Defence Spending

Debate between Malcolm Rifkind and Richard Drax

Thursday 12th March 2015 Commons Chamber

[Sir Malcolm Rifkind (Kensington) (Ind)]

I strongly agree with what has just been said by the hon. Member for Birmingham, Edgbaston (Ms Stuart). I also pay particular tribute to the impressive and remarkable speech that we heard from the hon. Member for Penrith and The Border (Rory Stewart), the Chairman of the Select Committee, who explained the practical implications of our situation in a very detailed and convincing way. I shall not repeat the points that he made, because they were made so well by him.

Let me begin by emphasising that this debate is not just about defence expenditure, but something far wider. If we continue to make cuts in our defence budget of the kind that are being contemplated, we shall find that we are making a profound and irreversible change not just to our defence capability, but to the ability of the United Kingdom to conduct a global foreign policy with authority, conviction and credibility. That, in essence, is the fundamental choice that we are being asked to contemplate.

We have had these cuts over a number of years. I have not until now criticised the Government for their defence cuts over the five years of this Parliament, for several reasons. First, I have recognised—as have most of us—that in a period of great austerity it is of course impossible to remove the contribution that the Ministry of Defence, given the size of its budget, might be able to make to resolving matters. I was privileged to serve as Secretary of State for Defence, and I had to implement defence cuts myself, so I am very conscious of the pressures that exist, and the need to try to find a way of resolving them.

[Richard Drax]

May I counter that argument by saying that, with defence, if we cut ships, regiments or planes, we cannot just reinvent them when we need them? It takes months or years to bring them back.

[Sir Malcolm Rifkind]

My hon. Friend helps to take me to exactly the next point I was going to make. What also enabled me to modify my concerns—to not feel the need to speak out during those few years—was the way in which the MOD addressed the difficult decisions it had to make. To a considerable extent, it tried to preserve the major improvements to our overall capability —our carrier capability, for example, and the need to renew the Trident submarines because of our strategic requirements. A lot of the reductions were made in the areas of manpower. That is painful and difficult, but the reality is that if we had cancelled the carriers, they could never have been reintroduced. That would be gone for ever, with profound and permanent impacts on our maritime capability. When we reduce Army manpower, it is painful, but the changes can be reversed, if the resources are available and the need is there, over not too long a period. That will still be difficult, but it can be done without the implications that come from a major reduction in capability.

Perhaps the most important thing that reassured me—rightly, I hope—over the last five years was the clear assurance that my right hon. Friend the Prime Minister gave that once we had resolved the immediate economic crisis, and had economic growth and economic development, there would be, as an absolute necessity, real-terms increases, year on year, in our defence expenditure. That was, so far as anything can seem to be a commitment, a commitment at the very highest levels of our Government five years ago, and we have been told ever since that that remains the Prime Minister’s view.

We face a most extraordinary situation. The Government say—I happen to agree with them—that the United Kingdom is going through a period of remarkable economic recovery. We are now one of the strongest economies in Europe, we are told; our economic growth is now higher than that of almost any other country in Europe, and our employment situation has improved. All these economic developments, which will rightly be very important in the forthcoming general election, are being shown as examples of how we have succeeded in our strategy, and how the UK is therefore stronger than many other countries in the western world. Yet ironically, simultaneously, precisely because our GDP is growing substantially, meeting that 2% requirement becomes that much more difficult, if not unattainable. It is a great irony that the more our economy improves, the more we seem likely to fall below the 2% requirement, when the reverse should be the case: if our economy is growing and doing well, it should be easier to find the resources required, because the revenues coming into Government will also increase considerably. That irony is not one that I have yet heard explained.

I hope that when the Minister winds up, he can reassure us on how we will benefit from the remarkable economic growth for which we are taking the credit. We certainly did not expect increases in defence spending when the economy was in a mess. Now it seems to be much healthier. I recognise that the budget deficit continues, but that is only part of the overall economic situation.

Something else worries me, too, and it has been mentioned by colleagues and those outside this House. Of course this 2% is a nominal figure, a totem, and it is the real resources that are important, but I find it difficult, if not impossible, to reconcile a cavalier approach towards the 2% objective, which we have held for many years, with saying that overseas development is somehow untouchable, and indeed may have to be given statutory protection in the current economic circumstances. Indeed, it now has statutory protection of a kind that I find extraordinary. These are very curious situations.

The consequence of what is happening, particularly if it continues after the general election, will be not just pain for our armed forces and their capability, but an irreversible change to Britain’s ability to conduct a credible foreign policy. After the United States, our armed forces and those of France are unique around the world. We are the only other two countries that have been able to make a meaningful contribution—albeit that we come far behind the United States—to providing a global deployment of armed forces to assist with overall issues of global security. Our role and credibility in the Security Council of the United Nations as not just a member, but a permanent member, is because of our ability to contribute towards security. That is what the Security Council is all about.

Our foreign policy is conducted on the basis of three assets that we have: first, of course, our diplomatic capability, which is impressive, although it has been under considerable strain in recent years; secondly, our intelligence capability, which is strong, and I pay credit to the Government for the resources provided there; and, thirdly, our military capability. The UK’s military capability is in a serious condition, of a kind that we are all familiar with, and that has an impact on our diplomatic credibility.

I read some years ago a remark that I have used since—colleagues may have heard me use it. It is attributed to Frederick the Great: “Diplomacy without arms is like music without instruments.” That remains true, not because we will necessarily always wish to use our armed forces, but because if we are pursuing, with good faith, a desire to develop a political and diplomatic solution to some intractable problem—there is a perfect example in our relations with Russia and Mr Putin at present—the fact that we have as the ultimate back-stop a military capability has a significant and profound impact on the likelihood of our delivering the result that we are trying to obtain. However, if we are seen as once having had that military capability, but as having opted, as a deliberate act of Government policy, to reduce that capability so that it remains significant but is not in any profound sense impressive, we will have seriously reduced our diplomatic clout and made the ultimate problem that much greater.

It is always dangerous to draw comparisons with the 1930s, but we know perfectly well that those in Berlin who were planning aggression believed that the western democracies were incapable of providing the resources required for a strong defence, and that influenced their foreign policy. I am not saying that the threats that we face today are of that order, or that the individuals concerned are comparable to the people who led Germany at that time—of course that would be unfair—but the fundamental principle is nevertheless the same.

What I beg of the Government, or any Government who emerge after the general election, is that they do not ask the facile question, “Does this win votes? Are the public demanding it? Is this therefore something we must respond to, or it will hurt us politically?” If a Government have one justification in a democratic society, it is that they do not just follow, or seek to follow, public opinion, but occasionally recognise the need to lead public opinion, and to take decisions that may involve painful choices, and that may be difficult in terms of newspaper headlines, but may have profound and beneficial impacts on our ability to make our contribution to sorting out some of the problems of the world.

Looking around the world, there are very few countries indeed that combine strong democratic institutions, genuine respect for the rule of law, and a military capability that can help build up security, restore peace and achieve the global objectives with which this country has always been proud to be associated. Let it not be the legacy of this Government, or any Government who emerge after this election, that we can no longer say that or make that contribution, not because the public rejected the idea, but because politicians failed to provide the right level of leadership.