Integrated Review of Security, Defence, Development and Foreign Policy

Debate between Lord Reid of Cardowan and Lord McNicol of West Kilbride

Thursday 22nd April 2021 Lords Chamber

[Lord Reid of Cardowan (Lab) [V]]

My Lords, I will confine myself to making three points on nuclear deterrence, a policy I have long supported both inside and outside government. I did not hear the Minister mention it today, but I have concerns about the review in this area, some of which reflect what the noble Baroness, Lady Anelay, has just said. First, page 76 of the integrated review approximates to our present policy by saying:

“The UK will not use, or threaten to use, nuclear weapons against any non-nuclear weapon state party to the Treaty on the Non-Proliferation of Nuclear Weapons 1968.”


However, it then goes on to say, no more than two sentences later:

“However, we reserve the right to review this assurance if the future threat of weapons of mass destruction, such as chemical and biological capabilities, or emerging technologies that could have a comparable impact, makes it necessary.”


This raises a question. Does it actually mean that we hold open the use of nuclear weapons in response to any form of aggression, including, perhaps, through technology or cyber? Will the Minister explain the meaning of this section? In asking that, I understand that ambiguity has a part to play in nuclear deterrence but, if ambiguity is stretched so far that it becomes ubiquitous, it is in danger of becoming confusing and, frankly, incredible. That, in turn, then undermines rather than reinforces nuclear deterrence.

Secondly, as the noble Baroness, Lady Anelay, just said, and as my noble friend Lord Browne recently and accurately pointed out, by raising the cap on the numbers of our nuclear arsenal we have effectively abdicated our leadership role in nuclear disarmament, not least by announcing a policy change that runs completely counter to President Biden’s commitment to reduce the role of nuclear weapons in national security policies. In the integrated review, the Government have provided for fewer soldiers, fewer planes, fewer ships, but more nuclear warheads. Perhaps the Minister could tell the House, first, what the rationale is for that and, secondly, what consultation took place with the Biden Administration on this change?

We live in an age in which the threats and dangers are more complex and interrelated than ever before. Only this week US Strategic Command warned:

“The spectrum of conflict today is neither linear nor predictable. We must account for the possibility of conflict leading to conditions which could very rapidly drive an adversary to consider nuclear use as their least bad option.”


In this context, will the Minister explain how the decision to increase our nuclear stockpile, and to potentially extend the threat of a nuclear response to an apparently unlimited range of conflict situations, is supposed to strengthen nuclear deterrence?

Finally, I draw the Minister’s attention to a paper issued this week by the European Leadership Network, which pointed out:

“The ability for the leaders of nuclear-weapons states … to communicate personally, unambiguously, and with certainty in all conditions has eroded as their number … has increased”


and technology has evolved. Astonishingly, in an age when any nuclear crisis or conflict could not be contained with certainty to two states, there are currently no multilateral communication lines that can be trusted. All major nuclear risk reduction efforts under way ahead of the NPT review conference have recommended that the permanent five work on improving crisis communication technology. What have the Government done to assist this process?

[The Deputy Speaker (Lord McNicol of West Kilbride) (Lab)]

Before I call the next speaker, the noble Lord, Lord Purvis of Tweed, it might be helpful to read out the scratches so that the speakers who follow them will be aware and can make plans. The noble Baroness, Lady Sheehan, has scratched, as has the noble Baroness, Lady Sugg, the noble Lord, Lord Clement-Jones, the noble and learned Lord, Lord Woolf, and the noble Lords, Lord Sarfraz, Lord Walney, Lord Hannan, Lord Berkeley and Lord Desai.