Non-proliferation Treaty: 50th Anniversary Review

Graham Stuart Excerpts

Wednesday 13th July 2022 Westminster Hall

[The Minister of State, Foreign, Commonwealth and Development Office (Graham Stuart)]

It is a pleasure to serve under your chairmanship, Mr Dowd. I am grateful to the hon. Member for Brentford and Isleworth (Ruth Cadbury) for securing the debate ahead of the NPT review conference in August, and to the hon. Member for Brighton, Pavilion (Caroline Lucas) for stepping in and leading it.

I completely agree with the shadow Minister, the hon. Member for Leeds North East (Fabian Hamilton) on the quality of the debate that we have enjoyed this afternoon. I will try to respond to as many of the points raised as possible in the perhaps eight minutes before we vote.

We had a mention of RAF Lakenheath. It remains long-standing UK and NATO policy neither to confirm nor deny the presence of nuclear weapons at a given location. The UK does not have a policy of no first use because—this goes to the heart of much of what we are discussing—the credibility of the deterrent rests on the conviction that we would bring all means to bear to ensure the security of the UK and our allies.

The hon. Member for Brighton, Pavilion referred to the treaty on the prohibition of nuclear weapons. The TPNW fails to address the obstacles that must be overcome to achieve lasting global disarmament and offers no solutions to the challenges posed by what is, as hon. Members suggested and with which I agree, a deteriorating security environment. The TPNW will not lead us closer to a world without nuclear weapons and risks creating division within the international community, at a time when we need to focus on building consensus and strengthening the NPT to make progress on disarmament together.

What I have picked up, enjoyed and appreciated in the debate—the right hon. Member for Islington North (Jeremy Corbyn) was particularly fluent on the point, but hon. Members across the Chamber picked it up—is the recognition of the importance of the NPT. It is a remarkably successful treaty. Over the last 52 years, the NPT has been the cornerstone of global nuclear security and civil nuclear prosperity.

In 1960, as the right hon. Member for Islington North mentioned, President Kennedy predicted that there could be up to 20 nations with nuclear weapons as soon as 1964. Yet today the number of nuclear-armed states remains in single figures, thanks to the NPT. It is important that we recognise that and cement that progress, although I recognise people will want other initiatives. The NPT has extended access to the peaceful use of nuclear energy. It has prevented the proliferation of nuclear weapons. It has provided a framework for significant levels of disarmament since the cold war peak. It has been remarkably successful.

Now, after two years of delay, we are delighted that states will be able to come together next month in New York to review implementation and take forward the objectives of the treaty. The UK remains committed to full implementation of the NPT in all its aspects. We are a nuclear weapons state that takes its responsibilities seriously. We are committed to the long-term goal of a world without nuclear weapons, where all states share in the peaceful uses of nuclear technologies.

At the review conference, the UK will work constructively with states parties for a successful outcome. We will mark the progress of the past 50 years and call on all states to reaffirm their commitment to the three pillars of the treaty—disarmament, non-proliferation and peaceful uses of nuclear technology.

Celebrating success does not mean ignoring reality. Since the last conference in 2015, we have seen a significant deterioration in the security environment and the treaty faces a number of challenges. We have previously identified risks to the UK from major nuclear-armed states and emerging nuclear states. Those risks have not gone away, and some states are now significantly increasing and diversifying their nuclear arsenals. They are investing in novel nuclear technologies and developing new warfighting nuclear systems, which they are integrating into their military strategies and doctrines, and into their political rhetoric, to seek to coerce others. The increase in global competition and the proliferation of potentially disruptive technologies mean there are new threats to strategic stability.

Russia’s illegal and unprovoked invasion of Ukraine, which the right hon. Member for Islington North rightly and fully condemned, is a dramatic demonstration of the risks we face. We do not underestimate the challenges. They make strengthening the NPT more important. The treaty is not an academic document. It must live in the real world and adapt to address modern challenges. We believe the NPT provides the only credible route to nuclear disarmament.

