Armed Forces Commissioner Bill

Calvin Bailey Excerpts

Consideration of Lords amendments
Tuesday 3rd June 2025 Commons Chamber

[Luke Akehurst (North Durham) (Lab)]

Yesterday’s strategic defence review rightly put our brave service personnel at the heart of defence plans, and this Bill is a fundamental part of renewing the nation’s contract with our armed forces. It was an honour to serve on the Public Bill Committee, and I am pleased to see the amendments made in the other place, which improve the Bill. However, I support Government amendment (a) in lieu of Lords amendments 2 and 3.

Lords amendments 2 and 3 would introduce a new general function for the commissioner to investigate concerns raised by whistleblowers in relation to the welfare of persons subject to service law and relevant family members, but the House will know that the commissioner can already investigate any general service matters that they choose, and the Bill already allows anyone who wishes to raise such issues to do so. While the Lords amendments have been important in raising issues around anonymity for whistleblowers, Government amendment (a) would go further by ensuring genuine protection for people who raise an issue that later features in an investigation and report by the commissioner.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

I rise to speak to Government amendment (a) in lieu of Lords amendments 2 and 3. We have seen time and again how important it is to allow our service personnel to speak up in ensuring the safety and wellbeing of our armed forces and the success of critical missions. The 1994 Mull of Kintyre Chinook crash, the 2005 loss of the C-130 Hilton 22, and the 2006 loss of Nimrod XV230 serve as stark reminders of what happens when concerns are not openly reported. I therefore welcome the Government’s commitment to maintaining anonymity by ensuring that no identifying information, or information that could lead to identification, is included without the explicit consent of service members. I also welcome the Government’s assurance that they will update the MOD’s “raising a concern” policy to reflect civilian protections and ensure that all individuals who come forward can do so with guaranteed anonymity and confidentiality.

[Lola McEvoy (Darlington) (Lab)]

Does my hon. and gallant Friend agree that referencing such awful disasters really brings into focus the lack of public awareness of the lack of support for our armed forces in previous years, and that this landmark Labour Bill will transform the culture in our forces in a positive way and is long overdue?

[Mr Bailey]

My hon. Friend makes a very important point. This Bill marks a culture change in how the Government go about interacting with our armed forces, and provides them with a sense of pride but also the necessary process to ensure that their service is protected and treated with dignity and respect.

Ultimately, whether it is reporting on ongoing cultural issues of bullying and sexual harassment, poor quality housing or equipment safety concerns, every service member should feel empowered to do so and feel assured that they can and should speak up. We have seen how the armed forces ombudsman has consistently been unable to ensure that the service complaints system does not disadvantage or discriminate. Such findings raise serious concerns, highlighting the critical need for the new and empowered Armed Forces Commissioner to regain the trust of service members. Building that trust is more important than simply enacting new legislation; it is essential that service members feel confident that their complaints will be handled anonymously and fairly.

Ultimately, fostering a culture of trust in the armed forces must take precedence over the specific language of the legislation. It is the practical implementation by the chain of command, and commitment to the fair treatment of all, that will truly make a difference. I recognise that this Government are committed to renewing our country’s contract with those who serve, and the introduction of an Armed Forces Commissioner is an important step. The success of the Armed Forces Commissioner largely depends on the effective implementation of this Bill, and on the willingness of the chain of command to work with the commissioner. However, the Government must ensure that the service complaints system tackles the deep-rooted systemic issues that persist in the armed forces, recognising that the establishment of the Armed Forces Commissioner is only one part of much-needed broader reform—not that Reform—

[Mr Francois]

They are not here!

[Mr Bailey]

Indeed they are not.

We need to restore trust and deliver meaningful change for all of those who serve.

UK Nuclear Deterrent

Calvin Bailey Excerpts

Monday 2nd June 2025 Commons Chamber

[Luke Pollard]

This Government have a “NATO first” defence policy, so it is vital that we support and are enabled by our allies, especially those in NATO, and we will continue to do that. The strategic defence review may set out words in that regard. I do not want to get ahead of the Defence Secretary’s statement, so I will not give the full details here.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

There is a consensus in this place about the importance of an independent nuclear deterrent to keep us safe, but there is far less understanding about the need and use of tactical nuclear weapons. Does the Minister agree that we need to foster a much better understanding of how the logic of deterrence works, and how it can be and is being undermined by countries like Russia? Only then can we explain why our nuclear deterrence needs to change to remain effective in protecting us.

[Luke Pollard]

A fundamental part of the conversations about the strategic defence review that Lord Robertson and the review team have been having since the Labour Government came to power is how we reinforce the concept of deterrence, and why the concept of deterrence is so important to our security. Our armed forces—some of the best in the world—have capabilities that should deter any aggression, and we will be further enhancing that through the measures set out in the strategic defence review, as the Defence Secretary will announce shortly. We want to deter aggression but, if necessary, we need to have the capabilities to defeat it, and that is what the strategic defence review, which will be announced shortly, will detail to the House.

