Armoured Cavalry Programme: Sheldon Review

Baroness Winterton of Doncaster Excerpts

Thursday 15th June 2023 Commons Chamber

[The Minister for Defence Procurement (James Cartlidge)]

With permission, Madam Deputy Speaker, I would like to make a statement to update the House on the review conducted by Clive Sheldon KC on the lessons to be learned from the armoured cavalry programme, which is the Army programme centred on the Ajax vehicles. The Defence Secretary has previously acknowledged that the programme was a troubled programme. Albeit that he has more recently announced that it has turned a corner, it is against the backdrop of concerns he had about the programme, and those of this House about what was known at the time of publishing the integrated review, that he commissioned an independent review by a senior legal figure to investigate the circumstances.

In May last year, Clive Sheldon KC was appointed to lead a lessons learned review into the armoured cavalry programme. The review’s terms of reference were to

“identify lessons and make recommendations to help Ministry of Defence (MOD) deliver major programmes more effectively in future, with a particular focus on how MOD shares and elevates issues across the Department.”

An earlier Ministry of Defence report, by David King, specifically relating to the health and safety concerns about noise and vibration, was published in December 2021. We continue to make good progress on implementing the recommendations from that report, some of which are echoed in Mr Sheldon’s review.

Mr Sheldon submitted his report to Ministers on 19 May, and I am today publishing that report, unredacted, on gov.uk, and placing a copy in the Library of the House. I wish to formally thank Mr Sheldon and his team for the painstaking work that they have undertaken to enable us to better understand how the MOD can improve the governance, culture and leadership of our major programmes. They interviewed some 70 people and considered tens of thousands of pages of evidence.

The resulting report makes for difficult reading, highlighting a number of systemic, cultural and institutional problems across several areas of the Department. These problems include: fragmented relationships and the conflicting priorities of the senior responsible owner role. It also points to a reticence to raise, and occasionally by seniors to listen to, genuine problems in a timely, evidenced manner.

We accept these findings and most of Mr Sheldon’s 24 formal recommendations, with 15 accepted and nine accepted in principle. Crucially, the review did not find that either Ministers or Parliament were misled. Equally, the review team did not see any evidence of misconduct by any individual, let alone gross misconduct, and nothing that would justify disciplinary action. It is, though, true that many of the behaviours highlighted in the report are far from ideal, but in many cases they have already been recognised and acted on, both specifically on the armoured cavalry programme as well as across the Department.

Where work is not already under way to implement a recommendation, we commit to making the necessary changes at pace. In the interest of time, Madam Deputy Speaker, I will address the recommendations in the themes set out by Mr Sheldon in his executive summary, rather than going through each of the recommendations.

A number of recommendations relate to MOD’s internal relationships, including with the Defence Science and Technology Laboratory. Considerable effort has already been made to address these issues within and beyond the Ajax programme. This has resulted in much improved working and reporting arrangements, in particular with the Defence Equipment & Support organisation and also the newly established acquisition safety cell that advises the Investment Approvals Committee on equipment safety matters. Escalation routes also exist for DSTL through the chief science officer where concerns are not acted on.

Another area of focus is SROs. I know that many colleagues are interested in this point. We fully agree with the need to improve how senior responsible owners are supported and much work has gone into upskilling and supporting SROs, ensuring that they have the time and space to focus on delivering their programmes and can build skills through the Major Projects Leadership Academy.

Today, four in every five of our major project SROs are committing at least half their time to leading their programmes—half the Army’s 19 SROs dedicate 100% of their time. We also agree in principle with Mr Sheldon’s presumption for a minimum tenure, subject to compatibility with employment law.

Finally, the report comments extensively on a culture that led to issues not being escalated and makes recommendations to improve that and the flow of information. Transparency has improved since the period of this report. For Ajax, there are detailed updates through the SRO to Ministers that ensure the potential issues are exposed early should they arise in the future. Processes will be further strengthened through the defence acquisition operating model and guidance. Work is also under way to implement a project delivery data strategy to strengthen the use of data to both support performance reporting and assist in early identification of issues. Of course, the main aim of commissioning this review was to learn lessons to improve procurement—not just on Ajax, but across the MOD’s programmes.

