Armed Forces Bill (First sitting)

Debate between Carol Monaghan and Sharon Hodgson

Thursday 25th March 2021 Public Bill Committees

[Carol Monaghan]

The new clause would require the Secretary of State to use the annual armed forces covenant report to assess the health and educational outcomes of personnel under the age of 18 and the service of personnel under the age of 18 in relation to article 3 of the convention on the rights of the child.

The time in a young person’s life from the ages of 16 to 18 is significant, and this transition to adulthood is typified by expanding opportunities and capabilities. These years also bring substantial risks and vulnerabilities. Research undertaken by UNICEF has shown that adolescents are more vulnerable to external pressure, influence and risk taking than adults are because of the processes of neurocognitive and psychological development. To ensure the transition between adolescence and adulthood as a time for healthy development and resilience building, 16 and 17-year olds must be in an environment that facilitates sustained learning, skills development, respect for individuality, social support and strong relationships. The UN convention on the rights of the child recognises the needs and vulnerabilities of adolescents and it consequently defines every person below the age of 18 as a child. This convention obliges all public or private social welfare institutions, courts of law, administrative authorities or legislative bodies to always consider the best interests of the child in any matter which concerns them.

I do not consider 16 and 17-year olds to be children; I would consider them as young people. However, the same applies here. For the reasons I have stated, we have a moral and legal duty to pay particular attention to the experiences and outcomes of those who join the armed forces before they turn 18. Those under 18 in the military take on risks and obligations just like their adult colleagues, which may put them at a disadvantage relative to their civilian peers in areas such as health and education.

While Army recruits are not sent to the frontline until they turn 18, the impact of military employment at such a young age, particularly on recruits from a stressful childhood background, has raised numerous human rights and public health concerns. Among those who have raised concerns have been the UN Committee on the Rights of the Child, the Children’s Commissioners for the four jurisdictions of the UK, and the Joint Committee on Human Rights. The Ministry of Defence does not collect information about the socioeconomic profile of armed forces personnel. However, other research has found that Army recruits under the age of 18 generally come from England’s poorest constituencies, with recruitment concentrated in urban fringe areas in the north of England.

Official data from the MOD shows that the youngest recruits tend to have underdeveloped literacy. Education for the youngest Army recruits is largely restricted to basic literacy, numeracy and IT. As I have already mentioned, with 30% of 16 and 17-year-old recruits leaving before finishing phase two training, that presents an immediate risk to their employment, education, training and social mobility prospects, and it certainly puts them at a disadvantage compared with their civilian peers.

As for health, those recruited under the age of 18 are more likely to die or be injured in action over the course of their military career, and they are at greater risk of mental health-related problems, such as alcohol abuse and self-harm. The additional rights and protections of 16 and 17-year-olds under the law and the need to ensure positive health and educational outcomes for this age group is a clear justification for the MOD to consider the impact of military service on personnel aged under 18.

As such, new clause 3 would require the Secretary of State to use the annual armed forces covenant report to assess the health and educational outcomes of personnel under the age of 18 and to consider whether service is in their best interest. Such annual reporting carries no risk to the effectiveness of the armed forces, rather it would solely ensure that those entering the armed forces under the age of 18 are given the consideration they require.

When we are considering the issue of no disadvantage in health and education, this should include proper consideration of the disadvantage that young recruits may experience compared with other 16 and 17-year olds. As these years are crucial in shaping life outcomes, it is important that the Ministry of Defence treats the welfare of service personnel under the age of 18 with the highest priority and comes forward freely to report on their outcomes.

[Mrs Hodgson]

It is a pleasure to follow the hon. Lady. New clause 12 would require the Government to do three things: first, to produce a definition of “priority care” to help primary care clinicians to deliver on the commitments in the armed forces covenant; secondly, to conduct a review of mental health waiting time targets for service personnel and veterans; and, finally, to produce a resource plan to meet current waiting time targets. I shall address each in turn.

“The Armed Forces Covenant Annual Report 2020” acknowledges the confusion about what priority care means. It says that

“in practice this remains inconsistent, and there is a lack of clarity about the interpretation of the policy by government, clinicians, and the NHS.”

During oral evidence to this Committee, Ray Lock, from the Forces in Mind Trust, said that

“anything you can do to provide greater certainty would be helpful.”

The first part of this new clause therefore seeks to do just that and provide a definition as to what the Government really mean when they talk about priority care and treatment.

Moving to the second part of the new clause, on a review of mental health waiting time targets for service personnel and veterans, I have already written to the Minister regarding waiting times under TILS—the veterans’ mental health transition, intervention and liaison service—which have not been met. The average waiting time to be offered a face-to-face appointment for TILS in 2019-20 was 37 days, which misses the target of 14 days. Conducting a review of mental health waiting time targets for service personnel and veterans would establish why they are not being met and—to move to the final part of the new clause—what action needs to be taken to address that gap.

I know that the Minister is proud of the launch of Operation Courage, but I urge him to continue to seize this moment to make real and measurable change to the mental health services for serving personnel and veterans. This new clause would bring much-needed clarity to the priority care promised through the covenant and is designed to address the issue of waiting times not being met. I know that the Minister will want to resolve those issues and I therefore hope that he takes the opportunity offered by the new clause.