Strategic Defence Review

Calvin Bailey Excerpts

Monday 2nd June 2025 Commons Chamber

[John Healey]

I reject that characterisation completely. I am glad that the right hon. Gentleman recognises that the SDR is going in the right direction; it certainly is. He will recognise that it is a complete break from what the Government of whom he was a leading member, less than year ago, presided over—14 years of hollowing out and underfunding our armed forces. It was defence with no vision for the future, and it has ended now. This is a plan to use the very best innovative technology to reinforce the strength of our armed forces and the traditional hardware that we have. The SDR will deliver that vision, and we will deliver it.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

This SDR underpins the reason that I left the Royal Air Force: to be part of a Government who take their commitment to defence and security seriously and will bring about the end of the hollowing-out of our armed forces that took place under the last Government. The measures taken within this SDR reverse fundamental and damaging delays caused by the previous Government within our defence programmes, supports our personnel and provides a clear and credible path to meeting the challenges presented to us by Russia. But as General Barrons has said, the greatest threat to this SDR is in its delivery, so can my right hon. Friend provide us with an understanding of what measures are being put in place to ensure that we deliver the SDR and the defence proposition that underwrites our defence, our security and our prosperity?

[John Healey]

I am grateful to my hon. Friend for the contribution he makes to debates in this House and to the determination of the Labour Government to deliver this SDR. I said in my opening remarks that there cannot be investment without reform, and from day one reform was a top priority for me as Defence Secretary. It does not bring photo opportunities and front pages, but it potentially brings the results that we need in the future. We have set up a military strategic headquarters; we have the Chief of the Defence Staff now commanding the chiefs for the first time; we have a new national armaments director; we have a single investment budget; and we now have budgetary control that was not there before. These reforms are in place, and we will drive further reforms that the SDR reinforces and endorses. This is how we will give ourselves the best chance to deliver the vision set out by the reviewers so ably in the strategic defence review report.

UK Airstrike: Houthi Military Facility

Calvin Bailey Excerpts

Wednesday 30th April 2025 Commons Chamber

[John Healey]

Well said. The hon. Gentleman is absolutely right to say that standing behind our armed forces and the ultimate professionalism that they display is a large cadre of civilian and military personnel who make operations successful and possible. He would be wrong to say that this is a sustained campaign. This is the first UK strike on Houthi positions since May last year, and Parliament will be kept informed in the event of any future military interventions like this.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

Freedom of navigation in the Red sea and the gulf of Aden is essential to the global economic system, and anything that impinges on it impacts the global economy, increases the cost to the environment and impacts the poorest people in the world. It is for this reason that I am proud to be the former commander of the expeditionary air wing whose Typhoons and Voyagers were launched last night to carry out these strikes. Does the Defence Secretary agree that this action forms part of the joined-up international strategy to end the attacks and defend freedom of navigation?

[John Healey]

I do indeed. It is part of a longer-term programme to degrade the ability of the Houthis to hit international shipping, to defend and protect freedom of navigation, and to recognise that conflicts in the middle east have a big impact on business and prosperity in this country. The British Chambers of Commerce recently published a survey that said 50% of businesses in Britain report that they have now been impacted by conflicts in the middle east.

Oral Answers to Questions

Calvin Bailey Excerpts

Monday 24th March 2025 Commons Chamber

[Maria Eagle]

I have met a number of my equivalents bilaterally, but it is important to say that we welcome the ReArm initiative and that it is in all our interests for SAFE to allow member states to partner with the UK. We will continue to emphasise the need for EU defence financing and wider defence industrial initiatives to include third countries like the UK. As my right hon. Friend the Secretary of State said in answer to an earlier question, we want to conclude a UK-EU defence and security pact that will give us access to that scheme.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

I thank the Minister for her response. Last week, the Defence Committee met the Chief of the General Staff, who highlighted the challenges of supporting our troops in Estonia. I highlighted the Rail Baltica project, which received significant funding from the EU’s Connecting Europe Facility and NATO, and which links my constituency, via High Speed 1, right through to the Baltics using British steel. Will the Minister meet me to discuss supporting the expansion of HS1 capacity, as it is the type of opportunity that would support growth within our defence industrial capacity, improve our deterrence and increase our commitment to our European allies, while bringing high quality jobs to east London?

[Maria Eagle]

I thank my hon. Friend for his question. As I hope hon. Members from around the House are starting to realise, if I am asked for a meeting my general answer is yes. I am very happy to meet him.

Fiscal Policy: Defence Spending

Calvin Bailey Excerpts

Monday 27th January 2025 Commons Chamber

[Luke Pollard]

The right hon. Gentleman is certainly right that the forces were hollowed out and underfunded, which we are seeking to address by increasing defence spending. We have provided £3 billion in the Budget and the path to moving from 2.3% to 2.5% will be laid out in the spring. The SDR will set out what capabilities we need to have to meet the threat environment, against that pathway to spending 2.5% of GDP on defence.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

The last Conservative Government did not spend 2.5 % of GDP on defence at any point during their 14 years of power. Unfortunately, the increase that will come will have to address a lot of the damage that that Government did to our Army, our Navy and our Air Force. Does the Minister agree that it takes a Labour Government to deliver those spending commitments?

[Luke Pollard]

It is certainly true that the last time this country spent 2.5% of GDP on defence was under a Labour Government. The Tories cut defence spending as a percentage of GDP over their time in power. It is important that the strategic defence review wins cross-party support when published. I hope that the shadow Defence Secretary will be able to offer the Government a common position, so that what is published will be not just Labour’s defence strategy but Britain’s defence strategy, and we can be strong at home as well as secure abroad.

Armed Forces Commissioner Bill

Calvin Bailey Excerpts

Report stage
Tuesday 21st January 2025 Commons Chamber

[Phil Brickell]

I thank the hon. Member for her contribution, but I will not be supporting that amendment. I hope that we will be able to pass the Bill unamended, and I will defer to the Minister to address that question directly.

