Armed Forces Commissioner Bill

Debate between Earl of Minto and Lord Coaker

Wednesday 30th April 2025 Lords Chamber

[The Earl of Minto (Con)]

My Lords, I thank the Minister for setting out the case for the Government’s amendments. We on these Benches are pleased that they have accepted the recommendation of the Delegated Powers and Regulatory Reform Committee that regulations to define the term “relevant family member” should be subject to the affirmative procedure.

At Second Reading, the Minister said:

“it matters that this Bill represents the first time that the families of service personnel will have a mechanism by which they can raise issues about how their life as a relative of a member of the Armed Forces impacts their welfare”.—[Official Report, 3/3/25; col. 302.]

This demonstrates that the Government clearly envisage a significant role for the family members of service personnel. It therefore always seemed slightly bizarre that not only were family members not defined in the Bill but the regulations that determined who will be included would not permit parliamentary scrutiny. The Government have now rectified that issue with these amendments and have published the draft regulations. Having looked over those, I do not have any objection to the proposed definition of “relevant family member”, and it appears to do a thorough job in capturing the complexities and, at times, vagaries of relationships in service life.

Amendment 12 from the noble Baroness, Lady Smith of Newnham, inserts the content of those draft regulations into the Bill itself, so that the primary legislation contains a definition of “relevant family member”. It is a good principle that, wherever possible, as much detail should lie in primary legislation rather than be left to delegated powers. Having listened to the Minister, and given the deployment of the affirmative procedure for the delegated powers, I am on this occasion satisfied with the Government’s response.

[Lord Coaker (Lab)]

I thank the noble Earl, Lord Minto, and the noble and gallant Lord, Lord Craig, for their support. I do not want to restart the debate about defining a relevant family member, because that would be an interesting but long and complicated debate.

I start with a couple of points, hoping not to generate the debate that I just said I hope we do not have. Are engaged couples included? My noble friend Lord Stansgate declared his interest with respect to that. He asked the same question in Committee; I am glad that it is still the same question now, just a few weeks later, on Report. The answer to my noble friend is, yes, that is our intention. We look forward to debating further the other points that noble Lords have raised when we come to the secondary legislation.

I will speak in general terms on the point the noble Baroness, Lady Smith, raised—again, this debate will take place when the secondary legislation comes forward —concerning why we do not simply use the covenant definition. It states:

“section 343B(4) Armed Forces Act 2006 … provides … the definition of ‘relevant family member’ … for the Armed Forces Covenant. The principles under the Covenant and the remit of the Commissioner will operate in a similar policy space (the welfare/ effect of service on service persons and their families)”.

However, they are separate policy backed by different legislation for different purposes. For example, the commissioner’s scope is solely for current service personnel and their families, while the covenant’s remit, as the noble Baroness knows, will also include veterans and their families. In a sense, we are trying to ensure that the definitions we use are fit for the different policy objectives they have.

With those few remarks, I thank noble Lords for their scrutiny of the amendments we have put forward and I restate the importance we placed on fulfilling the recommendation of the Delegated Powers and Regulatory Reform Committee that the delegated power for the regulation be made affirmative. That is an important change we have made and offers both Houses of Parliament, including your Lordships’, an effective and important opportunity to debate the contents of the “relevant family member” definition without compromising our ability to reflect changes in society in the future. With that, I hope that noble Lords will support the Government’s amendments.

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[The Earl of Minto (Con)]

My Lords, we visited the issue of the Armed Forces covenant during our deliberations in Committee. During that debate, the noble Baroness, Lady Smith of Newnham, raised the importance of the covenant and how vital it is that the commissioner be fully able to investigate covenant issues relating to the welfare of service personnel and their families. I was grateful, as I think were all noble Lords present, for the Minister’s response. It was welcome to receive clarification that the commissioner will be able to investigate such matters.

As I noted in Committee, the duty to have regard to the principles of the covenant was established in statute by the Armed Forces Act 2021. That was a significant step forward and we have seen much progress since then. I also note the Government’s intention to embed the covenant fully into law, which is indeed a welcome step. Again, I think it is already a given that the commissioner should have due regard to the covenant, and the comments from the Minister have given me the certainty that they will indeed do so.

[Lord Coaker (Lab)]

My Lords, I thank the noble Baroness for moving her amendment and the noble Earl, Lord Minto, for the comments that he has made. I also thank the noble Baroness for bringing the important topic of the Armed Forces covenant to our attention and for the valuable engagement that we have had ahead of this debate.

