Maritime Surveillance

Sandra Osborne Excerpts

Thursday 7th February 2013 Westminster Hall

[Sandra Osborne (Ayr, Carrick and Cumnock) (Lab)]

I, too, welcome the opportunity to take part in this debate. As our Chairman, the right hon. Member for North East Hampshire (Mr Arbuthnot) said, a great deal of hard work went into the production of the report. I add my thanks to the Clerks and special advisers to the Committee. The report makes a very positive contribution to the debate on the future of maritime surveillance.

As the Chairman also said, the Committee has previously expressed serious concerns about the decision in the 2010 strategic defence and security review to cancel the Nimrod MRA4 programme. Despite all the associated problems that the Chairman rightly mentioned, its cancellation involved a vast waste of public money; even so, as he also said, the MOD described that as the least worst option—I dread to think what the other options would have been. The cancellation has been analysed and re-analysed by the Public Accounts Committee and others, and in any case it is a fait accompli, so instead of dwelling on that, it seemed logical for the Committee to concentrate on its consequences, and those of other decisions in the SDSR, for maritime surveillance now and in the future.

[Mr Graham Brady in the Chair]

Given that the protection of the nuclear deterrent would have been one of Nimrod’s primary roles, one main concern about the cancellation is the capability gap in deterrent protection that might arise. I for one—I may be the only one here—would like the nuclear deterrent to be cancelled altogether. However, the former Defence Secretary Lord Browne has called into question the like-for-like renewal of Trident, suggesting that people who support it

“want to pour limited national resources into an increasingly ineffective nuclear system while being unwilling either to call for higher defence spending to meet conventional shortfalls or to scale back the UK’s level of international ambition. They want a gold-standard nuclear deterrent while under-investing in everything else.”

We all know that many within the military share that perspective. At the very least, that is worth considering and, for example, it would free resources to fill the capability gap in maritime surveillance in relation to new threats.

We do not have the luxury of a crystal ball and must look at circumstances as they are. We know that it is almost universally accepted, including by the MOD, that a replacement maritime patrol aircraft programme would, along with other assets, afford the optimum capability for the next 20 years, but that will not be seriously considered until at least 2015. Will the Minister update us on that situation, because that seems an awful long time?

I want to concentrate on the capability gap as it affects the nuclear deterrent. To understand the implications of cancelling the Nimrod programme, it is useful to look at the wider assets that, historically, have been involved in the protection of the nuclear deterrent. For understandable reasons, the MOD is cautious about providing too much information about that. In 2007, the hon. Member for North Devon (Sir Nick Harvey) received an answer to his parliamentary question on the conventional forces that had either a committed or a contingent role in the protection of the nuclear deterrent which stated:

“In addition to the four Vanguard-class submarines, all of which are dedicated to Military Task 1.2—Nuclear Deterrence—the current planned force elements assigned to support nuclear deterrence are”—

in a primary role, one mine warfare vessel and one survey vessel and, as contingent, two attack submarines, one destroyer, three mine warfare vessels, one Royal Fleet Auxiliary vessel, five Merlin helicopters and eight maritime reconnaissance aircraft. The broad order estimate of the costs was £25 million to £30 million for committed and about £250 million to £300 million for contingent for a range of tasks, including

“in support of the deterrent.”—[Official Report, 8 March 2007; Vol. 457, c. 2130-31W.]

In evidence to our Committee in November 2010, General Sir David Richards also made the point that maritime surveillance aircraft provide one of five layers of defence for the SSBN fleet, although he would not go into detail about those layers of activity, again for understandable reasons.

The fact remains that a gap in capability in the protection of the deterrent exists, and we need answers about what is to be done to fill the gap in the medium to long term. The Royal Navy SDSR question and answer document states:

“The NSC judge that there is a sufficient balance of capabilities within the SSBN, SSN, Frigate, RW”—

rotary wing—

“and MCM fleets to maintain the required level of assurance for CASD”—

continuous at-sea deterrence, and that the—

“decision to delete MRA 4 was made after carefully considering the risks associated with this.”

