Armed Forces Bill

Jim Shannon Excerpts

Monday 26th January 2026 Commons Chamber

[John Healey]

On the local connection test, as with a lot of things, the previous Government talked a lot but we have got on and done a lot of those things, and the Bill takes that intent and determination several steps further.

Let me move on to housing, because behind many of the men and women who serve our country are husbands, wives, partners and children, who support them in their service, and who bear the weight of their absence during deployments. For those families, the nation has a moral duty to provide safe and decent housing. As recent Governments failed, satisfaction with military family homes fell in 2023 to its lowest level on record. I, and many other Members of the House have seen why: damp, mould, broken boilers, ill-fitting doors and windows, even a hole in the wall of a children’s bedroom. None of us would tolerate our families living in such conditions, and neither should those in our armed forces. It is a betrayal of service, and the crisis in defence housing tracks back directly to perhaps one of the worst ever privatisation deals.

Under the terms of the Annington sale in 1996, the taxpayer picked up all costs for maintenance, repairs and rent, but all the benefits of development opportunities or increases in property value were surrendered to a private equity fund. When I was appointed Defence Secretary 18 months ago, that deal was costing the taxpayer over £600,000 a day. Just six months after the election, our Government reversed that, bringing more than 36,000 military family homes back into public ownership so that we can now plan and invest in the future. Twelve months after the election, we delivered our consumer charter, guaranteeing what should never have been in question: higher move-in standards, quicker repairs, a named housing officer for every family, and renovations of the very worst homes, 1,000 of which were completed ahead of schedule before Christmas. Our charter also tore up rules that should never have been written, so that forces families now have freedom to decorate their own homes, and keep pets without seeking permission.

In November we published our defence housing strategy, and our plan for the wholesale renewal of service family estate, backed by a landmark 10-year investment programme, totalling over £9 billion. All told, nine in 10 of all forces family homes will be upgraded, renewed or rebuilt. Less than three months after the defence housing strategy was published, the Bill delivers a central recommendation of that strategy: the creation of a specialist arm’s length organisation, the Defence Housing Service. With the plan, the investment and now the Defence Housing Service, we will end the scandal of service families living in substandard housing, and we will deliver the homes the country needs. When Labour said at the election that we would stand on the side of our armed forces, this is what we meant.

All those who serve our country rightly expect to be able to do so with the fullest respect, and they must certainly be able to do so free from any fear or abuse. Last year we commissioned and published the UK’s first military-wide survey into sexual harassment. We did that to provide for the first time a no-holds-barred baseline to confront the problem fully. The results were sobering, concluding that two thirds of our servicewomen and one third of our servicemen experience some form of sexualised behaviour. Let me be clear: such behaviour has no place in our armed forces, just as it has no place in any workplace—not now, not ever.

The previous Government took steps to improve victim and witness care. We can see some of the benefits of those steps, but it is also clear that more must be done. We have established a new, single tri-service complaints team to take the most serious complaints out of the single-service chain of command for the first time. We have launched a pioneering new prevention programme in Catterick and Plymouth, working directly with young recruits on our bases, to prevent unacceptable behaviours. Through the Bill we go further to strengthen protections for our service personnel, and ensure that perpetrators have nowhere to hide.

Together, provisions in the Bill will make available in the service justice system a comprehensive range of protection orders, including for sexual harm, domestic abuse and stalking. It will strengthen supervision of offenders on release from prison, and ensure that service restraining orders are enforceable in the criminal justice system once a defendant has left the armed forces. It will place a duty on the Secretary of State to issue a code of practice, setting out the services that victims can expect to receive in the service justice system, and it will allow victims to choose whether they wish to have their case heard in a civil or military court, although the formal decision will be taken by the prosecutor.

[Jim Shannon (Strangford) (DUP)]

I am greatly encouraged—I think we all are—by what the Secretary of State has said about victims. I am conscious that sometimes we have young people—perhaps aged 16, 17 or 18—joining the forces and finding themselves under pressure, away from home and from their parents, and they might be vulnerable to start with. It is important that a structure is in place where they can make a complaint, and that that complaint will be heard, not lost somewhere in the system of those above them, whether they are officers, sergeants or corporals. Is looking after those vulnerable people who need help at the beginning, and access to people who understand their circumstances, part of this process?

