Liam Fox
Main Page: Liam Fox (Conservative - North Somerset)Department Debates - View all Liam Fox's debates with the Ministry of Defence
(13 years, 10 months ago)
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The Secretary of State for Defence (Dr Liam Fox)
I beg to move, That the Bill be now read a Second time.
I take this opportunity to wish Members on both sides of the House a very happy new year.
Before we start today’s debate, the House will want to pay tribute to Corporal Steven Dunn from 216 (Parachute) Signal Squadron, attached to 2nd Battalion the Parachute Regiment Battlegroup; Warrant Officer Charles Wood from 23 Pioneer Regiment Royal Logistic Corps; and, from the Argyll and Sutherland Highlanders, 5th Battalion the Royal Regiment of Scotland, Private Joseva Vatubua, who all died following actions in Afghanistan. My thoughts and prayers, and I am sure those of the whole House, are with their families and friends at this very distressing time for them.
The Ministry of Defence usually brings forward an armed forces Bill once every five years, so this is a relatively rare parliamentary occasion for the Department. Many of us who have been involved with defence for some time remember the last Armed Forces Bill, now the Armed Forces Act 2006, which established a single system of service law for the first time. Hon. Members will remember that it was a very large Bill. I remember it well, as Second Reading was three days after my appointment as shadow Defence Secretary and I spent three frantic days coming to terms with its complexity. Feedback from the services following its implementation has confirmed that it was a good Bill and is proving a good Act in practice. I pay tribute to those on both sides of the House who worked on the Bill through its long and difficult process and helped to introduce the changes that have made it so successful.
Perhaps not surprisingly, this Bill is considerably smaller. In its own way, however, it too is an important piece of legislation. It continues a series of armed forces Bills that stretch back to the Bill of Rights of 1689, which enacted that the keeping of an Army in time of peace shall be against the law
“unless it be with consent of Parliament”.
So one of the Bill’s most important functions is providing the legal basis for the armed forces to continue to exist.
As the Ministry of Defence normally has a Bill only every five years, there is a tendency to aggregate proposals that require primary legislation until the next one comes along. Consequently, armed forces Bills sometimes cover a much wider range of topics than service discipline, which is traditionally the main subject. The Bill is an instance of that practice. It contains eight main groups of clauses.
The first group of clauses deals with renewal, and the second with the armed forces covenant. I will speak about those groups in a few moments. The third group covers the service police forces and the Ministry of Defence police. The fourth relates to powers of entry, search and seizure. The fifth provides for testing service personnel, in specified circumstances, for alcohol and drugs. The sixth relates to punishments and other court orders. The seventh makes a small number of changes to the Armed Forces Act 2006. The eighth makes amendments and repeals other primary legislation.
Angus Robertson (Moray) (SNP)
The Secretary of State knows that there are no provisions to deal with the closure or realignment of military facilities, which are currently considered by the Ministry of Defence, in secret, or to support communities after bases are closed. In contrast, the United States, through legislation, has a transparent process, which is managed by a commission. There is a vote on Capitol hill, and an agency that helps communities that are affected by closures and realignment. Why does the UK not emulate that? Will the Government consider including provisions to achieve that in the Bill?
Dr Fox
The hon. Gentleman well knows that the Government are examining basing, and will report to Parliament in due course. I believe that it is not a matter for the Bill.
Clause 1 provides for renewal of the legislation, which would otherwise expire in November. It allows the legislation to be renewed each year through an Order in Council, which must be debated and approved by both Houses of Parliament. However, the clause also provides that renewal by Order in Council may be done for a maximum of only five years, after which the Act must once again be renewed by primary legislation. The effect is that the legislation governing the armed forces will expire no later than 2016, unless it is renewed before then by primary legislation. That rightly provides for parliamentary scrutiny. In effect, it is the mechanism whereby parliamentary control over our armed forces is exercised.
I wish to focus on four topics: the armed forces covenant; the independence of the service police forces; testing for drugs and alcohol, and the appointment of civilian prosecutors. I believe that they are likely to be the subjects of greatest interest to hon. Members during the Bill’s passage.
I should like to begin with the clause that refers to the armed forces covenant. Since coming to office, the coalition Government have confirmed their commitment to rebuilding the covenant, to do the right thing by the men and women who have joined our armed forces, today and in the past, together with their families.
Bob Russell (Colchester) (LD)
I thank the Secretary of State for his recent visit to 16th Air Assault Brigade in Helmand province and for his generous words there and on his return.