The UK Government are proud of our contribution to the NPT’s success and of our own track record. We set out the steps we have taken since 2015 in the UK’s national report, published last November. I refer those asking for clarity on the UK’s views and objectives to that report. It sets them out. Our views have not changed since that report. If people have already read it, they should look again. We share the aspirations of all states parties to the NPT for a world without nuclear weapons. Disarmament cannot be done unilaterally or in a single leap. It requires a series of incremental, mutually reinforcing steps.

Building such a framework requires the active participation of the entire international community. Rallying their many disparate interests presents a huge diplomatic challenge, but it is one in which the United Kingdom has already played a significant role. We have pioneered work in nuclear disarmament verification, championed transparency and advanced understanding on irreversibility. In December we published a food for thought paper, outlining one vision for how to get to a world without nuclear weapons in support of the forthcoming review conference that hon. Members have mentioned.

We have pressed for significant steps towards multilateral disarmament, including the entry into force of the comprehensive test ban treaty and successful negotiations on a fissile material cut-off treaty. It is the comprehensive test ban treaty that deals with the testing issues, which have been referred to by hon. Members, as opposed to the NPT. We possess the smallest stockpile. That is worth noting, given the impression that in some way the UK has not been stepping up: we possess the smallest stockpile of any of the nuclear weapon states recognised by the NPT, and we are the only one to maintain a single delivery system—

[Peter Dowd (in the Chair)]

Order. There is a Division in the House.

--- Later in debate ---

[Peter Dowd (in the Chair)]

Order. I apologise to the Minister for rudely interrupting him earlier on. He can carry on where he left off.

[Graham Stuart]

Thank you, Mr Dowd. It is a pleasure to be back. I am grateful to Members for returning to the debate.

We remain committed to our article 6 obligation to pursue negotiations in good faith on effective measures relating to nuclear disarmament. Reducing the risk of nuclear conflict remains a priority and we believe that short-term progress, in line with many of the contributions we have had, is achievable. We should seek to foster dialogue, which many Members have mentioned, both among states possessing nuclear weapons and between states possessing nuclear weapons and non-nuclear weapon states in order to increase understanding and reduce the risk of misinterpretation and miscalculation.

Although we recognise that work on risk reduction does not replace disarmament obligations, we see it as a complementary and necessary step to reduce the risk of nuclear conflict and enhance mutual trust and security. We will continue to work with international partners, civil society and academia to build mutual trust and create the environment for further progress on disarmament.

The UK works to limit the spread of nuclear weapons. We have sought to strengthen the international nuclear safeguard system and the International Atomic Energy Agency through our diplomatic efforts and through direct assistance from our nuclear safeguards programme. We will encourage all states that have not yet done so to sign, ratify and implement safeguards agreements. We will promote the ratification of security conventions and seek universal commitment to the additional protocol and a comprehensive safeguards agreement, which together provide credible assurances of the absence of undeclared nuclear activities and will strengthen the non-proliferation architecture. Nevertheless, the UK recognises that significant regional risks remain, particularly from Iran and North Korea. They have been highlighted in the debate. We are working hard to combat the risk of proliferation and remain firmly committed to ensuring coherence to the NPT and the IAEA safeguards regime to ensure global safety and stability.

Finally, the UK has encouraged and will continue to encourage the development and exchange of peaceful nuclear technologies, enabled by the NPT. Nuclear technologies have a critical part to play in tackling climate change, for instance, not only in helping to achieve net zero, but also through nuclear applications such as helping to improve food security and agricultural resilience. The technologies can help countries to adapt and become more resilient to climate change. They are also vital to global health, as they are used to treat cancer and prevent the spread of insect-borne disease. We want the review conference to highlight the significant global contribution that the peaceful use of nuclear technology makes to improving people’s lives and advancing progress to the UN sustainable development goals.

[Jeremy Corbyn]

I am interested in the outline that the Minister is giving us of what will happen in New York. Could he assure us—I think a number of my colleagues raised the question—that Britain will be represented by a suitably empowered delegation that can take part in serious discussions about building alliances for the future? These conferences do not normally come to a huge conclusion themselves, but they often point to a direction for the future. I would like assurance that this country will be adequately represented, so that we can go forward on this. Also, can we possibly offer up at least a reduction in nuclear stockpiles as part of our negotiations?