[John Healey]

Like the hon. Gentleman I am deeply proud that our armed forces will take 16-year-olds and give them skills and discipline, and change the course of their career and future life. If they suffer any of the abuse and harassment that I am talking about, the tri-service complaints team will take that out of the single chain of command. Cross-party support has allowed us to legislate as a House for an independent Armed Forces Commissioner, who has the power to deal with complaints and to launch inquiries if they pick up a pattern of problems, so safeguards and protections are in place. I hope that will give more confidence to young people who are looking at a future career in the armed forces, as well as to their families, who want to see them launched well in their lives.

Make no mistake: these are substantial reforms, reflecting both the seriousness of the problem and our resolve to root it out. These measures are a result of the Ministry of Defence being part of a cross-Government violence against women and girls strategy for the first time ever, and Ministers and chiefs being united and determined for the first time to play a part in this Government’s central mission to halve violence against women and girls in a decade.

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[James Cartlidge]

I echo what the hon. Gentleman says. I pay tribute to his constituent and to all those who sacrificed so much in that campaign.

[Jim Shannon]

I thank the shadow Minister for what he has said, but let us be honest that President Trump should never have made that statement, no matter what. My constituent Channing Day gave her life in Helmand province, and I think of Colin Thompson, who was invalided out of the Army because of an injury on the frontline in Helmand. They are just two out of many. Does the hon. Gentleman not feel, as I feel for my families, hurt by what President Trump said? President Trump has apologised, but he should never have said it in the first place.

[James Cartlidge]

The hon. Gentleman hits the nail on the head, and I need add nothing further. We all agree and we pay tribute to all those who served in Afghanistan.

Moving on to the Bill, given its necessity to ensure that we have functioning armed forces, we will not seek to divide the House. Indeed, on national security, we should always strive for consensus where possible, as has particularly been the case on Ukraine. We have presented a united Parliament to our adversaries, which should be a source of national pride. However, as with any major piece of legislation, there will be many issues of detail that we will want to tease out in detailed scrutiny in Committee.

While we inevitably have concerns about the underlying issue of defence funding, there are many aspects of the Bill that we support in principle. In particular, I welcome the Government’s commitment to strengthening the armed forces covenant. Having been the party that first introduced the covenant, it will be of no surprise that we support moves to strengthen both its purpose and delivery. That said, when it comes to our veterans, we remain resolute in our total opposition to the Government’s policy in respect of those who served in Operation Banner to protect all of us from terrorism. The House surely cannot ignore the fact that as we debate this Bill, which is designed to strengthen our armed forces, Labour continues in parallel with its plan to repeal our legacy Act—the Northern Ireland Troubles (Legacy and Reconciliation) Act 2023—and threaten a new era of vexatious claims against former soldiers. It is fair to say that my right hon. Friend the Member for Rayleigh and Wickford (Mr Francois) will say more about that in his winding-up speech.

On the Bill’s proposals relating to the service justice system, there is recognition on both sides of the House that we have massive lessons to learn. Work to improve the system began under the previous Government, as the Secretary of State recognised. After publication of the Atherton report, which identified cultural failings in the forces, the then Secretary of State, Ben Wallace, took steps to enforce changes so that we could better protect women in the armed forces. In 2022 we introduced a series of new policies—for example, clamping down on unacceptable sexual behaviour by introducing a zero-tolerance approach and banning instructor-trainee relationships of any sort. We also established the defence serious crimes unit. As a result of the changes we made, more people have been empowered to come forward, and service personnel who have breached those policies have been discharged or convicted as a direct result.

I particularly welcome the steps in the Bill to ensure that the service justice system protects victims of the most serious offences from further harm. The reality is that implementing cultural change in any large organisation does not happen overnight, but we will work with the Government in the forthcoming sittings on the detail of their proposals to ensure that we find a better way to deliver justice in the armed forces.

Let me move on to the proposed changes to the reserve forces. I pay tribute to all those serving as reservists, including, as was pointed out, those on Operation Interflex—they are a critical part of our fighting strength. That said, given the heightened threat level that we face today, we can surely all recognise that nations geographically closer to the Russian threat, such as Finland, draw a major part of their overall military strength and, thereby, conventional deterrence from possessing a large and active reserve.

