Armed Forces Bill

Lord Williams of Elvel Excerpts

Tuesday 4th October 2011 Lords Chamber

[Lord Rosser]

My Lords, I have two amendments in this group, Amendments 4 and 11. I thank the Minister for his letter of 15 September 2011 following the last discussion we had on the Armed Forces Bill. However, I would also like to express my concern about the last paragraph on the first page of that letter. It says:

“There is however a significant question over the best way of meeting these objectives. It is, of course, our practice in the House to table amendments in order to ensure that issues are properly debated and addressed. That does not mean that it is always appropriate to resolve those issues through changes to legislation. In this case, in order to avoid legislation which is overly prescriptive and to ensure that the Bill completes its Parliamentary stages in a timely fashion, I think we must look very carefully at whether we can achieve our aims by other means.”

This Bill has not been delayed by anyone other than the Government, who were forced to rethink their stance in relation to the Armed Forces covenant and the report in the Bill. The desire of a Government to ensure that a Bill completes its parliamentary stages in accordance with their own hoped-for timetable can hardly be regarded as a good reason for not accepting constructive and appropriate amendments, which is what the Minister’s letter, to which I have referred, appears to be seeking to say.

In Committee, I put forward an amendment providing for a more comprehensive list of subjects to be addressed in the annual report than is provided for in the Bill, which refers only to healthcare, education and housing. Whether any other issues are covered in the report is ultimately entirely a matter for the Secretary of State to determine—not just the current Secretary of State, but any future Secretary of State of whatever political colour. Thus an opportunity is provided, which one hopes would not be taken, but could be taken, for any Secretary of State to sideline some other important issues which were proving awkward or contentious. In rejecting the amendment in Committee, the Minister said that even if a longer list captured everything today, it would be out of date tomorrow and that it would be better to stick with the short list of three headings in the Bill, leaving it to the Secretary of State to exercise his discretion on what else to cover.

The Minister also rejected a further amendment I put forward in Committee which would have required the Secretary of State to publish the observations of the reference group. In doing so, he repeated what the Secretary of State had said earlier this year—that he would publish the observations of non-government members of the external reference group alongside the report. The Minister went on to say that given that clear commitment, there was no need to include it in the legislation.

My Amendment 4, which is not dissimilar in its objectives from Amendment 2 in the name of my noble friend Lord Touhig, to which he has just spoken, provides for any comments which the covenant reference group may wish to make on the Armed Forces covenant report to be included in that report. With the Secretary of State being able to decide whether anything else apart from healthcare, accommodation and housing should be included in the report, and the Minister declining to extend that list, a safeguard needs to be written in to the Bill. The matter should not depend on the word of one Secretary of State. The comments, in full and without any editing or summarising, of the covenant reference group on the Secretary of State's report should be made public and thus open to debate and discussion in the same way as the Secretary of State's report. To say that on a matter of this importance, and on an issue that the Government did not initially want to be in the Bill, that an undertaking from one Secretary of State is sufficient is not adequate or appropriate, particularly since the covenant reference group will provide the only form of independent audit of issues relating to the covenant.

The Minister rejected my amendment for a longer list of issues to be covered in the Secretary of State's report on the basis that my additional items, unlike healthcare, education and housing, which the Government are including in the Bill to be covered in the report, would not be “enduring topics”. I assume that the Government's intention is that the work of the covenant reference group, including its comments on the annual Armed Forces covenant report, will also be “enduring” and thus ought to be regarded in the same way as healthcare, education and housing, and included in the Bill.

Amendment 11 provides that the parliamentary and local government ombudsmen should have a duty to investigate complaints from service personnel, veterans and their families that a public body or local authority has failed to meet commitments outlined in the Armed Forces Covenant and in the other document, the Armed Forces Covenant: Today and Tomorrow. In his letter of 15 September, the Minister said that the Secretary of State would have regard to the full range of topics identified in the Armed Forces Covenant, published in May this year.