In written evidence to the Committee in 2012, the MOD specifically flagged up the following assets as playing a role in the protection of the nuclear deterrent: the SSN fleet—Trafalgar and Astute class—although the MOD highlighted that the primary role of the SSN is anti-submarine and anti-surface warfare, including protection of the deterrent; and the Merlin HM mark 1 helicopter, which, the MOD noted,

“has evolved organic Anti Submarine Surveillance to a Maritime Patrol Helicopter multirole capability deployed globally and in support of the strategic deterrent.”

The MOD also informed our Committee that several international agreements allow allies to contribute directly to UK surveillance tasks in support of deterrent protection.

Of the list of assets alluded to in the SDSR, the Merlin HM mark 1 is the only asset whose primary role involves maritime surveillance. There are 40 Merlin helicopters in service with the Fleet Air Arm, in both training and front-line squadrons. All four squadrons are based at Royal Naval Air Station Culdrose in Cornwall. The helicopters have a range of 450 miles, and I understand that they are being upgraded to mark 2 and will enter service as such this year. Will the Minister confirm that?

With the indulgence of the House, Mr Brady, I will raise a local issue. The HMS Gannet search and rescue service at Prestwick airport will close in the next few years. It straddles my constituency and that of my hon. Friend the Member for Central Ayrshire (Mr Donohoe). The airport is extremely important to our local area, and indeed to Scotland. It is suffering at the moment as a result of a number of factors, including the air passenger duty, and it is up for sale.

It seems daft on the surface that the Merlin helicopters, which protect the deterrent, are based hundreds of miles away in Cornwall when there is a site available on Faslane’s doorstep that has been used by helicopters for years. I urge the Minister to consider that matter, which may be small-scale in the grand scheme of things, but it is important to us locally, and I do not think that any Member will fault me for raising it.

To get back to the capability gap, several commentators gave evidence to the Committee, outlining their concerns about the potential shortcomings of helicopter maritime surveillance as a replacement for maritime patrol aircraft. The Coastal Command and Maritime Air Association said:

“The absence of the MPA together with a shortage of Towed Array fitted escorts, and the possible re-tasking of SSNs to land-strike targets (Tomahawk), results in a much reduced ASW capability. The helicopter is an effective ASW platform when operating relatively close to their base or battleship, but inevitably it has limited range and acoustic processing capability as well as restricted weapon-carrying capacity. Modern underwater detection systems using arrays fixed to the ocean bed and towed arrays on surface vessels—if one of those relatively few assets is available—can produce impressive results, but bad weather and noisy environments, both in the open sea and particularly at choke points, can totally disable these systems.”

Air Vice-Marshal A. L. Roberts, who is retired, also commented that

“while helicopter surveillance, in lieu of that by MPA, in support of the deterrent is entirely practicable in the approaches to Faslane, the range of the helicopter, if it is to remain on station for long, is limited. Adequate cover for the deterrent therefore becomes more difficult further out along transit routes and may be impracticable in SSBN patrol areas. The amount of noise generated in the water by a helicopter, which can be counter detected by any opposing submarine, is also a significant operational limitation.”

In March 2011, an article in Defence Management said:

“Mitigating the lack of Nimrods when it comes to clearing a path for Trident will be very asset-intensive in terms of Merlin ASW and towed-array frigates. But it is manageable. Just don’t expect those helicopters or frigates to be doing every task around the world that they currently undertake”.

My hon. Friend the Member for Bridgend (Mrs Moon) raised the matter in a debate in the Chamber on 26 January 2012. She is not here today because she has a constituency engagement. I am sorry about that because she really concentrates on this issue and is something of an expert on it.

[Mr Arbuthnot]

I entirely confirm what the hon. Lady has just said. The hon. Member for Bridgend (Mrs Moon) was the first to demand this inquiry, and has led it throughout. We are grateful to her for her commitment, even though she is not here today.

[Sandra Osborne]

That is entirely true. In the debate in the main Chamber, my hon. Friend referred to a letter that the right hon. Member for North Somerset (Dr Fox) sent to the Prime Minister in which he said:

“Deletion of the Nimrod MR4 will limit our ability to deploy maritime forces rapidly into high-threat areas, increase the risk to the Deterrent, compromise maritime CT (counter terrorism), remove long range search and rescue, and delete one element of our Falklands reinforcement plan.”—[Official Report, 26 January 2012; Vol. 539, c. 466.]

Will the Minister tell us the state of play of these matters as they stand today?