As such, it is important that we understand more of the detail about the Government’s plans to increase the number of active reservists by 20%. That is stated in the strategic defence review, but with a vague timeline—

“most likely in the 2030s”.

We can all see that there is a big difference between 2031 and 2039, and that the threat we face is nearer. In his winding-up speech, can the Minister for the Armed Forces tell us if that will be in the next Parliament or the one after that?

We also welcome proposals to make reservist life more flexible, particularly incentivising regulars to stay in the reserves as they explore new careers. In fact, that is exactly what was suggested in the Haythornthwaite review, which was commissioned under the previous Government and delivered by my right hon. Friend the Member for South West Wiltshire (Dr Murrison). It made the important recommendation for so-called zig-zag careers, enabling far greater flexibility between reserve and regular service. We welcome that and will look at it further.

Let me move on to the Bill’s proposals for armed forces accommodation. Buying back the defence estate was my top strategic priority as Minister for Defence Procurement.

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[Jim Shannon (Strangford) (DUP)]

It is a real pleasure to speak in this debate. I want to thank the Minister and the Government for all they do. I mean that genuinely, because the Bill before us has lots of good things on which we should be encouraged to support the Minister. I am also pleased to see the Minister for the Armed Forces, the hon. and gallant Member for Birmingham Selly Oak (Al Carns), in his place. I look forward to his comments at the end.

I want to declare an interest as a former member of the Ulster Defence Regiment for three years and a member of the Territorial Army for the Royal Artillery for 11 and a half years. As a former serviceman, I know very well the impact of being well funded, because that means being well supported, emotionally and practically, and that applies never more so than this week when our brave troops have been disparaged as they have been. It is imperative that this House refutes and repudiates that smear on the brave young men and women who gave their all. I mentioned that in an intervention, and I say it again for the record.

I think of Corporal Channing Day from 3 Medical Regiment, who was killed in Afghanistan on Wednesday 24 October 2012 while on patrol in the Nahr-e Saraj district of Helmand province. She was a 25-year-old Comber girl, my constituent, who paid the ultimate sacrifice and gave her life while helping others. She was not somewhere in the background, to quote President Trump. She was on the frontline, and her mum and dad, Rosemary and Leslie, still grieve for her today. She and others in the armed forces were the best in the world, and their brothers and sisters in arms continue to uphold their legacy and sacrifice and the motto that she served under in the Medical Corps: “Faithful in adversity”. We need to be faithful in adversity for her and for all the others who have served. The Bill before us today reminds us of our duty to be faithful to them and I therefore support it.

I work closely with the veterans champion for Ards and North Down borough council, Alderman Trevor Cummings, who over the years has highlighted the disparity in the application of this duty in certain areas. It is my desire, and indeed that of the Royal British Legion and Help for Heroes, that this disparity is stamped out and that the application of obligations is accepted and implemented UK-wide, so my ask of the Minister will be in my next comment. As we all know, in Northern Ireland the treatment of our armed forces greatly varies across the Province. This was demonstrated in the abuse received by British Legion supporters at a Tesco store in Newry just last year. It is little wonder that veterans feel unsupported in certain areas when local charity fundraisers are treated in this manner.

There is a real requirement for this legislation to apply foundationally across the United Kingdom. As Help for Heroes has stated, this Bill has the potential to strengthen legal protections where public bodies fail to consider properly the needs of the armed forces community in policy, funding and service decisions. My ask of the Minister is for improved consistency and fairness across the United Kingdom, so that when things happen in Northern Ireland that should not be happening, recognition will be for all. We also need to reinforce accountability and delivery at national and local levels, and it is our job to ensure that the Bill does just that.

I am aware that our Northern Ireland Veterans Commissioner, David Johnstone—the Secretary of State referred to him earlier—is working on models to improve the treatment of Northern Ireland veterans at governmental level, acknowledging the unique position that Northern Ireland finds herself in. I believe that the Bill will aid him in trying to ensure that every governmental Department abides by our obligations from this House and not by its own personal desires.

That also leads me to ask the Minister to outline whether the Bill will ensure that the Northern Ireland Veterans Commissioner is on an equal footing with the rest of the United Kingdom Commissioners. It is currently a non-statutory appointment, which means that the post lacks the formal legal powers and duties that statutory commissioners in other parts of the United Kingdom may possess. I hope the Minister does not mind my asking that question directly, and I would like to have an answer, please.