As we discussed in Committee, and as the noble Earl, Lord Minto, pointed out, this amendment would place a requirement on the commissioner to have due regard to the Armed Forces covenant principles as part of their general functions. It would also require them to monitor and report on compliance with the covenant in all areas of their responsibilities. I will say again for the record that this Government are fully supportive of the Armed Forces covenant. The covenant recognises the unique obligations and sacrifices made by those who serve in the Armed Forces, whether regular or reserve; those who have served in the past; and their families, including the bereaved. Our election manifesto included a commitment to place it fully into law, which the noble Earl, Lord Minto, referenced, and which we will do.

However, as noble Lords are aware, and I will stress again, the covenant applies to both serving and former members of the Armed Forces. The Government believe that there is a separate and pressing need to address the welfare matters affecting our serving community, and that is where the Armed Forces commissioner will have the powers to make a real impact. As I have stated before, it will of course be perfectly proper that the commissioner considers covenant issues where they relate to serving members of the Armed Forces and their families—I would imagine that these issues will be within the remit of the commissioner to investigate.

With that, I hope that I have been able to reassure the noble Baroness and others that, as the commissioner will be fully able to investigate covenant issues where they apply to the welfare of serving personnel and their families, it is neither necessary nor appropriate to specify this in the Bill. I therefore hope that the noble Baroness will withdraw her amendment.

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[The Earl of Minto (Con)]

My Lords, the noble Baroness, Lady Bennett of Manor Castle, raises an important point. The welfare of service personnel who are aged under 18 is a matter that all noble Lords wish to guarantee. I personally have fond memories of training junior leaders. They were, despite their age, some of the keenest, most determined and, at times, most fearless individuals, certainly in relation to trying out new skills, that I had the honour of serving with.

I think it right, therefore, that the Government give serious consideration to the treatment of young people recruited into the Armed Forces. They are part of the future of our Armed Forces, and it is in all our interests to provide an environment that allows them both to thrive and to flourish. When we face recruitment and retention issues, as has been discussed already, we cannot have a situation in which young people are deterred from joining up or encouraged to leave prematurely. I would be grateful if the Minister would update the House on efforts His Majesty’s Government are taking to deal with the concerns of young people serving in our Armed Forces.

The amendment from the noble Baroness also mentions the children of service personnel. They are impacted in a unique way by their parents’ service, and this can easily get forgotten or overlooked. They often have to move home when the military requires their family to relocate, which can be to different and disparate parts of the country, or indeed overseas. Moving so frequently is by no means an easy thing to ask of anyone, let alone a child. Leaving friends behind, losing a sense of normality and becoming accustomed to an entirely new way of living would be challenging for even the most adventurous of us. I mentioned in Committee that 62% of those who left the Armed Forces reported family concerns as one of their core reasons for leaving. We must address this issue head-on if we are to deal with the crisis of retention.

In direct response to the amendment from the noble Baroness, which mentions the Children’s Commissioner, I say that there must be clear delineation of responsibility for the welfare of service personnel. The Armed Forces commissioner must be responsible for investigations regarding general service welfare matters from service personnel, regardless of age. The Children’s Commissioner and the Armed Forces commissioner are two very distinct roles, and for good reasons. To conflate the two could risk confusion over responsibility. If a person under 18 has an issue regarding their welfare, as part of their military service, they should go to the Armed Forces commissioner only.

[Lord Coaker (Lab)]

My Lords, I thank everyone for the discussion on this important matter. I thank the noble Baroness, Lady Bennett, for her views on the Bill and I acknowledge her concerns about the protection of young soldiers, which is something we all wish to see, as the noble Lord, Lord Beamish, the noble Earl, Lord Minto, and the noble Baroness, Lady Smith, pointed out.

We anticipate that the commissioner will wish to work closely with several organisations, committees and groups. As the commissioner will be an independent body, it will ultimately be up to them to decide how they choose to exercise their powers, and it will be for both parties to decide how best to work together effectively. It is likely, however, that the commissioner will implement a series of formal and informal working arrangements with various groups, organisations and committees, including the Children’s Commissioners from each nation in the UK. In answer to the noble Earl, Lord Minto, the two roles are distinct but—while respecting the difference between them—it is important that the Children’s Commissioner works, where appropriate, with the Armed Forces commissioner.

I reassure noble Lords that my officials, who are focused on the successful implementation of the commissioner, have already visited AFC Harrogate to understand the unique needs of our young soldiers, and are engaging with other interested groups who are both internal and external to the MoD. I reiterate that the Government are very supportive of the recruitment of young people under 18, while also recognising that it brings with it particular responsibilities which we wish to ensure are properly considered.

