Armed Forces Bill

Baroness Drake Excerpts

Tuesday 4th October 2011 Lords Chamber

[Lord Newton of Braintree]

My Lords, I can hardly claim to be an aficionado of this legislation or an expert on military matters, so I had better confess that I am performing my now familiar role as a free radical on the government Benches. I pricked up my ears at the reference made by the noble Lord who spoke to Amendment 11 to the possible role of ombudsmen in relation to servicemen’s grievances and the fact that housing is one of the issues which everyone accepts should be in the Bill.

Not only is the Parliamentary Ombudsman subject to a filter—an MP filter; so is the Local Government Ombudsman, who at the moment is subject to a local councillor filter. However, no mention was made of the Housing Ombudsman. There is a proposal in the Localism Bill that the Housing Ombudsman, for which at present there is no filter, should be subject to a combined or joint filter of MPs, councillors and tenants’ panels, not a direct right of access. That proposal has been the subject of some protest from us, me included, and is currently under review. I am hopeful that there may be change. However, at the moment, that is the situation. Will the Minister explain the relationship between what is proposed in this Bill, what is proposed in the noble Lord’s amendment, and what is proposed in the Localism Bill? Is there any coherence, and does the Localism Bill as it stands affect servicemen’s rights in respect of housing complaints?

[Baroness Drake]

My Lords, I shall speak to Amendment 5 to put the case that the Secretary of State, in preparing the military covenant report, should have regard to the responsibilities the Armed Forces carry towards those who enlist as minors,

“including ensuring their adequate education”.

This amendment acknowledges some of the points made by the Minister in response to my noble friend Lord Judd, who made such a persuasive contribution in Committee, but holds to the case for a statement on minors in the covenant report. When nearly 30 per cent of Army recruits are minors, this places on the Armed Forces a duty of care towards those young people and makes a compelling case for the position of minors to be addressed in the covenant report. Thirty per cent is a sizeable figure and reflects a sizeable dependence on young recruits.

The armed services can give young people a tremendous opportunity to make a success of their lives, but adequate attention must be given to their long-term needs. These young people, many of whom are drawn from disadvantaged backgrounds with few prospects, seek an opportunity to improve their lives. It is young people of precisely this profile whom the Government are targeting in their strategies to improve social mobility and educational achievement. The Government’s response to the Wolf report on vocational education and the Cabinet report on social mobility, Opening Doors, Breaking Barriers, recognise the crucial importance of ensuring that all young people achieve minimum standards of education and training. These goals are shared across government and are not controversial, and I am sure that the Ministry of Defence aspires to meet these standards for its young recruits.

The Army Foundation College at Harrogate accounts for 55 per cent of minors enlisting in the armed services. Many knowledgeable noble Lords have confirmed in debate that much good work with young people takes place there, and I hope one day I may get the opportunity to visit. However, the Ministry of Defence has stated quite clearly that it does not at present keep any comprehensive record of the qualifications achieved by minors while in service. The Minister, Andrew Robathan, has confirmed in the other place that that college is non-academic and teenage recruits training at Harrogate do not study for GCSEs or, as I understand it, any accredited trade. Recruits at Harrogate do not study vocational apprenticeships or gain vocational qualifications in, for example, plumbing, mechanics, electronics, carpentry, construction or similar trades.

The young recruits undertake vocational training designed to enable them to prepare for military training and their Armed Forces role. They have the opportunity to attain qualifications in English, numeracy and the European Computer Driving Licence—a skill certificate that, I accept, is intended to be transferable. Numeracy and literacy training is essential for those with very low levels of educational attainment, a position which many recruits may be in. However, it is important to raise the aspirations and increase the skill levels of all recruits. Many disadvantaged young recruits will not make the successful transition back to civilian employment without accredited vocational or educational qualifications. Specialised military training is of course very important. If I may state the obvious, an army has to be trained, but such training alone is not sufficient to prepare a young person for a lifetime of continued employment. The average length of service for infantry soldiers who enlist as minors is just 10 years, so by the age of 26 or 27, these young men and women will be looking for jobs elsewhere, with some 40 years of working life ahead of them.

While their Armed Forces training will undoubtedly have instilled in them discipline, determination, teamworking and all manner of positive personal attributes, these alone are not enough. Jobseekers need training and qualifications, and ex-soldiers are no exception. This is particularly so when studies reveal that the unemployment rate in the ex-service community can be significantly above national unemployment rates. To be a route to social mobility for young people from disadvantaged backgrounds, in the future the Armed Forces need to keep pace with the accredited educational or vocational standards aspired to for all young people, which they will need when they return to the civilian workforce. A true route for social mobility allows these young people to overcome their disadvantage both while in the Army and in subsequent employment. If they are prepared to fight for us, we owe them that.

While there is a focus on military training, it would benefit both young recruits and the Armed Forces if the career entrance path for minors had an accredited vocational training and educational emphasis until they reach 18. I take the point made by my noble friend Lady Dean in Committee that there is a need to be sensitive with young recruits who have little or no experience of someone encouraging them and who have few positive experiences of education. They will not want to feel that they are going back to school, and the noble Baroness is clearly right. However, they, too, should have the opportunity to achieve vocational qualifications.

Most infantry recruits come from areas of high unemployment and inner cities, and when they leave they may well go back to the same environment that they tried to escape by joining the Army. The Ministry of Defence has a responsibility to progress these young people, to train and educate them to an accredited standard and to raise their aspirations and change their horizons for when they leave the Armed Forces.

However, it is not sufficient to make these points in debate. This Bill gives us the opportunity to place on the Minister a responsibility to have regard to meeting responsibilities to minors and to their adequate training when producing the covenant report. In Committee, the noble Lord, Lord De Mauley, referred to the guidance accompanying the Armed Forces covenant, published on 16 May, which states:

“Special account must be taken of the needs of those under 18 years of age”.

But that is guidance. There should be an explicit provision in the Bill to the effect that the Secretary of State must have regard to this matter in preparing the report. It should not be subject to discretion.

In Committee, the noble Lord, Lord De Mauley, when responding to the amendment moved by my noble friend Lord Judd, which covered similar ground, commented on the complexity of the amendment in that it would oblige the MoD to treat those who joined under the age of 18 as a separate category throughout their service and perhaps even throughout their lives.

This amendment is much simpler. It gives greater discretion to the Secretary of State and refers more succinctly to the Secretary of State having regard to the Armed Forces’ additional responsibilities towards those who enlist as minors in producing the covenant report.

The Bill as drafted already provides for the Secretary of State’s report to cover education. This amendment would extend that provision to require that part of the report explicitly to cover the delivery of adequate training and education to minors. A covenant report on these matters can provide confidence that additional responsibilities towards young recruits are being met. It is easy to forget that young recruits are none the less children.

My father spent his life working for the MoD on safety systems on fighting ships. I grew up in a home that respected the Armed Forces. Conflicts such as the Falklands were only too real an experience for him, which I saw and could understand.

This amendment supports, not undermines, our Armed Forces. It makes sense to nurture and monitor continuously all our young recruits, both in their interest and in the national interest.