The Secretary of State will know that I put a question to the Prime Minister only a few weeks ago about whether it was fair for war widows to pay tax on their war widows’ pensions. Will that requirement be removed as part of the covenant?
Dr Fox
No, not as part of the Bill. However, while the Bill sets out the framework for the covenant, there are ample opportunities in Parliament to change any of the rules and regulations that relate to the armed forces in several ways, through the usual procedures available to the House.
As the House will know, my right hon. Friend the Prime Minister has spoken of the Government’s desire to enshrine the covenant in law. We have been considering the best way to do that. Our starting point is that the armed forces covenant is fundamentally a moral obligation on the Government, the nation and the armed forces. It is an agreement between the armed forces and the whole nation, not just the Government. It can never be defined by a host of rules and regulations, designed to tell everyone exactly what to do in every circumstance. Certainly, as I have just said to my hon. Friend, when rules need to be changed, we will do so. However, generally the people of this country know how service personnel should be treated, and our task is to create the right framework for that to happen.
Chris Bryant (Rhondda) (Lab)
The Secretary of State will know that I entirely agree with him about the moral imperative behind the covenant. Some 9% of the armed forces personnel come from Wales, yet only 2% of the armed forces personnel are based in Wales, and that is one of the things that makes it more difficult to have continuity of care for those people once they have left the armed forces. Will the Secretary of State look carefully at basing more of the armed forces personnel in Wales so that that continuity can be maintained, and how will he ensure that the relationship with the Welsh Assembly Government, who have responsibility for health care, education and housing, is maintained?
Dr Fox
I will come on to the issue of the devolved bodies in a moment, but the hon. Gentleman is trying to get me on to the basing debate again. The primary duty of the Government is to ensure that the armed forces are laid out across the United Kingdom in the way that is most beneficial to the defence of the country. However, if the hon. Gentleman is looking for a champion of the cause of the armed forces being tied to the whole concept of the Union, he does not have to look much further. I believe that as we have units that represent the whole of the United Kingdom, we should look, where possible, to ensure that we have basing across the whole of the United Kingdom; but, as I say, the primary responsibility of the Government is to ensure that bases are allocated in a way that makes the greatest sense in terms of the wider defence of the country.
The armed forces covenant is of such importance that it needs to be brought properly to the attention of Parliament. We propose to do this not through long and complex legislation, but through the mechanism of an annual forces covenant report. The relevant clause in the Bill will require me to lay a report before the House every year on the effects that membership of the armed forces has on service people. I have no doubt that the House will wish to take notice of that annual report and undertake whatever scrutiny it considers appropriate.
Mr Elfyn Llwyd (Dwyfor Meirionnydd) (PC)
During evidence-taking with the Howard League for Penal Reform, one ex-chief of the armed forces suggested it might be a good idea if there were a Minister within the Cabinet Office with cross-cutting responsibilities dealing with veterans, because the issues involved here are far broader than health, education and so forth. Will the Government consider that at some point?
Dr Fox
The Government are certainly considering better cross-departmental working on these issues. To be fair to the previous Government, they did begin some of this work to see how there could be better co-ordination across Whitehall. We have a number of pieces of work under way, not least from my hon. Friend the Member for South West Wiltshire (Dr Murrison), looking at how we can better co-ordinate what is happening in health and social services, for example, with what the Ministry of Defence intends to do. The hon. Gentleman is proposing the same end as that which we seek, but the means by which we achieve it may be open to some debate between us.
Mr Bob Ainsworth (Coventry North East) (Lab)
The Secretary of State will be aware that the Royal British Legion has written to some, if not all, Members about its concerns about the process he is putting in place. When we undertook the service personnel Command Paper, we were anxious not only to improve the relationship between the armed forces and different Government Departments, but to put in place a mechanism that made sure that that did not fall into disrepair and that the situation was independently updated. The RBL is worried that the mechanism the Secretary of State is proposing effectively takes over from that, and does away with the independent reporting mechanism brought in by the Command Paper for the reference group to report on an annual and a five-yearly basis on the need for improvements to what we might call the covenant. Will the Secretary of State respond to that, because it is of concern to the British Legion as well as to me?