Ultimately, the core of our intent is to ensure that the equipment we procure for the British armed forces is of the highest possible standard and, furthermore, that our service personnel have faith in the system and the taxpayer has faith in our spending of money from the public purse. Quite simply, we need to deliver change across the Department, turning widespread desire for acquisition reform into tangible reality, in particular driving increased pace and agility into acquisition, so that we can keep pace with technology and maintain our competitive edge.

Although I recognise the many challenges in this programme to date and the need to learn lessons, I would stress that there is already intense work under way in the Department—especially at DE&S—to improve performance, with encouraging signs. For example, between December 2020 to December 2022 we saw a reduction from 6.1 years to 5.1 years in the time that it takes to go from outline business case to delivering equipment into the hands of our armed forces.

In further positive news, I hope the House will welcome the significant progress made to recover the Ajax programme. I can confirm that, as of Tuesday afternoon, the Household Cavalry has been undergoing standard Army field training on Salisbury plain in a range of Ajax vehicles. Focused on individual and crew training, this step marks the restarting of British Army training on these sophisticated vehicles, and I hope underlines that this project really has turned the corner. Indeed, last Friday I had the great privilege of visiting Bovington to experience the Ajax vehicle at first hand.

I am pleased to report that the soldiers I met described the vehicle and its capabilities as “night and day”—a phrase used repeatedly—compared with their current equipment. In describing Ajax’s strengths, the soldiers I spoke to emphasised the platform’s high mobility, increased firepower from the new cannon and a highly sophisticated sensor suite that really helps them do their job, representing in totality a very real and positive step change in capability—all packaged in a vehicle with high levels of crew protection and survivability. As training increases across other field Army units on the 44 vehicles already delivered, in parallel General Dynamics’s personnel in Wales continue to run their production lines to build the operationally deployable vehicles, with the end goal of 589 fully operational vehicles by 2029.

To conclude, I reiterate my gratitude to Mr Sheldon and his team for their considerable efforts and for distilling his findings into clear lessons and recommendations for the future. Our focus now is on understanding and applying those lessons, ensuring that they are implemented in the armoured cavalry and other major defence programmes, as well as ensuring that we deliver the game-changing capability that Ajax will provide to the British Army as quickly as possible. I commend this statement to the House.

[Madam Deputy Speaker (Dame Rosie Winterton)]

I call the shadow Minister.

--- Later in debate ---

[James Cartlidge]

I begin by agreeing with the hon. Gentleman on Glenda Jackson; I do not think she was in the House when I was here, but she was an amazing actress and I join in his sentiments and echo them entirely.

I recognise that the hon. Gentleman is not just the shadow spokesman but has a clear constituency interest, and I respect that. He talks about fevered speculation and the impact on the workforce, and I totally understand that. We do not want to see that. He talks about coming to the House: I am here today to be absolutely clear with everyone about the latest position. In fact, my colleague the Paymaster General regularly updated the House on the position around Ajax when he was the Minister. My predecessor, now the Lord Chancellor, also issued a written statement earlier this year that was very detailed about the programme, so I think we have been consistent in updating the House.

On some of the hon. Gentleman’s specific questions, he asked about action on individuals. What we said when commissioning this review was that disciplinary action would be taken only if there was evidence of gross misconduct, and Mr Sheldon found no evidence of misconduct, let alone gross misconduct. That is the clear reason why individual action has not been taken.

In terms of action across programmes, I point the hon. Gentleman to the very significant investment by the Army of £70 million over the next 10 years in Army procurement programmes, including in the past two years a doubling in the number of SROs and a doubling of the amount of time that SROs spend on their responsible major projects. Those are significant investments.

I also point out to the hon. Gentleman some of the improvements we have seen. I accept that we need to go further but, if I may draw a contrast, this is not the first review of acquisition. Bernard Gray issued an independent “Review of Acquisition for the Secretary of State for Defence” in 2009, which described a poorly performing procurement system. That review found that

“the average programme overruns by 80% or c.5 years from the time specified at initial approval through to in service dates”,

and that was under a previous Government.

These problems have been around for some time and it is disappointing. I have pointed to the improvements we have seen, but let me be absolutely clear: the ultimate reason we have this report is to learn lessons and the way we respond to it is to deliver a fundamentally better acquisition system. I totally agree with the hon. Gentleman on that and I hope we can all work together to that end.

