International Immunities and Privileges

Debate between James Cartlidge and Julian Lewis

Wednesday 24th July 2024 Commons Chamber

[James Cartlidge (South Suffolk) (Con)]

May I associate the shadow Defence team with the remarks from the Prime Minister and Leader of the Opposition about the terrible attack on a British solider in Kent? Our thoughts are with his family.

I can confirm that we support the measures before us and recognise that they are necessary to deliver into law the administrative governance of the global combat air programme. Although this is a Foreign Office measure, the statutory instrument was prepared with strong input from the Ministry of Defence—it certainly crossed my desk when I was Minister for Defence Procurement. May I put on the record that it was a great honour to serve in that role—with significant responsibility in relation to GCAP—alongside the two previous Secretaries of State, Ben Wallace and Grant Shapps.

It was a privilege to engage with our international GCAP partners from Italy and Japan, whom I had the pleasure of hosting last September in Lancaster House for trilateral discussions. This is not just about delivering UK military capability in the crucial area of combat air, but about doing so to the benefit of two great partners, and, in the case of Japan, one that faces the threat of China and Russia right on its doorstep. Since that trilateral, the project has achieved significant goals, not least the signing of the international treaty last December that we are legislating for today. The treaty establishes the legal basis for the formation of a new GCAP international organisation, the GIGO. I am delighted that we are able to agree that the international HQ of the GIGO will be in the UK, but that, in keeping with the spirit of equal partnership that underpins GCAP, the first chief executives of the GCAP agency and joint venture are from Italy and Japan. As such, the SI before us effectively enables this international treaty to enter into effect, with further important measures on immunity and privileges that are necessary for the effective operation of the GIGO.

All that said, although the SI is necessary to deliver GCAP’s governance arrangements, it will not directly deliver a single aircraft. Alongside this SI, we need the Government to back the GCAP programme wholeheartedly by ensuring that it has the funding necessary to deliver our sixth-generation fighter capability. Indeed, it would be quite extraordinary for the Government to ask us as a House to approve the regulations if they were at the same time seriously contemplating scrapping UK involvement in GCAP. Yet that prospect has figured prominently in the press in recent days. While the best of British defence aviation has been gathered at the Royal International Air Tattoo and Farnborough, incredibly the Government have not been able to repeat the wholehearted backing of GCAP that they gave prior to the general election.

In responding to the statement from his predecessor Grant Shapps on 18 December last year, when he confirmed the trilateral agreement for the GCAP treaty, the now Defence Secretary said:

“Developing a sixth-generation fighter will ensure that we can continue to safeguard our UK skies and those of our NATO allies for decades to come. It will inspire innovation, strengthen UK industry and keep Britain at the cutting edge of defence technology.”

I totally agree with his remarks. Yet fast-forward to the present, and, as we have just heard at Prime Minister’s questions, the Prime Minister is only able to say that the programme is “important.” Meanwhile, the Minister for the Armed Forces, the hon. Member for Plymouth Sutton and Devonport (Luke Pollard), who is on the Front Bench and for whom I have great personal respect, said:

“It's not right for me to prejudge what might happen in the defence review”.

He thus implied that the defence review might not continue the UK’s commitment to GCAP. We now need clarity from the Government for Parliament, industry and our international partners. We are being asked to approve this SI to deliver a key stepping-stone to the GCAP project, so are the Government still committed to it?

This is my guess about what is currently happening. I would be truly staggered if the Government were to withdraw from a programme that they have previously given such full support—not because theirs is a party that does not know a good U-turn, but because it would bring international ramifications that do not bear thinking about either for the Foreign Office or the Ministry of Defence. Rather, in my view, we need to have in mind another Department—one that I have also had the pleasure of serving in—the Treasury. I suspect that the overall question of whether the Government are committed to GCAP is a red herring. What really matters is whether they are committed to funding it this year, with important spending decisions to be made right now. They will be in the inbox of the Secretary of State, under “Funding decisions on GCAP.” We want the Government to continue that funding in the years beyond, and we want to know whether they are using the review as a chance to shift spending decisions to the right.

It is not unprecedented in the history of the Treasury for it to work in that way under successive Governments, probably. It might offer illusory short-term savings, but it would cause immediate and lasting pain to the most important conventional defence programme of our time. To be clear—and I mean this—I have the greatest respect for the way the Treasury has to balance the books and be responsible for the nation’s finances. I was delighted that the previous Government proposed moving to 2.5% once it was affordable—we were prepared to make difficult decisions to fund that 2.5% by reducing the size of the civil service to pre-pandemic levels—and once it was sustainable. Far from this Government inheriting what the Chief Secretary to the Treasury has described as the “worst economic inheritance” since world war two, we did what we promised and moved to 2.5% only once the economic conditions allowed—namely, when inflation was back to target, with healthy economic growth and a deficit heading towards a little over 1% over the forecast period. That is our clear pathway to 2.5% versus Labour’s uncertainty and delay, which makes the real difference.