[Graham Stuart]

It is not our practice to announce in advance who will be attending. What I can tell him is that we are very much looking forward to it. It has already been delayed. I hope that the rest of my speech has made clear that we take this as a serious opportunity and aim to make the most of it.

We have published a working paper on a new sustained dialogue on peaceful uses, which aims to help overcome barriers to accessing the benefits of the peaceful uses of nuclear technologies. We continue to urge all non-NPT states to sign and ratify the treaty as non-nuclear weapon states as soon as possible.

There are a number of issues, and I will try to deal with some that have been raised. The spokesman for Her Majesty’s Opposition, the hon. Member for Leeds North East, raised the point that the UK supports the universalisation of the NPT. Though we cannot force any state to join, we discuss the importance of the NPT with all states at all levels, and whenever we engage with states. We regularly seek to encourage India and Pakistan, for example, to join the NPT.

On Scotland hosting nuclear weapons, the UK’s independent nuclear deterrent is a national endeavour benefiting the whole of the UK, and it underpins the security of this nation and that of our allies. By way of information, I note that recent opinion polls show that Trident enjoys 58% support among young Scots, even though the SNP and Green Ministers in the Scottish Government wish to see us remove it and even leave NATO altogether—[Interruption.] I do not think the SNP can have it both ways. It wants to have an independent Scotland and join NATO, which is perhaps what the hon. Member for East Renfrewshire (Kirsten Oswald) will say, while also removing part of its nuclear deterrent.

[Kirsten Oswald]

I wonder if I can point the Minister back to the speech that my hon. Friend the Member for Stirling (Alyn Smith) made only a few minutes ago. He set out our policy position very clearly, and I do not think that it is helpful for the Minister to represent what has been said in an entirely different way. It is not for the Minister to determine what happens to people in Scotland and whether nuclear weapons are situated there. That is something that rightly and properly should be for those who are democratically elected by the Scottish people.

[Graham Stuart]

As the hon. Lady will be aware, that is a matter for the UK Government, and this Parliament of the Union reflects the whole of the United Kingdom, including the people of Scotland.

The hon. Member for Stirling (Alyn Smith) requested that we should put on paper our position on the New York conference. I have already directed him to our November 2021 national report, and I am confident that the Government will update the House after the rev con in due course.

On the point made by the right hon. Member for Islington North about having a weapons of mass destruction-free zone in the middle east, we remain committed to that and firmly believe it can be achieved only by consensus of all the states of the region. I can reassure the right hon. Gentleman that we continue to push for that.

I hope that has addressed most of the points that right hon. and hon. Members have made. The right hon. Member for Islington North also made a point about the humanitarian impact. The UK recognises the importance of engaging with the humanitarian consequences debate and listening to the views of non-nuclear weapon states. However, we believe that that conference was co-opted by civil society organisations to press for unilateral disarmament, which obviously is not the policy of this country. It was on that basis that the UK decided not to attend.

I hope that I have dealt reasonably with right hon. and hon. Members’ points. We will be able to discuss any further ones following the New York conference, and I look forward to working with Members of different parties in doing so.

[Jeremy Corbyn]

In response to what the Minister just said and what my hon. Friend the Member for Leeds North East (Fabian Hamilton) said earlier, after the NPT conference will the Minister be in a position to make a statement or ensure there is a debate, so that Members of the House can raise in discussion what actually happened at the conference? Too often, these conferences have huge energy put into them but there is not much parliamentary discussion afterwards. If the Minister was prepared to guarantee that there will be some kind of statement, that would be very helpful.

[Graham Stuart]

The right hon. Gentleman will be aware that fresh in my post as I am, I am not yet briefed as to whether I am in a position to guarantee that, but I am quite sure that Members in this Chamber are more than capable of ensuring that we follow up on that conference, whether in this format or another. In common with the right hon. Gentleman, I would hope that would occur, given the seriousness of the issue and the fact that it must not disappear from parliamentary debate or drift out of sight.

To conclude, the NPT remains essential to the maintenance of a safe and secure world, and I am delighted to have such cross-party support for that. At the 10th review conference, the UK is ready to work with all states parties and partners from across the international community and civil society to achieve a meaningful outcome that contributes to the preservation, universal adoption and, of course, full, ultimate implementation of that treaty, which had such foresight so many decades ago.