[Madam Deputy Speaker (Dame Rosie Winterton)]

I would like to just take this opportunity to add my thoughts about Glenda Jackson, as I can see there are colleagues in the Chamber who were here in the House at the same time as her. She was a wonderful colleague and a great Minister, and I think we all want to send our condolences to her family. I call the Chair of the Defence Committee.

[Mr Tobias Ellwood (Bournemouth East) (Con)]

May I immediately associate myself with your kind words about Glenda Jackson, Madam Deputy Speaker?

We now have in the Chamber not one, but three current or former procurement Ministers who bear the scars of this project. I am pleased that we are able to discuss the matter so openly and I commend the recent work that the MOD has done to get on top of the issue.

Ajax is now a case study that the MOD and DNS should use on how not to do procurement. This is all about the British Army’s recce vehicle. The current one being used, the Scimitar, was introduced in 1971. It is good to hear that the soldiers the Minister met said that the replacement is better than the last—that is brilliant, because it was built in 1971. Ajax’s journey has been miserable. It started in 2010 and the delivery date was 2017, yet it is not expected to enter service until 2030. Something very serious has gone wrong.

I absolutely welcome Clive Sheldon’s report. The Committee will look into that in more detail and, rather fortuitously, a Sub-Committee study on procurement, by my right hon. Friend the Member for Rayleigh and Wickford (Mr Francois), is currently under way. I am sure that he will have more words on how we will digest the report in more detail.

The Minister covered some of the issues. Concerns include the relationships between different entities within, or associated with, the MOD. The senior responsible officer has been criticised for not being a single point of contact or owning the actual project itself but having to have a number of projects going concurrently. Concerns got stuck because of people taking a rigid view of their remits. It is not just with Ajax that there is a problem; there is also with the land warfare capability. We have similar problems with the main battle tank and the armoured fighting vehicle. I hope that those problems will be addressed when the defence Command Paper comes out.

[James Cartlidge]

I am grateful to my right hon. Friend the Chairman of the Select Committee. Of course, we are absolutely committed to engaging with his Committee and, indeed, with the Sub-Committee, before which I will appear next week. I was born in 1974. He makes a striking point about the existing vehicle being from 1971—it is the same age as my elder brother. I take his point that one might therefore expect servicemen to say that it is night and day.

I put great store by meeting those on the frontline, and I will always continue to do that. It was a great privilege to go to Bovington. One of the soldiers I sat next to in the Ares version had been in a Challenger 2 when it was hit by an IED—I think it was in Iraq or Afghanistan; he did not say. He felt confidence in the protection. It is so important that we interact with the soldiers on the frontline. Ultimately, that is the point: we want to deliver a better acquisitions system for them and I look forward to working with my right hon. Friend’s Committee to that end.

[Madam Deputy Speaker (Dame Rosie Winterton)]

I call the SNP spokesperson.

[Martin Docherty-Hughes (West Dunbartonshire) (SNP)]

Let me associate myself with the comments about the former Member for Hampstead and Kilburn—a great actor, but, I have to say to Labour colleagues, a great socialist, who will be deeply missed. I express my condolences to Labour group Members—a great loss to socialism.

I have sat on the Defence Select Committee for almost five years. I have sat through enough evidence sessions and seen enough gloss poured over the evident shortcomings of this programme by Ministers and officials alike to treat today’s statement with much scepticism. Despite the fact that we are seeing various cheaper competitor platforms to Ajax tested in the theatre in Ukraine before our very eyes, we continue with what I think is an absolute classic 24-carat bespoke option straight out of Main Building’s fevered imagination. Today’s news is telling us that Ajax will not be ready until the end of the decade—the Minister may correct me if I am wrong—meaning that a full 20 years will have passed between concept and deployment. That is, frankly, unforgivable.

Yet so many of us across the Chamber would tell us today that it does not have to be like this. To give just one allied example, Norway has recently terminated its contract for the NH90 helicopters after problems were found, and will return all those helicopters while demanding a full refund. What is stopping the MOD from doing the same with Ajax and General Dynamics?

As we have talked about Ukraine, if we eventually ever see any of these vehicles deployed in the field, would the Minister be happy for the UK to supply them to a country fighting for its survival against a technically advanced adversary?