I echo the sentiments of my hon. Friend the Member for Dunfermline and Dollar (Graeme Downie) about the independence of the commissioner, and particularly his comments on amendment 6. We live in a dangerous world, so when it comes to the men and women who are tasked with keeping us safe, we must ensure that we return the favour by making sure that they are treated with respect. We should not delude ourselves by seeing the Armed Forces Commissioner as a silver bullet. I welcome this Government’s commitment to a new strengthened armed forces covenant, which would enshrine in law the respect due to members and former members of our military.

As many Members know, the military estate’s houses, barracks and other facilities are in an appalling condition and, frankly, unfit to house many of our servicemen and women and their families. I welcome measures from the Government to conduct a medium to long-term review, but I would simply urge Ministers not to kick the can down the road on an issue that has persisted for far, far too long. Financial wellbeing, gaps in medical discharge processes, mental health support failures—there is a lot to do, but the initial signs are good.

As secretary of the all-party parliamentary group on Germany and someone with a number of family members in Germany, I would like to note that this position has been modelled on its long-established and successful German counterpart, as the hon. and gallant Member for Spelthorne (Lincoln Jopp) rightly mentioned. It is refreshing to see a Government seeking to improve life in the UK by drawing inspiration from the successful policies of our closest allies in Europe. I sincerely hope that we can pass the Bill today to provide the support our military personnel and their families so urgently deserve.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

The Armed Forces Commissioner Bill stands as a critical piece of legislation that will establish an independent champion for our servicemen and women, as well as their families. The Bill fulfils a manifesto commitment and represents a significant step forward in renewing our nation’s contract with those who serve us, so it is positive to see its continued and rapid progression into law. Today, our Opposition colleagues have tabled a number of amendments, and I want to speak to several of them in turn. On new clause 1, the Government are implementing measures to address our current challenges with recruitment and retention. Expanding the commissioner’s scope to include all applicants could overwhelm the office and detract from its core mission of supporting current service personnel and their families.

The previous Conservative Government hollowed out and underfunded our armed forces. Morale in the military is at a record low, and we are facing a recruitment and retention crisis. Many of those who want to join our armed forces wait far too long, and the Government are committed to fixing this through measures such as the new 10-30 provision, under which applicants will be given a provisional offer to join the armed forces within 10 days of applying, and a provisional start date within 30 days.

[Lincoln Jopp]

The hon. Member describes morale as being at an all-time low. Last week, along with a number of colleagues from the Defence Committee, we both had the opportunity to visit RAF Lossiemouth, where we saw a range of service personnel at the top of their game. I am intrigued to know whether he would characterise their morale as being at an all-time low, or whether he thinks the election of a Labour Government in July has had the rapid effect he describes.

[Mr Bailey]

The hon. and gallant Member is correct that we visited RAF Lossiemouth last week, where we saw people at the top of their game, doing what servicepeople do, which is coping, doing their job and putting a brave face on things. However, the continuous attitude survey shows the stress behind those things. The service they are, to some degree, enduring could be made better. Although servicepeople put a good face on their morale when we see them, that does not mean our services are in the buoyant state they could be.

[Luke Akehurst]

Does my hon. and gallant Friend agree that an easy way to measure morale is through retention rates? We are not recruiting and retaining armed forces personnel to the degree we would wish. Part of the motivation for introducing this Bill to address general service welfare issues—I am making sure that I use the correct language about what the Armed Forces Commissioner role covers—is to have an operational impact by making it easier to recruit people to the armed forces. And once we train them at great expense, we must retain them for the longest possible period of viable service.

[Mr Bailey]

I agree entirely with my hon. Friend. We do not expect service personnel to stand up and openly tell us their problems, as that is part of what makes them resilient. The important thing about having an Armed Forces Commissioner is that they can see through that. The gallant Members of this House will be able to see through those things, and it would be wrong to politicise what people present of themselves during our visits, rather than what we would like them to make known, for political gain.

The truth, as my hon. Friend makes perfectly clear, is that we are not doing a very good job of recruiting and retaining personnel. The objection to new clause 1 is that it is important to focus on the specific needs that will enable us to have better recruitment and retention, because that is where we are failing. Perhaps that is why the hon. and gallant Member for Spelthorne (Lincoln Jopp) is now in this House, rather than continuing his illustrious career.

The Government have also introduced a new cyber pathway to bring the best and brightest into our armed forces and to rebuild our defences for the future, particularly given the grey zone threats from Russia about which the Select Committee heard evidence this morning. This is also positive, but with 150,000 applicants attempting to join the military at any one time, if all those individuals were brought under the scope of the commissioner, as would happen if the new clause were enacted, that would vastly increase the commissioner’s workload and, ultimately, impact their efficiency and effectiveness. In proposing the new clause, Conservative Members are attempting to address a genuine problem, but I have concerns that, in practice, it could mean that service personnel and their families would not get the attention they rightly need.

On new clause 2, while the Armed Forces Commissioner’s role is focused on serving personnel, the Government are implementing a broader strategy of support for the entire armed forces community, including veterans, through various initiatives and legal protections. All veterans, including those sitting on the Opposition Benches, make an important contribution to our communities and our armed forces. However, the Armed Forces Commissioner’s remit is purposefully defined narrowly to focus on issues currently impacting service personnel and their families. That allows the commissioner to effectively address immediate concerns facing those in uniform, including some of those that most concern me and most seriously affect retention for women and people from ethnic minorities, such as bullying and harassment.