Dr Fox
I believe the concerns set out in the letter from the British Legion that all Members will have received are unfounded. We intend to build on that independence in respect of the external reference group, and I will be happy to discuss exactly how that will feed into the new process with the British Legion throughout the passage of the legislation. We all want the same thing: we all want there to be proper scrutiny of what Government, across the whole of government, do in terms of our service personnel. I hope we can maintain that independent element, and we can discuss with the British Legion how that feeds into the report that will ultimately come to this House. I am very open-minded about how we do that, but I do want to maintain this element of independent reporting so that when the House receives the report from the Secretary of State it is able to access as much information as possible not just from the Government, but externally sourced as well. I think that any belief that seems to have come from the legion on that is misplaced. The Government intend to be as open as possible during the entire process, and will certainly be happy to discuss the matter during subsequent stages of the Bill, and to discuss with the bodies involved how we can best make this happen.
Dr Julian Lewis (New Forest East) (Con)
While we are on the subject of cross-departmental responsibilities, will my right hon. Friend say a word, in particular, about mental health issues, about which I know he is concerned? I believe that I am right in saying that the average time for serious post-traumatic mental health issues to emerge is about 14 years after leaving the service, which inevitably means that Departments other than his own will have to be involved in care and welfare. Does he have any observations to make on that?
Dr Fox
I would like gently to correct my hon. Friend’s statistics: complex post-traumatic stress disorder can emerge up to 14 years afterwards; 14 is not the average figure, and in fact it is often much earlier than that. However, he is correct that there is a time spectrum involved here, which is why it is essential that we have in place mechanisms to deal not only with those who present acutely, but with those who present at a much later date. We shall be undertaking further work and research to ensure that the mechanisms we put in place to deal with that are fully informed by the objective evidence of the science of the day.
I reiterate what I have said in the House before: we are seeing a modest increase in the number of cases of PTSD. We have seen them related to conflicts as long ago as the Falklands; we have seen them from the Gulf war; and we are bound to see them from Iraq and Afghanistan, and if we are not able to deal with those issues and put in place the mechanisms for dealing with them adequately, we will let down not only those who have put themselves at risk for our country’s security, but the country itself. As I said before, I believe that still in this country mental health is too much of a Cinderella service in health care in general. We must not allow that to happen in the armed forces, especially for those who have been willing to sacrifice themselves for us.
Sir Menzies Campbell (North East Fife) (LD)
I am most grateful to the Secretary of State for giving way; he is being characteristically generous in doing so. He will be aware that the Bill places upon him a duty to lay a report before the House of Commons on health care, education and housing, and that he has a discretion to go beyond those topics—that is expressly provided for. In view of what he has just said about health care being a Cinderella subject, would it not be appropriate to put it in the Bill as a topic upon which he has a duty, like other duties, to report in express terms to the House?
Dr Fox
It is clear that the Government intend such a report to include health care, housing and education. However, my right hon. and learned Friend will not be surprised to hear that I would happily be tempted into other areas within the discretion that the Bill allows. That is an absolute minimum. The country would expect us to look at wider and interrelated issues, if we are to offer the degree of scrutiny that the House and the country would want on this subject.
Clause 2 provides for what the Secretary of State must cover in his report, and as my right hon. and learned Friend said, effects on health care, education and housing will normally be addressed in it. There are perennial issues that I believe will always be important to the service and ex-service community, and those are among the foremost. Other issues will emerge at the time, so the Bill provides for flexibility, and I will want to consider other issues as they emerge.
There is also the question about who is covered in the Bill. The Bill refers to a broad span of people. The total number of serving and former personnel and their families is about 10 million—one in six of the population of this country. For ex-service personnel, the Bill specifies an interest in those who are resident in the UK. Again, that does not prevent a Secretary of State from covering relevant issues for those who live abroad, although many aspects of their lives would be matters for their own Governments.
The Bill—rightly in the Government’s view—says little about how the annual report will be prepared, but as I said in response to the right hon. Member for Coventry North East (Mr Ainsworth), we intend to consult widely and to ensure that there is rigour and independence in the information that is ultimately put before the House through the Secretary of State’s report. My intention, as Defence Secretary, will therefore be to consult widely with interested parties, inside and outside Government, in preparing a report. Charities and devolved Administrations will have much to contribute, as too, no doubt, will Members of the House of Commons.
I also believe, however, that the report will evolve over time. We are breaking new ground, and we will learn from experience, listen to comments and move forward together in a positive way. I am clear that that is the right way to proceed, rather than making the legislation excessively prescriptive.
The Bill also contains a group of clauses that will further buttress the independence and effectiveness of service police investigations. I am delighted that shortly before Christmas the High Court gave a strong endorsement of the ability of the service police to investigate, under the Armed Forces Act 2006, the most serious allegations. Nevertheless, we want to be sure that the independence and effectiveness of service police investigations have all the safeguards we can reasonably provide.