To understand the direct short-term importance of 2.5% and its relevance to GCAP and this statutory instrument, we need only go back to what the Secretary of State said the response to the statement from his predecessor Grant Shapps in December. He said:

“This month, the National Audit Office reported on the MOD’s equipment plan. It exposed a £17 billion black hole in Britain’s defence plans and showed that Ministers have lost control of the defence budget.”—[Official Report, 18 December 2023; Vol. 742, c. 1137.]

It is not so much that we lost control of the defence budget; rather, Putin invaded Ukraine and sent inflation soaring all around the world. In a world that was then in a rush to rearm, that context caused an inevitable hit to the costs of major defence projects and matériel. I have never pretended otherwise.

Bearing in mind that the equipment plan—the MOD’s forward inventory—accounts for over 10 years, the NAO’s assessment of a black hole did not take account of one thing: moving to 2.5% by 2030. As I said in my wind up to the Thursday’s debate on the Gracious Speech, by setting out a fully costed and clearly timetabled pathway to 2.5%, we were able to deal with those funding pressures head on, and ensure that our largest two programmes—the nuclear deterrent and GCAP—would be stabilised, and, as a result, properly funded into the future. I asked the Foreign Office Minister who responded to my to confirm that the Government’s timetable would not put funding of either programme at risk. There was no answer, and we have had no answer today, either. That is the problem. The Government can afford to bring forward this SI and to continue building the administrative apparatus for GCAP, but we fear that they cannot afford to approve the funding requirements for the next stage of building the actual aircraft, because of their vacillation on reaching 2.5%.

We Conservatives are clear that we support the SI on the basis that we are also supporting GCAP as a whole, including by putting in place the funding necessary to deliver its requirements over the urgent timescale that all three member nations require. That is a key point: for all three nations, GCAP is all about pace and timetable. For the UK and Italy, that means replacing the Typhoon before it is withdrawn from service towards 2040; for Japan, with equal urgency, it means replacing the Mitsubishi F-2. That is why any delay or deferment, whether caused by the lack of a clear timetable to 2.5% or otherwise, is so important and critical.

Overall, it is my view that withdrawing from GCAP now would be the equivalent of scrapping the Spitfire programme in the 1930s. It is that serious. However, if such an outcome is seriously under consideration—and we know that there are those in government who are hugely sceptical—I will explain why we are ultimately supporting this SI. It is because we on the Conservative Benches believe that GCAP is a military necessity that will bring enormous economic and strategic benefits to the United Kingdom.

To start with the military capability argument, if there is one key lesson from Ukraine, it is that in the absence of air superiority we face the prospect of terrible attritional warfare with huge casualties, reminiscent of the worst battles of world war two.

[Sir Julian Lewis (New Forest East) (Con)]

I know it is thinking very far into the future, but does my hon. Friend accept that one of the lessons from the Ukraine conflict, where we have had to give indirect support, is the importance of maintaining aircraft that we have withdrawn from service—in mothballs, if necessary—so that they can be made available to allies, should they ever face a crisis such as this one? When the happy day comes that we have these great sixth-generation aircraft, can we be certain that we have not unduly disposed of their predecessors, in case someone else needs them in future?

[James Cartlidge]

My right hon. Friend’s question is an interesting one. Whenever I was in front of the Select Committee—it was always a great joy and privilege to be cross-examined, particularly by my colleagues on the Conservative Benches—there was always a debate about when we withdraw platforms and when we bring in their replacements. That will never go away, and I wish the Armed Forces Minister well when he has the unique privilege and experience of going in front of the Committee. What I would say to my right hon. Friend is that we have to accept that, as a matter of avionic reality, the Typhoon will reach the end of its service life, and we as a country have to replace it. GCAP is key to that, with the construction of the new core platform.

While investing in the best combat air capability does not guarantee air superiority in the future, it offers us the chance to deny adversaries such potentially deadly freedom of operation by maintaining technological competitiveness. However, there are those who ask, “Why don’t we simply go off-the-shelf and buy more F-35s?” I noticed similar views being expressed in The Daily Telegraph this very day, and there is even a rumour that some Government Departments, such as those I mentioned earlier, may take a view along those lines. We must be clear that the F-35, while a brilliant and highly capable aircraft, is a fifth-generation platform, not a sixth-generation one. It is not optimised for the battle space that is likely to pertain by the late 2030s, and the United States—which, after all, possesses and manufactures the F-35—is itself investing in a sixth-generation programme, as are our adversaries.