The Bill is just one step in Labour’s plans to renew the nation’s contract with those who serve and have served, and their families. Our Government are committed to strengthening support for the entire armed forces community, recognising that the issue of veteran support is distinct from those issues addressed by the Bill. The Government are working to fully incorporate the armed forces covenant into law, ensuring fairness and respect to veterans and their families. Recent initiatives include a £75 million LGBT financial recognition scheme, acknowledging the historic wrongs experienced by our LGBT veterans; making the veterans card an accepted form of voter ID, crucial to mobile service members, as I know from my own experience; and committing £3.5 million for veteran homelessness support, including wraparound services for at-risk veterans.

While the Armed Forces Commissioner will primarily deal with those affected by service law, they will have the discretion to invite opinion from a broader range of stakeholders, including veterans, when conducting investigations. I would expect the commissioner to regularly use that power, as it is a critical part of their role, as Conservative Members have said. I hope Conversative Members recognise that flexibility is important in the Bill, as it will allow the commissioner to gather comprehensive insight in the exercise of their duties, but does not limit their independence or freedom to lead by narrowing their focus.

On amendment 7, while focused on serving personnel, the role of the Armed Forces Commissioner complements the broader armed forces covenant and existing legislation to support the entire military community. The armed forces covenant recognises the unique obligations and sacrifices made by those who have served in the armed forces, whether regular or reserve, as well as veterans and their families. Our Government are fully committed to the covenant and our election manifesto pledge was to put the covenant fully into law.

The Armed Forces Commissioner’s role focuses primarily on members of the serving community and their families, but they will undoubtedly consider covenant issues related to active service members and their families as part of general service welfare matters, as outlined in the Bill. That aligns with the commissioner’s functions to promote the welfare of service persons and their families, and to improve public understanding of the issues.

It is important to note that the Bill is not standalone legislation. Instead, it amends part of the Armed Forces Act 2006, which already includes part 16A addressing the armed forces covenant. Therefore, amendment 7 is not necessary. By integrating the commissioner’s role into the existing framework, we ensure a comprehensive approach to supporting both current and former members of the armed forces, reinforcing our commitment to the entire military community.

Amendment 8 would require the commissioner to be independent from the Government and the armed forces and from interference when carrying out their duties. In response, the Bill provides greater independence and scrutiny for those upholding the welfare of armed forces personnel. I welcome that role, which will be subject to a full public appointment process and scrutiny by the Defence Committee, as mentioned earlier by its Chair, my hon. Friend the Member for Slough (Mr Dhesi).

The commissioner will be established as a corporation sole and will thus be independent of the Ministry of Defence, which is clearly important to give them the ability to hold people to account effectively. The commissioner will have discretion over what they investigate and the proactive power to launch investigations. Those provisions mean that the commissioner will stay focused on general service welfare matters and will be expected to have regular meetings with the chain of command. However, I fully agree that independence for the chain of command is vital.

--- Later in debate ---

[Lincoln Jopp]

The hon. and gallant Member referred to the armed forces complaints ombudsman giving evidence to the Defence Committee last week. Her report from 2023 detailed that three complaints were made against the ombudsman organisation itself. Was he as dismayed as I was that she was not able to recall the details of the one complaint of those three that was upheld?

[Mr Bailey]

The ombudsman who came to speak to us the other day gave a clear account of the challenges and issues that she faced and elucidated on a number of challenges around addressing the specificity of any individual complaints that she had been made aware of, due to the distance between the complaint and her appearance before the Committee. I think it is worth reviewing the entirety of her evidence because, for me, it did nothing more than emphasise the need for the Bill to be passed as drafted and to take note of my challenges to the amendment.

On the wider status of the service complaints system, efforts to enhance consistency and accessibility are ongoing. I take this moment to thank the ombudsman, Mariette Hughes, and her team for their work to improve the service complaints system. It was clear from her responses to our questions last week that she was conscious of the need to continue improving the system throughout the transition to a new commissioner.

I am sure the Ministry will continue its work to implement the recommendations of the ombudsman’s office, particularly in ensuring that there is a single entry point for complaints and a consistent approach in the recording of all the grievances across defence, as laid down in successive annual reports.

On amendment 6, the Government are committed to swiftly establishing the Armed Forces Commissioner through a rigorous appointment process, ensuring that the role is filled by a highly qualified and security-cleared individual who can advocate effectively for the armed forces community. Although the Bill does not detail a specific implementation timetable, which colleagues will know is typical of primary legislation, this is a priority for the Government. I believe that colleagues from all parts of the House will recognise that the appointment process must be done correctly. The appointment will be subject to a full public appointments process, regulated and overseen by the Commissioner for Public Appointments. This process will include necessary vetting and security clearances, building trust among armed forces personnel that the appointment—[Interruption.] The implementation timeline will also account for the passing of the secondary legislation and a smooth transition from the current Service Complaints Ombudsman to the new Armed Forces Commissioner—

[Madam Deputy Speaker (Ms Nusrat Ghani)]

Does the hon. Member require a moment?

[Mr Bailey]

No.

[Madam Deputy Speaker]

Are you happy to continue?

[Mr Bailey]

Yes.

[Madam Deputy Speaker]

Wonderful.