The first clause in the group places on each of the three provost marshals—the heads of the service police forces—a duty to ensure that service police investigations are carried out free from improper interference. The second clause provides for the service police to be inspected by Her Majesty’s inspectorate of constabulary. The inspectorate has previously inspected the service police on a voluntary basis, but the clause places an obligation on it to carry out inspections of the service police and lay its reports before Parliament. The third clause provides that the three provost marshals will in future be appointed to their positions by Her Majesty the Queen. Once again, that recognises and reinforces their independence from the service chains of command when carrying out investigations. In making these changes, we seek to ensure that the service police will continue to carry out to the highest standards their role as a part of the armed forces but one that is independent of the main chains of command, and I believe that the provisions in the Bill will do just that.
Mark Lancaster (Milton Keynes North) (Con)
Given the harmonisation of military law across the three services, does the Secretary of State feel that perhaps the time has come to be bolder? Why do we still need three separate police forces within the armed forces? Why can we not have one military police force, given that all these forces now undertake training together?
Dr Fox
I know that this issue was examined by the previous Government, as it has been by this Government. The view that has been taken is that because there are differences between the three services this approach is culturally the best way to go about things. If my hon. Friend has very strong views on this, I am sure that he will be willing to bring them to the House, perhaps in the form of an amendment, during the passage of the Bill. That would give us a chance to debate the merits and demerits of this approach further. There are undoubtedly arguments on both sides and the Government have just decided that, out of due respect for the differences between the services, this was the best way for us to continue to proceed.
Other provisions in the Bill introduce a new regime under which service personnel commit an offence if they exceed an alcohol limit while carrying out certain duties. The limits and duties will be prescribed in regulations subject to the affirmative resolution of both Houses. The Bill also contains provisions allowing commanding officers the flexibility to test on a case-by-case basis in two circumstances. One is where they have reasonable cause to believe that a service person’s ability to carry out a prescribed duty is impaired due to drugs or alcohol. The other is where they have reasonable cause to believe that such a person is in breach of a limit on alcohol specified in regulations in relation to particular duties.
The main reason behind those changes is to increase safety and to act as a deterrent, and I wish to explain to the House why that is. When Parliament approved the Railways and Transport Safety Act 2003 and regulations were made under it, the provisions were not extended to the services because they were considered to be too restrictive, given that so many service personnel are engaged in potentially dangerous activities in the course of their employment. That exemption had wide cross-party support at the time. Against that background, the then Government gave an undertaking that a bespoke scheme would be created for the armed forces. Policy development was too immature for proposals to be included in the last Armed Forces Bill and progress had since stalled due to a lack of a legislative vehicle, so I am pleased that such a scheme is included in this Bill. The provisions in this group are important, because they are aimed at creating a safer environment when service personnel are carrying out safety-critical tasks in the course of their employment, both generally and when on operations. Rather than limiting commanding officers to acting after an incident has taken place, as happens at present, the changes in the Bill will allow commanding officers also to act earlier in the future. One of the concerns that I expressed during the passage of the previous Bill was that it might reduce the freedom and discretion of commanding officers. A number of changes in this Bill go to redress that in some way.
Bob Stewart (Beckenham) (Con)
As a past commanding officer, I think that it is an extremely good thing that more power be given back to commanding officers, including discretionary power. I think particularly of warrant officers who offend. It has been mandatory to reduce such officers to the ranks, but if they have done 20 years in the armed forces, that will have a deep effect on their pensions, for example. Therefore, this is a good change to the Armed Forces Act 2006 and I congratulate the Secretary of State on introducing it.
Dr Fox
I am grateful to my hon. Friend for his comments. The change that he refers to will not only give discretion but provide a sense of proportion and justice in dealing with such issues. The idea of a draconian, one-size-fits-all punishment is not in line with the traditions of this country or the armed forces. This is a sensible change that will command support on both sides of the House.
At present, the Director of Service Prosecutions is allowed under the Armed Forces Act to delegate his functions only to legally qualified service officers. As a result, the prosecuting staff at the Service Prosecuting Authority are all service lawyers. Given the small number of service lawyers and the competing pressure on them, the Director of Service Prosecutions has asked for a provision to be added to the Bill to allow civilian lawyers to be appointed to posts in the Service Prosecuting Authority.