My hon. Friend also referred to an article in The Scotsman, which said that a Type 42 destroyer had to be detached from Portsmouth when a Russian navy battle group appeared off the coast of Scotland. A number of Russian submarines have also made a similar appearance. Previously, we would have swiftly and discreetly despatched a Nimrod to keep an eye on the situation, but, on this occasion, we sent out a Type 42 destroyer. Clearly, that illustrates a problem; we do not know what is going on in such areas without a maritime patrol aircraft.

It is also the case that the north of Scotland, which is referred to as the “high north”—that is not something that I can identify with, as I refer to it as the highlands and islands—needs close attention as it is an area of strategic and economic importance in a fast-changing environment. I hope that the fast change does not include Scotland becoming a separate country from the UK as opposed to being the north of the UK, but I will not go down that road now. The Chairman of the Select Committee has already stated that we are in the throes of an inquiry into the defence implications of an independent Scotland.

I welcome the Minister’s input into these matters, which have been brought to the Committee’s attention by people who are astronomically more expert than I am, and I look forward to his response.

--- Later in debate ---

[Mr Kevan Jones (North Durham) (Lab)]

It is a pleasure to serve under your chairmanship, Mr Brady.

I congratulate the Defence Committee on producing the report. I agree with the comments about the Committee. I was a member for seven and a half years, and it is a consensual Committee that does a lot of good work on a cross-party basis. I concur with the remarks about the Committee’s current Chairman, although I remember that, when I left the Committee to become a Minister, he said that my leaving was a bit like toothache—missed when it is gone.

The report covers an important issue that many Members have talked about today. As the Chairman and others have argued, the threats are wide. We are a maritime nation, and we depend on open sea lanes for trade and security. As a former Defence Minister, I am aware of the threats to our independent nuclear deterrent. The idea that, somehow, the end of the cold war means that Russia has gone away is incorrect. A maritime surveillance capability is vital to our defence needs, and not only because of the issues outlined by the Chairman of the Select Committee.

[Sandra Osborne]

What is my hon. Friend’s attitude to Lord Browne’s comments? Does he think we can afford a like-for-like replacement for Trident, or should we consider another system?

[Mr Jones]

I have read Lord Browne’s articles with great interest. I consider him a friend, but the weakness of his argument in The Daily Telegraph is that he makes a point about alternatives without giving one.

A maritime surveillance capability, as the hon. Member for Beckenham (Bob Stewart) said, is vital to ensuring that we know the location of threats to our independent nuclear deterrent. From personal experience, I know the importance that the Ministry of Defence places on ensuring that any threats to our independent nuclear deterrent and our nation are taken very seriously.

Having read the report, I do not think there is disagreement between the Committee and the Government. Uniquely, there is agreement between the Government, the Committee and the National Audit Office that the decision in the 2010 strategic defence and security review was wrong. In a minute I will address why I think the decision was taken, because the contribution from the hon. Member for Aldershot (Sir Gerald Howarth) is enlightening.

Yes, mistakes were made in the discussions on Nimrod. I am surprised that the hon. Gentleman criticised BAE Systems because, as he said, he is referred to in many parlours as the “Member for BAE Systems.” On this occasion, he has been frank and clear in his criticism of the company.

The mistakes made in the early days were like trying to turn a 1962 Mini Cooper into today’s model with the same frame. That was highlighted by the reports on the project from when I was a member of the Defence Committee. Was there a time to pull out of the contract? Yes, I think there was. Our report from the early 2000s suggested that there should have been that option. When spending public money, we get to a point where people think, “A little bit more might get this done.” In hindsight, had there been some revision of the project in the early 2000s, Conservative Members would rightly have thrown criticism at us for wasting large amounts of public money. Making the decision earlier might have led to a capability being in place today.

There is no disagreement that there is a capability gap. The report states:

“The National Audit Office’s (NAO) Ministry of Defence Major Projects Report 2011 considered the capability gaps left by the…MRA4 decision. The NAO Report said that according to the MoD, the Nimrod contributed to eight out of the 15…priority risks set out in the National Security Strategy. It added that the Nimrod was uniquely able to rapidly search large maritime areas, a capability relevant to long range search and rescue, maritime counter-terrorism, gathering strategic intelligence and protecting the nuclear deterrent. The NAO Report further said that the MoD had carried out studies in the lead up to the SDSR to assess the capability gap from cancelling the Nimrod MRA4 and the MoD ‘assessed that cancelling Nimrod would have consequences for the military tasks that the aircraft was expected to undertake, some of them severe’. The Report also outlined the capability gaps”.