[Mr Bailey]

In conclusion, Madam Deputy Speaker, the creation of an Armed Forces Commissioner will provide a powerful voice for service personnel and their families, ensuring that their concerns are heard and addressed at the highest levels. As we move forward with the Bill, we must remain vigilant in our efforts to improve service life, address systemic issues and uphold the highest standards of behaviour within our military. The success of the new role demands, and depends on, our continued support and scrutiny. I look forward to seeing the positive impact that this Bill will have on the lives of those who serve our nation.

[Madam Deputy Speaker]

A substantial contribution there. I call the shadow Minister.

--- Later in debate ---

[Mr Calvin Bailey]

Will the right hon. Member give way?

[Mr Francois]

In a moment.

Indeed, the Forces Pension Society response to the consultation, which I have here, calls on the Government to do just that. However, having given the Minister what I believe was fair notice in Committee, I raised the topic again with him at the last Defence questions on 6 January—although, in fairness, that was the day the Commons returned from Christmas recess. When I asked him what the Government had done about it, unfortunately he did not deliver a particularly convincing reply.

I give way to the hon. Gentleman.

[Mr Bailey]

I thank the right hon. Member for giving way. He is citing a specific example that the Armed Forces Commissioner would have to oversee. That is not relevant to the discussion about the Bill or the amendments. Will he bring up any of the other myriad exceptional circumstances of pain and suffering for our service personnel that your leadership, under 14 years of the previous Government—

[Madam Deputy Speaker (Ms Nusrat Ghani)]

Order. “Your leadership” refers to me, and it is up to the Chair to determine what is in scope. For the benefit of other colleagues, it is up to the speaker to accept or decline an intervention. Do you have more to say, Mr Bailey, or shall I return to the shadow Minister?

[Mr Bailey]

No thank you, Madam Deputy Speaker.

[Madam Deputy Speaker]

I call the shadow Minister.

Oral Answers to Questions

Calvin Bailey Excerpts

Monday 6th January 2025 Commons Chamber

[Maria Eagle]

I do not disagree at all. I look forward to visiting the right hon. Gentleman’s constituency and to seeing the potential of firms. He is completely correct that clusters of excellence and skill are the way forward. I look forward to visiting his constituency shortly.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

The defence sector supports one in 60 of our jobs in this country—more than 400,000 well-paid jobs that are central to this Government’s growth mission and to our nation’s security. However, the majority of those jobs are outside London and the south-east. Therefore, growth and—crucially—engagement with defence and security are inhibited for young people in constituencies such as mine. Will the Minister confirm that the key ambition of our defence industrial strategy will be to broaden access to the defence sector in every region, including constituencies such as mine?

[Maria Eagle]

I am happy to accept that point, and I agree. Plenty of jobs and skills will be needed around the country in every nation and region, so that we improve matters everywhere.

Service Accommodation

Calvin Bailey Excerpts

Thursday 19th December 2024 Commons Chamber

[Mr Dhesi]

I could not agree more with the Liberal Democrat spokesman. It is completely unacceptable that we expect our brave servicemen and women, and their families, to be housed in such substandard conditions. We have instances of damp, mould, rat infestation— I could rattle off so many other things that are completely unacceptable. I completely concur with the hon. Gentleman and look forward to the Government taking immediate and urgent action to remediate things.

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

I warmly welcome the report and I am proud to be part of my hon. Friend the Chair’s team, who have so well encapsulated the witness testimonies and the work that was done by the previous Committee. I join him in warmly welcoming the announcement from earlier in the week and the forthcoming work to bring about a service commissioner to oversee the process and ensure such injustices do not befall our service personnel in future. Does he agree that service housing is the foundation upon which our service personnel serve and commit to our country, and that this is the start of a journey of repairing a very damaged contract that this country has with its service personnel?

[Mr Dhesi]

I concur fully with my fellow member of the Defence Committee. Given his vast experience of having served in our armed forces, his contribution as a member of the Committee will be substantial, and I know he will bring that experience to bear as we look forward to remediating things. He is correct that service accommodation is the foundation on which we must ensure that our servicepeople have the very best facilities that we as a nation can offer.

Explosive Ordnance Disposal Community

Calvin Bailey Excerpts

Wednesday 11th December 2024 Westminster Hall

[Mr Calvin Bailey (Leyton and Wanstead) (Lab)]

Thank you for allowing me to speak following my late arrival, Mr Dowd. I understand that I have perhaps not followed normal procedure.

I start by acknowledging the hon. and gallant Member for Epsom and Ewell (Helen Maguire) for securing this important debate to support the explosive ordnance disposal community. The work of that community saves lives, enables economic recovery and helps to rebuild societies that have been devastated by conflict. It is a critical aspect of our national and international security and it deserves our utmost attention.

As we have heard, the global threat of explosive ordnance—including landmines, cluster munitions and unexploded bombs left behind in the aftermath of conflicts—results in the deaths of 15 people every day. Civilians account for 84% of those casualties, and over a third of them are children. Those tragic figures remind us of the enduring danger that explosive ordnance possesses long after the fighting has ceased.

Contamination spans 60 countries, affecting regions with recent conflicts such as Ukraine and, in particular, Gaza, as well as those with decades-old legacies including, as we heard from the hon. Member for Strangford (Jim Shannon), Cambodia and Angola, which are particularly afflicted. Those weapons are not just remnants of violence but barriers to progress, safety and prosperity, and they disproportionately impact the lives of women, who have to traverse the terrain to sustain their families. We must not overlook that when we discuss the unexploded ordnance detritus that is left after war.