The burden of the cases referred to the Director of Service Prosecutions and the complexity of those cases may continue to increase. The service police continue to investigate allegations of serious criminal offences, including sexual offences, fraud and computer-based crime; and allegations arising out of operations in Iraq and Afghanistan. The decisions taken to prosecute or not to prosecute, especially those cases where there is an operational context, are often finely balanced and involve difficult prosecution decisions.
The change is being made as a reasonable precaution to allow the Director of Service Prosecutions the flexibility to appoint civilian prosecutors. That will be done only if it becomes necessary in order to ensure that the Service Prosecuting Authority continues to have access to an adequate number of prosecutors with the necessary professional skills. All those involved greatly value the benefits of Service Prosecuting Authority lawyers being current serving officers. There is no intention to move to a completely civilian authority.
The Director of Service Prosecutions acts independently of my Department and comes under the general superintendence of my right hon. and learned Friend the Attorney-General. It would be for him to decide if such a change were needed. There has been an exchange between my Department and the Attorney-General setting out the circumstances in which the provision would be brought into force. As part of that, it is clear that there would be consultation between our two Departments before any action were taken.
I believe that our Armed Forces are among the best, if not the best, in the world. One of the reasons that they are so good is that they conduct themselves with great discipline. It is something for which our armed forces have a deserved reputation throughout the world. The Bill helps to underpin that discipline. It will ensure that our armed forces continue to have a fair and modern system of service justice that underpins the operational effectiveness of which we are all in the House rightly proud. I commend the Bill to the House.
Dr Fox
The shadow Secretary of State asks why, seven months into government, we have not made more progress, but the previous Government left behind debt equivalent to £16,000 for every man, woman and child in the country. The interest on the deficit is greater than the defence budget for this year and the economic position is a strategic liability, so there is no point in the Opposition adopting a high moral tone—he was a member of the Cabinet who left us in this drastic economic position. He might consider his own culpability for our being in a position that makes it more difficult for us to achieve many of the things we want.
Mr Murphy
There we have it, Madam Deputy Speaker —the right hon. Gentleman advocates such a timid Bill because the cuts that he is determined to make in the Ministry of Defence will not allow him to achieve his ambition. I can do nothing more than quote again Sir Michael Moore, the chair of the Forces Pension Society, who said:
“I have never seen a Government erode the morale of the armed forces so quickly.”
Mr Murphy
The Secretary of State shakes his head. I invite him to correct the record if he wishes. [Interruption.] He says from a sedentary position that he has plenty of time to do so. I give him the time today. [Interruption.] He says, “Get on with it.” Even the Secretary of State will not rise to his feet to support his own policy.
The military covenant goes to the heart of the relationship between the military, society and the Government, as the Secretary of State rightly said. It should and will never be the exclusive property of one political party. However, no Government can cut the support to Afghan war widows and claim to be honouring the military covenant. The truth is that this is a Government of convenience, who, in taking money from Afghan war widows, have lost the courage of their conscience.
The Government’s actions are particularly hard to comprehend when one considers that in July 2009 the previous Government published a Green Paper entitled “The Nation’s Commitment to the Armed Forces Community”, in which some truly innovative proposals were made. I invite the Secretary of State to look again at that Green Paper to see which aspects of it can be included in this Bill. I am surprised that the Government have not sought to take forward those ideas, which would not just give real help to the forces community but continue to demonstrate the Government’s commitment to serving the interests of those who put their lives on the line. I urge the Government to look again at the proposals.
This debate is also an opportunity for the Government to confirm that they will look again at another of their recent proposals, which in my view is one of their most regrettable decisions—the decision to scrap the chief coroner’s office. That office would give families who have lost those closest to them, often in tragic, painful and extremely complex circumstances, the right to the best possible investigations and military inquests into the deaths. Last month’s decision by the Lords, by a significant majority, to save the chief coroner’s office gives the Government the opportunity to think again. They should listen not only to the House of Lords but to the Royal British Legion, and retain the chief coroner’s office.
Today’s debate is an opportunity to further the passage of a Bill that in general we support. It will make sensible and important changes to procedures that will ensure that our armed forces can perform to the highest standards and are effectively regulated. But it is also more than that. It is an opportunity for the Government to think again—not about Afghanistan, where they should and rightly will remain resolute, but about cuts to the independent scrutiny of the Government’s progress on the covenant, about matching their pre-election pledges to their post-election actions and about the introduction of permanent reductions in the support of those who serve our nation and their families. If they do think again, there will be a very warm welcome not only in this House but, much more importantly, in the houses of service families across our nation.