I hope this provides the necessary reassurance to the noble Baroness and, with that, I ask her to withdraw her amendment.

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[The Earl of Minto (Con)]

My Lords, I, too, thank the noble Lord, Lord Beamish, for his Amendment 13, which addresses the highly significant matter of the appointment process and the independence of the commissioner.

My noble friend Lord Courtown, in winding for the Official Opposition at Second Reading, raised the differences between the proposed commissioner and the German armed forces commissioner, as we have heard today. One of the main differences is the method of appointment, as the noble Lord, Lord Beamish, rightly raised. The German commissioner is elected by the Bundestag, with nominations coming from the different party groups. That role establishes a significant role for the German Parliament in the appointment process.

The commissioner here shall be appointed by the Secretary of State and not elected by Parliament. The Government have indicated that their successful candidate will appear, I believe, before the Defence Select Committee in the other place. I have two questions. First, how will the Government ensure that the person they appoint remains entirely independent? Secondly, would the Minister be amenable to the commissioner also undergoing pre-appointment scrutiny before the International Relations and Defence Committee of this House too?

On Amendment 14, I look forward to hearing the Minister’s views on financing what we all agree is a most positive initiative.

[Lord Coaker (Lab)]

My Lords, I thank all noble Lords who have participated in this important debate, including my noble friend Lord Stansgate, the noble Baroness, Lady Smith, and the noble Earl, Lord Minto. Their questions will be answered as I go through my remarks. I also thank my noble friend Lord Beamish for his views on the Bill and his engagement on the subject to date. As he knows from the discussions he has had with me and the Minister for the Armed Forces, I understand and fully appreciate his concerns and views about the scrutiny of the commissioner’s appointment and the importance of properly funding the commissioner.

We are confident there will be the right balance of independent scrutiny in place, in line with other, similar public appointments. Parliament will have a clear and important role in the process. The public appointments process and the rigorous pre-appointment scrutiny will be the mechanism to address any concerns that the House of Commons Defence Select Committee may have about a candidate. We will be able fully to take account of the Select Committee’s views before making the recommendation to His Majesty.

Furthermore, as was clarified in Committee, the House of Commons Defence Committee will be involved in the recruitment process and will consider the candidate before their appointment. The Secretary of State will then carefully consider the view of the chair of the Defence Select Committee. I can confirm that we have also discussed this issue with the chair of the House of Commons Defence Committee, Tanmanjeet Singh Dhesi, and the noble Lord, Lord De Mauley, the chair of the International Relations and Defence Committee, and make it clear—in answer to the points made by the noble Earl, Lord Minto, the noble Baroness, Lady Smith, and my noble friend Lord Beamish in his amendment—that, should the IRDC wish to provide a view on the appointment to the HCDC, it would be very welcome to do so.

As with the House of Commons Defence Committee’s opinion, any views provided by the International Relations and Defence Committee will be a matter for consideration by the Secretary of State. However, I hope that the confirmation that the mechanism exists to feed in views from this place, should Parliament wish to do so, will alleviate the concerns expressed by my noble friend Lord Beamish. His amendment has caused us to further consider how the IRDC may be involved. Because the Executive cannot dictate to Parliament, I emphasise that it is if that Select Committee wishes and chooses to do so.

On Amendment 14, I fully agree that it is crucial that the commissioner has the tools, including the financial assistance, they need. The Bill has been designed to ensure that this is the case. I again thank my noble friend Lord Beamish for taking the time to meet with me and the Minister for the Armed Forces to discuss this matter. I can reassure my noble friend Lord Beamish and others that this Government—I would like to clearly state and put this on the record—will commit to providing sufficient funding to the office of the commissioner.

Noble Lords have asked about a future Government; it is difficult to commit future Governments to particular policies, but I would assume and expect that, even if the noble Baroness, Lady Smith, was the Secretary of State for Defence, or the noble Baroness, Lady Goldie, was back in office, all of us, including myself, would ensure that the commissioner’s office was properly funded. I believe that would be the case. The amendment from my noble friend Lord Beamish is particularly important because it forces us to put on record that the funding of the commissioner’s office is crucial and fundamental to the successful delivery of this important reform.

If the commissioner feels that their funding is insufficient to carry out their functions effectively, the Bill has been designed to ensure that they will have the opportunity to raise this in their annual reports. The Secretary of State in the other place and the Minister for Defence here—whoever that is—would find it more than a little uncomfortable to have to defend themselves against the charge that an Armed Forces commissioner, regarded as a crucial reform, believes that they have been insufficiently funded to undertake the requirements legally expected of them.