Mine action goes beyond clearing explosive ordnance; it restores hope and opportunity. Studies show that every £1 spent on mine clearance yields a fourfold return in economic benefits, as well as unlocking land, agriculture, infrastructure and the roots of normal daily life, particularly for women and children in education. For example, in Lebanon, the clearing of landmines has enabled safer farming and access to critical resources such as water, benefiting thousands of families. Explosive ordnance clearance also supports global humanitarian objectives. It aligns with sustainable development goals, fostering food security, economic growth and safer communities. That work exemplifies the transformative power of collaboration between Governments, NGOs and local communities.

The UK has made a proud contribution to that work, which is the subject of this debate. We have a long-standing and distinguished record of mine action. As one of the first signatories to the anti-personnel mine ban convention, and the convention on cluster munitions, our country has demonstrated unwavering commitment to upholding international humanitarian law. Through schemes such as the FCDO’s global mine action programme, the UK has directly supported explosive ordnance disposal in 11 countries, and that benefited more than 1 million people between 2018 and 2020 alone. Organisations such as the Mines Advisory Group and the HALO Trust, which I have been very proud to speak for and associate myself with, are headquartered here in the UK. They are global leaders and they showcase the best of British expertise and values.

I am grateful to the hon. Member for Strangford for making an important and powerful point about honouring and supporting our veterans and their contribution. As we discuss the impacts of explosive ordnance globally, we must also turn our attention to the incredible legacy of our Afghan veterans, many of whom have been injured by landmines while serving our country. This is not a historical issue: it is an ongoing responsibility. Every day, we see veterans going about their business with prosthetic limbs. They have made a valuable contribution and they are a valued part of our community. The armed forces covenant is essential in reminding us of our moral obligation to support those who have sacrificed so much for our security.

This evening, gallant Members and I will meet Afghanistan veterans to hear at first hand their experiences and the challenges they face. Their courage and resilience reminds us of the importance of addressing their needs, from healthcare to employment and community support. Events such as the Invictus games celebrate and strengthen the determination of our injured service personnel, and they are a testament to what can be achieved when we come together to honour and support those individuals.

[Mr Gregory Campbell]

Does the hon. Gentleman agree that the Army Benevolent Fund does outstanding work to help veterans and that we all should support it? I tabled an early-day motion yesterday to draw attention to that work. The fund has achieved remarkable things in helping former personnel.

[Mr Bailey]

I thank the hon. Member for his powerful and significant intervention. The service charities are critical in supporting our veterans. A powerful part of their work is in normalising veterans in the community and ensuring that people treat them as a normal part of our community. Veterans have left a visible and lasting legacy, and it is essential that the service charities continue to support our veterans long into the future. However, those efforts must be matched by real and sustained commitments from the Government. I welcome the presence of the Veterans Minister, who I know has been key to ensuring that these issues are addressed and that no veterans are left behind.

Our Government’s defence industrial strategy enhances our contribution by integrating explosive ordnance disposal into the broader framework of our national armaments. The strategy prioritises UK-based businesses, fosters long-term partnership and drives innovation at a wartime pace. It also ensures that regions beyond London benefit from job creation and economic growth. However, as a London MP I would like to see that opportunity opened up to all people, including the very bright and promising youth of London, as we produce thousands of personnel who are ready to engage with jobs and opportunities in science, technology, engineering and maths.

In addition, our approach aligns with our national security goals and the work of organisations such as the MAG. Its work in Lebanon accounts for the removal of live munitions decades after their use. That is a demonstration of how targeted landmine clearance can transform lives. Similarly, in Ukraine an estimated 1,500 sq km of land remains contaminated. This will increase massively and impact a country for which agriculture is central to its very existence. Our support must not just be humanitarian; it is also vital for global stability and for food-bearing nations such as Ukraine.

The lessons from Ukraine do not end there. On Tuesday, the Defence Committee heard about some of the lessons we were learning from supporting Ukraine. Our defence industry can rapidly integrate and provide the support that is most relevant to the battlefield situation that Ukrainians face. This is ultimately similar to the battlefields we need to prepare to face as NATO allies, given Russia’s ongoing strategy of escalating aggression. Will the Minister set out any thoughts he has on how that point can be applied to the ordnance removal mission that we share with our partners both in Ukraine and around the world? Surely, the broader point is that, whether in supplying military support or explosives removal, UK expertise can only grow in ways that benefit our own interest and those of our partners if we are responsive, and able and willing to learn quickly.

Explosive ordnance disposal is also an economic opportunity. The UK defence sector already supports 434,000 jobs, with 67% located away from the south-east. By aligning mine action with defence investments, we can ensure that UK regions grow and that all parts of the UK, including my constituency, benefit from this vital work. The challenges posed by explosive ordnance require a sustained and collaborative effort. I urge the Government to restore and expand funding for mine action programmes, particularly in heavily affected regions like Lebanon and Ukraine. This is about not just saving lives but demonstrating Britain’s values on the world stage.

We must also strengthen our partnerships with NGOs, industry, and academia to leverage the unique expertise that the UK has to offer. By doing so, we can ensure that our nation continues to lead in explosive ordnance disposal, delivering both humanitarian and strategic benefits. Let us reaffirm our commitment to explosive ordnance disposal and to the global fight against these silent and unseen killers. Together we can save lives, foster development and, most importantly, uphold Britain’s proud tradition as a force for good in the world.

