Strategic Defence and Security Review

Lord Boateng Excerpts

Friday 12th November 2010 Lords Chamber

[Lord Boateng]

My Lords, at the outset I declare an interest as a non-executive director of AEGIS Defence Services and as a trustee of a number of charities operating in conflict and post-conflict regions in Africa and the wider world.

There is an interest that I do not need to declare because I bear the marks of it on my body still, in that I served in the Treasury between 2001 and 2005. As Chief Secretary to the Treasury, I conducted two comprehensive spending reviews. I bear the marks inflicted by a number of noble friends and noble and gallant Members of this House. It is not in my defence that I speak, but I did note that the noble Lord, Lord Robertson of Port Ellen, referred to the Treasury as predatory. It is incumbent on me to spring to the defence of my erstwhile Civil Service colleagues in the Treasury to say that the defence and intelligence spending teams of Her Majesty's Treasury are dedicated public servants—indeed, the armed services and the intelligence services have no better friends in Whitehall—but they have their job to do.

[Lord Robertson of Port Ellen]

I just want to clarify that I was talking about the leadership in the Treasury, more than the people who executed the policy.

[Lord Boateng]

I am comforted by that, and I am sure that the civil servants, who follow with great attention the debates in this House, will be similarly comforted. In response to the noble Lord, I make one observation about my time as Chief Secretary that he may find comforting. My experience is that if you are to have comprehensive spending reviews, which are necessary, and if you are to have strategic defence reviews, which are certainly necessary, it is better that the strategic defence review follows the comprehensive spending review, in this sense. The strategic defence review ought to impact on the comprehensive spending review that follows it, rather than the other way round. To have the two at the same time runs a danger—and it must be said that this strategic defence review demonstrates that danger all too clearly. As Chief Secretary, it is a help to have your feet held to the fire by the chiefs and Ministers who are able to refer you to a strategic defence review, to say that this is the commitment that the Government have made and then to expect you, as Chief Secretary, to live up to that commitment. That was certainly the approach taken during the two CSRs that I conducted and, yes, I was duffed up—Chief Secretaries always are—but at the end of the day there was a result that I think did justice to the cause, the national interest and to the service.

I fear that this strategic defence review has been unduly impacted upon by the fact that a CSR was taking place at the same time. There is too much influence of the concerns that have to dominate a CSR evident in the strategic defence and security review, but we must give it time to sink in, and we will see what emerges.

There is one very welcome statement within the review:

“Recent experience has shown that instability and conflict overseas can pose risks to the UK, including by creating environments in which terrorists and organised crime groups can recruit for, plan and direct their global operations ... A lack of effective government, weak security and poverty can all cause instability and will be exacerbated in the future by competition for resources, growing populations and climate change”.

That is true, and during my time as a high commissioner in sub-Saharan Africa, I certainly found that to be true.

One of the greatest bulwarks against that insecurity is an all too often under-remarked upon and under-recognised aspect of the Ministry of Defence’s effort: defence diplomacy. It is the soft power instrument applied by the MoD and by the dedicated band of men and women who do the business of defence diplomacy, which the MoD described in its policy paper 1 of 2000. Defence diplomacy is,

“activities undertaken by the MOD to dispel hostility, build and maintain trust and assist in the development of democratically accountable armed forces, thereby making a significant contribution to conflict prevention and resolution”.

That is a very important task, and it is conducted by very skilled and experienced service men and women who deserve credit for what they have done and are doing. However, the sad thing is that—and my own Government must take their fair share of responsibility for this—having made a very good start in the strategic defence review of 1998, which identified Africa as being a place where we ought to be applying this form of soft power, in the intervening years defence diplomacy activity in Africa and elsewhere has slowly declined. We have in fact cut back on the British military advisory and training teams, the short-term military teams and the consultancy services undertaken by security sector advisory teams. They have all been cut back as a result of the distorting influence of the wars in Iraq and Afghanistan.

I hope that this new strategic defence and security review will begin to reverse that process. I hope that the conflict pool, which is now to be increased to some £300 million by 2014-15, will not be used just to fund programmes but will be underpinned by a strategy. That is the one question I have for the Minister. Is there to be an Africa strategy? Is there to be a strategy that calls upon DfID, the FCO, the MoD and, importantly, on the very considerable resources available to DfID that are not available to the FCO and the MoD to underpin that strategy? If so, that will be welcome news in Africa because there cannot be development without security and there are no better men and women at doing it than those in our military services. They deserve credit and support, and I hope they get the resources from this conflict pool and a strategy that underpins the application of those resources. All of us across government, in both Houses and on all sides, need to be concerned about not just the quantity of our spend, but its effectiveness, and give the strength and support to the men and women of our services that they deserve in their valuable work in Africa.