--- Later in debate ---

[Mr Robathan]

That is a perfectly good question. We are coming up to another SDSR in two years’ time, when we will consider how to take this forward. I was going to cover the subject subsequently, but we are stretched for time. Hot off the press, I point out to my hon. Friend the Member for New Forest East (Dr Lewis) that some of the equipment destined for the MRA4 is now destined for the Merlin Mark 2 from 2015. Living within our means will continue to guide our decisions. Hard-headed realism and rigour will determine what we buy.

I have many things that I want to put on the record, but the sitting ends at 4.30 pm, so I must be circumspect in what I say. I turn to submarines, which have been much discussed. Submarines use their stealth and global reach to collect information, indications and warnings of threatening activity; where appropriate, they operate in support of naval taskforces. Bringing in the Astute submarine is a major step forward; it is a quieter submarine and gives us greater capabilities. Also, internationally we are not operating alone. Not only the French and Norwegians, but the Americans and Canadians can provide support through maritime patrol aircraft. We have existing agreements with some of those countries and have recently signed a memorandum of understanding with Norway to co-operate on maritime air surveillance. We are also supporting a NATO smart defence initiative to look at long-term solutions to challenges, which could involve buying maritime patrol aircraft.

We are not complacent. There is a great deal of agreement in the Chamber that this is something we wish to have: greater ability for maritime surveillance. We are looking at ways to have that in future. In order to answer the questions, however, I will not go through the rest of my speech, except to comment on the helicopters. We are looking at the Merlin Mark 2 coming into service this year—two are already in service—and we have SKASaC or Sea King airborne surveillance and control, which will operate until 2016, although the airframe is quite aged, as my hon. Friend the Member for Beckenham (Bob Stewart) said. We are not in any way suggesting that life is perfect at the moment.

When winding up, one should answer Members, so I will give some replies. My right hon. Friend the Member for North East Hampshire asked five questions. We see co-ordination of maritime surveillance as being done by the maritime security oversight group, up to the National Security Council. I agree that further development is needed, and I think that it will develop further. His second question was on the strategic analysis of maritime threats and the need for surveillance. I do not have a specific answer, because that is something we are doing the whole time. If he wants to ask a specific question later, I am happy to answer it. On progress on developing maritime ISTAR, some is classified, but optimisation study is going on as we speak. The air ISTAR optimisation study will consider the potential contribution to maritime surveillance of lighter-than-air vehicles, which were mentioned earlier; the initial report will appear in April this year, for consideration of options by April next year. His fourth question was the general ability to deal with contingency operations. Generally, contingency—a much overused word in the MOD—seems to rule everything at the moment. After Afghanistan, that is very much where we are looking. His fifth question was on updates, which we will continue to provide. If we do not, he can come back to me and ask for them, as I certainly will update him.

I did not entirely agree with the point made by the hon. Member for Ayr, Carrick and Cumnock (Sandra Osborne) on the deterrent, although I entirely agreed with her point about Scottish separation. We have layers of defence for the deterrent, so I echo the CDS, and I have just mentioned the Merlin upgrade to Mark 2, going into service this year. They regularly deploy to Prestwick to rehearse anti-submarine warfare in support of deterrence protection. Therefore, what she said is something we are using, although not permanently.

[Sandra Osborne]

Will the Minister give way?

[Mr Robathan]

I do not think that I should; I have one minute left.

I agree entirely with the hon. Member for Dunfermline and West Fife that the procurement and acquisition process has been appalling in the past. I hope that he will have some confidence in the pronouncements by my right hon. Friend the Secretary of State and, indeed, by my hon. Friend the Member for Ludlow (Mr Dunne), the Minister for Defence Equipment, Support and Technology. We are trying extraordinarily hard, with the assistance of Bernard Gray, the Chief of Defence Matériel, to get this right. The Select Committee will come back to me or the Ministry of Defence if we do not get it right. The hon. Gentleman mentioned the black hole, but I do not want to go there again.

May I say how much we miss my hon. Friend the Member for Aldershot (Sir Gerald Howarth) at the MOD? He was absolutely right about money, but I am afraid to say—