--- Later in debate ---

[Mr Francois]

Perhaps I should begin by declaring a personal family interest in this subject. My late father, Stoker First Class Reginald Francois, served on a minesweeper named HMS Bressay from 1943 until the second world war ended, so he was involved in bomb disposal of a sort. Perhaps more accurately it was mine disposal, but nevertheless he personally faced a threat from large explosive devices, albeit in a maritime context. As his son, I am proud to speak on behalf of His Majesty’s Opposition on this very important subject this morning.

I congratulate the hon. Member for Epsom and Ewell (Helen Maguire) on securing this important debate and, if I may say so, for introducing it so ably. She made a very knowledgeable contribution, no doubt drawing on her own military experience. In particular, she illustrated the challenge posed to the international community by the sheer scale of this problem around the world.

The hon. Member for Strangford (Jim Shannon) spoke powerfully about the threat from terrorist bombs in Northern Ireland, which is a subject to which I would like to return. The hon. Member for Leyton and Wanstead (Mr Calvin Bailey)—an RAF veteran, if I may call him that—also addressed the international scale of the challenge. Last but not least, I am supported by our shadow Defence Parliamentary Private Secretary this morning, my hon. Friend the Member for Exmouth and Exeter East (David Reed), who as a former Royal Marine, like the Minister, understands quite a lot about the subject.

I would like to begin my own contribution with a historical perspective on bomb disposal operations in the British armed forces, before moving on to address both military and, increasingly, civilian operations in this crucial field of activity, right up to the present day. Bomb disposal, or, to give it its more formal title, explosive ordnance disposal—EOD for short—can be traced back for over a century. During the first world war, squads of men were assembled to help deal with unexploded bombs left after raids on London and the south east by German zeppelin bombers and their Gotha Giant aircraft counterparts—a bombing campaign that was very well summarised by Neil Hanson in his book “First Blitz”.

In addition, with the advent of truly industrialised warfare in the first world war, teams of engineers were needed to dispose of unexploded munitions, particularly high explosive shells that had fallen among the allied trenches on the western front but failed to detonate. Even at that time, this was highly skilled and extremely dangerous work—a characteristic that has remained true right through to the present day.

By the time of the second world war, although the need for bomb disposal on the battlefield was undiminished, with the advent of the mass bombing of civilian targets, the need for bomb disposal on the home front expanded accordingly. This led to a high death toll among those brave enough to undertake the task of dealing with unexploded bombs—or UXBs, as they were characterised at that time. Juliet Gardiner, in her book entitled simply “The Blitz”, describes the losses in the following terms, which I think are quite evocative:

“Sometimes a UXB might embed itself a few feet in the ground, or fall into a static water tank or a gasometer but many penetrated deep below the surface and were difficult to get at. The defusers’ survival would have depended on staying one step ahead of German technology, since as soon as they learnt how one time delay mechanism worked, it would be replaced by another. By the end of 1940, 123 officers and men of the bomb disposal squads had been killed and 67 wounded. The deaths did not cease with the end of the war, as UXB’s continued to be uncovered. By 1947, 490 had been killed in the battle to extract these great torpid iron pigs from their holes and render them harmless.”

The need for EOD workers continued as a facet of British military operations since the end of the second world war, right up to the present day. For instance, dealing with both republican and so-called loyalist bombs was a key facet of Operation Banner, the British Army’s campaign to support the civil authorities during the period of the troubles in Northern Ireland. A number of bomb disposal officers were killed and many were wounded during the course of the troubles, as the hon. Member for Strangford rightly reminded us.

The scale of the task that they were up against was well summarised by Desmond Hamill in his book “Pig in the Middle” about the British Army’s role in Northern Ireland. He summarised the challenge as follows:

“Over the years the Provisionals have become expert at designing and manufacturing booby-traps. Only the week before, a bomb disposal sergeant had been killed by a bomb within a bomb in County Fermanagh. It had been packed into a milk churn, and when the sergeant had cleared the timing device and was lifting it out, a detonator underneath set off the second bomb which exploded.”

As the author went on to explain:

“The bombs were often very simple and very deadly. The components were readily available—a few pounds of explosives, a detonator, a battery and a couple of feet of wire. The triggering device could either be a plate buried in the ground or even a clothes peg.”

As the Minister will be well aware, hundreds of thousands of British soldiers served on Operation Banner during the troubles. Hundreds were killed, not just in bomb disposal, and many thousands were maimed or had life-changing injuries, from both republican and so-called loyalist terrorism. Perhaps when he sums up, the Minister could say a few words about why the Government still intend to abolish the Northern Ireland Troubles (Legacy and Reconciliation) Act 2023, which will leave many Northern Ireland veterans open, yet again, to an endless cycle of reinvestigation, much of it politically motivated at the hands of Sinn Féin. Our veterans, who faced the threat of terrorist bombs every day of their service in Northern Ireland, really do deserve better than this from their Government.

Let me turn to the Falklands. Diffusing unexploded bombs is not just a challenge on land, as pointed out by Lord Ashcroft in his book “Falklands War Heroes”. During the 1982 Falklands war, chief marine engineering mechanic Michael Townsend was awarded the distinguished service medal for his role in assisting with the disposal of two bombs that had hit his ship, HMS Argonaut. The principal bomb disposal task with which he assisted was undertaken by Staff Sergeant Jim Prescott and Warrant Officer Second Class John Phillips, both of the Royal Engineers.

