers from the cost of eurozone bailouts, my right honourable friend the Prime Minister has already secured important changes to how Europe works.
The gracious Speech shows a Government determined to keep this country safe and advance our interests around the world; a Government re-energised and reinvigorated with the right priorities, a clear mandate and a driving purpose to make a real difference for the British people; a Government who are now going to get on and deliver.