I further support Help for Heroes in its three asks of the Bill. The first is that the duty should apply to all relevant public bodies. For consistency and accountability, the legislation and subsequent regulations should ensure that the duty applies across the full delivery system of all four nations. The second is that statutory guidance must be clear and enforceable by clearly setting out expectations, responsibilities and minimum standards, underpinned by formal monitoring and reporting arrangements. Thirdly, veterans should have clear routes to redress where the duty is not met, and Parliament should be able to scrutinise delivery effectively. A robust evidence and accountability framework is essential.

Time has beaten me, Madam Deputy Speaker, but what a time this is to remember just how much we have to be thankful to our armed forces for. They are the best in the world, and their training, courage and fortitude are the stuff of legend. They deserve the certainty that this nation, this great United Kingdom of Great Britain and Northern Ireland, will do right by them and their families while they serve and when they retire, no matter where they retire to.

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[Al Carns]

In the strategic defence review, we have committed to an increase of 20%. First, reserve spending went up in 2023-24 from £189.9 million to £202.4 million, so what the right hon. Gentleman says is factually incorrect. Secondly, on personnel statistics, in the last quarter our trained strength in the reserves has risen from 28,000 to 29,000. I think we need collectively to check our statistics.

The right hon. Gentleman will know that to stand here and tell the world about our ability to respond to article 3 would be slightly misguided. He mentioned the creation of quangos, but if he had read the Bill fully he would recognise that the reserve forces and cadets associations are going from 13 to one so-called quangos, with an increase of one in the Defence Housing Service, which is absolutely required to deliver an effective housing service. He will also know that Op Valour means more money for veterans than ever before. Tranche 1 of the funding has now been closed, and recruitment is fully under way. If he would like to talk through why the recruitment has been paused in the past, I am more than happy to talk about that offline, but I want to ensure that the right person is in the right job, so that the programme is a success.

I thank my hon. Friend the Member for Aldershot (Alex Baker) for her passionate and unrelenting support, which is not lost on me—it is second to none and super impressive. My hon. Friend the Member for North Durham (Luke Akehurst) has such a resounding history in the armed forces—it really is impressive. I know that supporting everyone in that constituency is a passion of his.

Will the hon. Member for Eastbourne (Josh Babarinde) please write to me about the issue with Pauline? I would like to look at it in detail, as I know would my hon. Friend the Minister for Veterans and People. My hon. Friend the Member for North Warwickshire and Bedworth (Rachel Taylor) welcomed the support for Op Valour. Her support for the Bill as it progresses is useful, and she always champions our armed forces constituents.

The hon. Member for Strangford (Jim Shannon) was, as always, articulate and to the point. I have spoken to Ministers in Northern Ireland and to the armed forces Veterans’ Commissioner, and while the covenant is applicable to the whole United Kingdom, we must consider how it is executed within the devolved Administrations. I am willing to work with the hon. Gentleman and a collective group of Northern Ireland MPs to ensure that we implement it as best as we possibly can, while accepting that there are nuances with security and how it needs to be implemented as a whole.

[Jim Shannon]

I thank the Minister—that is a superb response. The hon. and learned Member for North Antrim (Jim Allister), my right hon. Friend the Member for Belfast East (Gavin Robinson), David Johnstone, and the hon. Member for South Antrim (Robin Swann) are the people with whom, if possible, we would have that meeting, and constructively work together to do better for our veterans in Northern Ireland.

[Al Carns]

The hon. Member has my word that I will continue to engage with him and move that forward.

I say to my hon. Friend the Member for Truro and Falmouth (Jayne Kirkham) that there is no Navy without the Royal Fleet Auxiliary—it is as simple as that—so well done for pushing that ten-minute rule Bill and including in it delivering support to the RFA that is truly needed. I thank my hon. Friend the Member for Morecambe and Lunesdale (Lizzi Collinge) for her support for the armed forces. It is consistent and super powerful, and I appreciate it. I thank my hon. Friend the Member for Hartlepool (Mr Brash) for his kind words and, importantly, his impressive support for veterans and the roll-out of Op Valour.