Assisted by Townsend and several of the crew, the two bomb disposal experts succeeded in disarming and disposing both Argentinian bombs that had landed on the Argonaut. Unfortunately, however, Staff Sergeant Prescott, from 49 Squadron Royal Engineers, was killed two days later while attempting a similar task with two further unexploded bombs that had landed on HMS Argonaut’s sister ship, HMS Antelope. His colleague WO2 Phillips was badly injured, losing one of his arms in the latter attempt. I mention that particular example not just to pay tribute to the extreme bravery of all three men involved, one of whom sadly lost his life, but also to point out that dealing with ordnance of this type is not purely confined to the land domain.

[Mr Calvin Bailey]

I would like to link that point back to the right hon. Gentleman’s earlier remarks, when he shared some powerful words about his grandfather—

[Mr Francois]

My father.

[Mr Bailey]

His father’s service—I did not want to age the right hon. Gentleman—in the maritime domain. That example was a powerful reminder that explosive ordnance disposal is not simply confined to landmines or the devices we see as bombs. Building on that, I want to highlight the contributions of the Royal Navy today—its divers in particular and its ongoing mine clearance operations in the Gulf, alongside our US partners and the French navy. Does the right hon. Gentleman agree that we must ensure that we continue to highlight such valid and brave contributions?

[Mr Francois]

I thank the hon. Member for his kind words about my father. I absolutely agree with him about the very important role played by the Royal Navy in maritime bomb disposal, including by the brave divers he alluded to. For completeness, as the hon. Gentleman is a former RAF officer, we should place on record that a great deal of work was undertaken in the second world war defusing German bombs that had landed on RAF airfields, perhaps most famously during the battle of Britain—so the Royal Air Force played its part in the battle against bombs as well.

I turn to the wars in Iraq and Afghanistan. As the involvement of Britain’s armed forces, particularly the Army, switched from Northern Ireland through the Balkans and then into the middle east, including the first and second Gulf wars and the war in Afghanistan, again the threat from bombs—often referred to at that time as improvised explosive devices or IEDs—remained ever present. As General Sir Richard Dannatt, a former Chief of the General Staff, recalled in his memoir “Leading From The Front”,

“Initially the Taliban had taken us on with small arms, machine guns and rocket grenades, but as they tired of being killed in large numbers they resorted to the classic insurgent tactic of avoiding direct combat and attacking us instead with IEDs, in exactly the same way as the Iraqi militias and the provisional IRA had done before them.”

The Minister himself served in Afghanistan, and we pay tribute to him for his service. The need to respond to the IED threat, which was eventually responsible for a large number of casualties—both fatal and non-fatal, but none the less in many cases life-changing—was an important aspect particularly of Operation Herrick, the allied campaign in Afghanistan. As Simon Akam explained in his challenging book “The Changing of the Guard: the British Army since 9/11”,

“The IED became the signature weapon of the Helmand Conflict. No longer could troops move freely; instead they adopted the ‘Afghan snake’, painstakingly walking in a line behind a young soldier holding a Vallon Mine Detector.”

Lord Lancaster of Kimbolton, a former Milton Keynes MP and a previous Minister for the Armed Forces, worked on EOD disposal during Operation Herrick. We pay tribute to him and all his EOD colleagues for their service.

Even today, the task of explosive ordnance disposal—now carried out principally by 11 EOD regiments of the Royal Logistics Corps—remains as vital as ever, both in protecting our civilian population from domestic acts of terrorism and in permitting the conduct of military operations. Some of the savage fighting in Ukraine has included the widespread use of booby traps and other IEDs, and therefore the threat remains as live as ever on the modern battlefield. Indeed, in its helpful briefing note for this important debate, the Mines Advisory Group highlights that the Ukrainian Government estimate that about a third of their territory, or 156,000 sq km —an area bigger than England—remains potentially contaminated with explosive ordnance.

For the record, the previous Government invested in the latest EOD technology for our own armed forces, including the Harris T7 bomb disposal robot, which is the successor of the iconic Wheelbarrow from Northern Ireland, and, more recently, the T7’s highly nimble little brother, the Harris T4—a programme that was encouraged by my hon. Friend the Member for South Suffolk (James Cartlidge) when he was the Procurement Minister at the MOD.

Let me turn directly to the speech by the hon. Member for Epsom and Ewell, who summarised very well the challenge still posed by unexplained ordnance in the present day—not just, as she pointed out, in Ukraine, but in a number of other countries around the world, including Laos and Lebanon. We should pay tribute to the work of two UK-led organisations, the Mines Advisory Group and the HALO Trust, which have led the world in seeking to step up and to address the challenge.

Given all this, in addition to responding to my point about the legacy Act, will the Minister answer three specific questions? First, are the Government minded to continue spending at least the same amount on overseas mine disposal in 2025-26 as they are spending in 2024-25? Secondly, much of that spending is deployed via the FCDO’s GMAP and the UK’s integrated security fund; is any of that funding from the MOD budget, and if so, could it be vulnerable to the strategic defence review? The third question is related to the second: when do we expect the outcome of the SDR to be published? I ask that this morning because rumours are now circulating that it could be as late as June 2025. While we have the Minister’s company this morning, could he provide an update about the likely timing of the publication of the SDR? As he knows, it is keenly anticipated.

In conclusion, I pay tribute to all those personnel, be they from the armed forces or civilians, who have had the courage to take part in the extremely dangerous task of explosive ordnance disposal across the decades. It is harrowing work, and not for the faint hearted. In risking their lives, they have helped to save the lives of countless others. Sadly, a number of those employed in that highly dangerous line of work made the ultimate sacrifice, and we rightly pay tribute to them this morning as well. We will remember them.