I moved an amendment in Committee that was slightly different from the one we are debating today. In rejecting it, the Minister paid tribute to the work of both the parliamentary and local government ombudsmen, acknowledged that they could do much to help members of the Armed Forces community, and said that we should do more to make service personnel aware of how the ombudsmen can help them. I agree. One clear way of making service personnel aware of this is by including in the Bill this aspect of their role in respect of complaints that a public body or local authority has failed to meet its commitments in relation to the covenant. In Committee, the Minister commented that the scope of the amendment was limited to service personnel and excluded family members and veterans. This amendment includes veterans and families and I hope that it will receive a more favourable response from the Minister.

The amendments in this group cover a number of issues that no doubt will be addressed later in the debate, including a requirement for the Secretary of State, when preparing the Armed Forces covenant report, to have regard to the responsibilities that the Armed Forces have towards minors, and also for the Secretary of State to commission research into healthcare issues affecting servicepeople. I understand that it has been agreed through the usual channels that any vote should take place at Third Reading rather than on Report today because of the clash with the Conservative Party conference. However, I hope that that fact will not prevent the Minister giving helpful and supportive responses on the issues raised in my amendments and in the others that are part of the group.

[Lord Williams of Elvel]

My noble friend has made the extraordinary statement that it has been agreed between the usual channels that votes should be taken not on Report but at Third Reading. There is clear guidance in the Companion to the Standing Orders that matters that are decided or fully debated on Report or earlier should not be raised at Third Reading. Perhaps the government Chief Whip, or whoever is in charge of government business, will illuminate us on this extraordinary procedure.

[Lord Ramsbotham]

My Lords, I have put my name to Amendment 1, tabled by my noble and gallant friend Lord Craig, because it has underneath it the word “trust”, which I have mentioned on more than one occasion in connection with this Bill, in particular with what is called the Armed Forces covenant.

When I was serving, the Armed Forces covenant did not exist. The regiment that I joined had an ethos, as I have mentioned before, that was laid down by my ancestor Sir John Moore of Corunna, that there should be a mutual bond of trust and affection between all ranks, which the officers had to earn. That mutual bond of trust was not unique to my regiment or indeed to the Army, but was very much a key element of every single military organisation, because without that trust, from top to bottom and from bottom to top, organisations that are called upon to go to war simply cannot exist. Therefore, whenever the word “trust” comes up in connection with trust having been broken in the military connection, one must be very concerned.

Like many other noble Lords, I am sure, I was extremely concerned when I saw the headline in the Daily Telegraph last week,

“Fox blames Forces chiefs for black hole”,

in which it was quoted that he had said that there had been,

“a ‘complete breakdown of trust’ between them—

the forces chiefs—

“and Whitehall, worsening the already fractious relationship between defence chiefs and politicians”,

on which a senior military source commented:

“To say that we are speechless after these comments is a mild understatement. It is quite staggering. What this Government fails to understand is that the military has been running very, very hot fighting the politicians’ campaigns in Iraq, Afghanistan and now Libya. If there was no breakdown in trust before, there is now”.

He was referring to the Secretary of State’s earlier failure to overturn the disgraceful traduction of two senior officers, General Sir Sam Cowan and Air Chief Marshal Sir Malcolm Pledger, for allegedly introducing defence cuts that contributed to the loss of a Nimrod over Afghanistan, whereas the noble Lord, Lord Browne, the previous Defence Secretary, said in this House that it was Ministers who laid down such cuts. Then there was the discussion over the defence review. Then only last week the noble Lord, Lord Lee, raised the question of the sudden cancellation by the Secretary of State of money being spent on housing for both single servicemen and families. Therefore, if the Armed Forces covenant is an expression of the public response to the services putting their lives on the line, it is desperately important that one should have trust that the covenant will be observed.

Therefore, it seems very important that the position of the covenant is enshrined in this Bill and it is very disappointing to find, with regard to Clause 2, that it is not actually the Government or the Ministry of Defence but business managers, allegedly in this House, who are preventing a very small amendment being made to the Bill that could easily be made if there was a will to do it. I suggest, therefore, that on behalf of the people who have to work in defence, the business managers in this House think again when they say that they cannot get this amendment through before 7 November. There is no connection between this and any other clauses, and it would not interrupt the Bill or cause any problems. It is clarification, and would separate the Armed Forces covenant, on which so much stock should be put, from a clause that is to do with those who were executed for cowardice in the Great War. I hope that the Government will accept that it is desperately important that they do all they can to increase trust in the covenant. This is one way of showing that they regard it as being very important.