My hon. Friend the Member for Leyton and Wanstead (Mr Bailey) has continually supported the covenant and the armed forces as a whole, and the impact on immigration is something we need to look forward to as the covenant rolls out more broadly. I agree that the removal of the C-130 was a bad thing. The continual support of my hon. Friend the Member for Bracknell (Peter Swallow) for the cadet forces and the armed forces community is second to none and really impressive.

I thank my hon. Friend the Member for Uxbridge and South Ruislip (Danny Beales) for his support for the armed forces community and, in particular, for housing, which has been impressive throughout. Indeed, we saw the first few houses in the roll-out of 1,000 houses getting renewed—the Secretary of State and I were there to see the good, the bad and the ugly, and it was great to see that we had landed on the good with so many houses for armed forces personnel in his constituency. Finally, the support of my hon. Friend the Member for Colchester (Pam Cox) for parachute battalion 16 Air Assault Brigade, and in representing serving families and veterans, is second to none.

From my perspective, it is quite simple: the Armed Forces Bill is moving forward in four key areas. First, for defence housing, we are creating the Defence Housing Service, moving it away from the Defence Infrastructure Organisation, increasing capacity and upskilling professionalism as we look at defence housing as a whole. For the reserves, it is about extending service from 55 to 65 for those individuals in specific roles who can still add value to the military up to that age. It is also about making the transfer more seamless, and standardising the recall from six years to 18 years consistently across the Army, Navy and Air Force.

The Bill is about better support, with the covenant moving from three to 14 Departments and policy areas. It is about us renewing the contract with those who serve. Finally, the Bill is about better protections. It is about sexual risk orders, domestic abuse protections and orders, and stalking protection orders. Indeed, it boils down to the ability of victims to have choice. Since the Lyons review in 2018-19, we have changed defence significantly when it comes to how we look at serious crime. We created the serious crime unit under the previous Government, and it has gone from a fledgling organisation to one with a fully upskilled and up-gunned ability to deal with the most serious crimes. It is deeply impressive, so if anybody has any concerns about how we are dealing with the most serious issues across defence, they should please come and see me, the Secretary of State or the Minister for Veterans and People, and organise a visit. We will happily deliver that to ensure that hon. Members can go and visit it.

In summary, this Bill garners support from Members from all parts of the House. There are some issues that we will debate repeatedly over the next several months, but I think that we will get to a really good place that supports our serving armed forces across the Navy, the Army and the Air Force, our reservists, our service families, our veterans and our whole armed forces community, including all the charities that support them as well.

Question put and agreed to.

Bill accordingly read a Second time.

Armed Forces Bill: Programme

Motion made, and Question put forthwith (Standing Order No. 83A(7)),

That the following provisions shall apply to the Armed Forces Bill:

Select Committee

(1) The Bill shall be committed to a Select Committee.

(2) The Select Committee shall report the Bill to the House on or before 30 April 2026.

Committee of the whole House, Consideration and Third reading

(3) On report from the Select Committee, the Bill shall be re-committed to a Committee of the whole House.

(4) Proceedings in Committee of the whole House on recommittal, any proceedings on Consideration and proceedings on Third Reading shall be taken in accordance with the following provisions of this Order.

(5) Proceedings in Committee of the whole House and any proceedings on Consideration shall (so far as not previously concluded) be brought to a conclusion one hour before the moment of interruption on the day on which proceedings in Committee of the whole House are commenced.

(6) Proceedings on Third Reading shall (so far as not previously concluded) be brought to a conclusion at the moment of interruption on that day.

Programming committee

(7) Standing Order No. 83B (Programming committees) shall not apply to proceedings in Committee of the whole House, to any proceedings on Consideration or to proceedings on Third Reading.

Other proceedings

(8) Any other proceedings on the Bill may be programmed.—(Stephen Morgan.)

Question agreed to.

Armed Forces Bill: Money

King’s recommendation signified.

Motion made, and Question put forthwith (Standing Order No. 52(1)(a)),

That, for the purposes of any Act resulting from the Armed Forces Bill, it is expedient to authorise the payment out of money provided by Parliament of:

(a) any expenditure incurred under or by virtue of the Act by a Minister of the Crown or the Defence Council, and

(b) any increase attributable to the Act in the sums payable under or by virtue of any other Act out of money so provided.—(Stephen Morgan.)

Question agreed to.