With that, I thank my noble friend Lord Beamish for Amendments 13 and 14. I hope that I have been able to provide him and other noble Lords with the necessary reassurance. On those grounds, I ask him to withdraw his amendment.

Armed Forces Commissioner Bill

Debate between Earl of Minto and Lord Coaker

Committee stage
Monday 24th March 2025 Grand Committee

[The Earl of Minto (Con)]

My Lords, I too thank my noble friend Lord Harlech for tabling Amendments 21A and 21B, which seek to ensure that the commissioner prioritises the interests of the reserves appropriately. My noble friend has brought some excellent expertise to this issue as a serving reserve officer himself. The importance of the reserves within the overall Armed Forces is undeniable; their critical role is both admired and valued by all.

As the Minister will no doubt tell us, reserves will have recourse to the commissioner because they are subject to service law when in training and on active duty. That said, my noble friend is seeking to make a broader point that the commissioner should consider the interests and experiences of the reserves equally to those of regular personnel. We support him in his desire to ensure that our reserve units are prioritised appropriately.

[Lord Coaker (Lab)]

My Lords, once again I thank the noble Lord, Lord Harlech, for tabling these amendments, which allow us to discuss the issue of reserves. In answer to the noble Baroness, Lady Smith, yes, reserves are covered and are within scope of the Bill when they are subject to service law. I have made that point on a number of occasions, but I say it again so that we are absolutely clear of the fact and have no misunderstanding.

I need to declare an interest as, like the noble Lord, Lord Harlech, my son-in-law is an active reservist. I have to be careful about that because, as noble Lords can imagine, he is not without an opinion about certain things—nor indeed is the rest of the family—so I put that on the record. He was active in Iraq. My noble friend pointed out the service of reservists in these campaigns, and my son-in-law was one of them. We all know people who are, were or will be reserves.

The Bill does not cover cadets, as the noble Baroness pointed out, although they are of course a major policy issue, as well as a major source of pride for us all. We hope that they both develop and expand. I will respond to a few of the points made before I make my formal reply.

Armed Forces Commissioner Bill

Debate between Earl of Minto and Lord Coaker

Committee stage
Wednesday 19th March 2025 Grand Committee

[The Earl of Minto (Con)]

My Lords as always, it is a pleasure to follow the noble Baroness, Lady Smith of Newnham, and I thank her for opening the Committee’s considerations of this Bill on a matter as important as the Armed Forces covenant. She has done a commendable job of reminding noble Lords of the three principles of the covenant; so I will not repeat them. However, I should like briefly to comment on some of the great work that has happened as a result of the covenant.

The Armed Forces Act 2021, which was taken through the House by my noble friend Lady Goldie—who sends her apologies for not being present in this Committee today; she is otherwise detained in the Chamber—imposed new duties on public bodies to have due regard to the Armed Forces covenant. This means that housing organisations, health services, educational establishments and local authorities must all take action to ensure that service personnel are not disadvantaged. This has led to considerable improvements in service welfare.

For example, the Armed Forces community in west Norfolk raised concerns that there was insufficient dental service provision near the local base at RAF Marham. The views of families, supported by research from Healthwatch Norfolk into local health provision and user needs, were fed into the Norfolk health overview and scrutiny committee, ensuring the commissioning process reflected local and regional needs. This was all led and negotiated by the Norfolk Armed Forces covenant board, with partner organisations then collaborating to find a solution to meet those needs. NHS England worked closely with RAF Marham and the Defence Infrastructure Organisation to address the gap by opening the first NHS dental practice based on an MoD site. This is a direct positive consequence of the Armed Forces covenant.

The previous Government took significant steps, as I have mentioned, to incorporate the covenant into law. Given that it is somewhat axiomatic that the commissioner will already have due regard to the principles of the covenant, I should say, therefore, that the amendment does not seem quite necessary. I am glad, however, that the noble Baroness has moved it to highlight the positive impact of the covenant.

[The Minister of State, Ministry of Defence (Lord Coaker) (Lab)]

Perhaps I may start by welcoming everybody to the Committee, and I look forward to the consideration of the Bill. I thank the noble Baroness, Lady Smith, for the way in which she introduced the amendment, and in particular the points she made about the general approval that everyone has with respect to the main thrust of the Bill. But of course, that does not negate the opportunity and chance for us to discuss how we may test what the Government are thinking and, where appropriate, suggest improvements.

I shall reflect widely on the various points that are made and my intention is that, between Committee and Report, we will have meetings between ourselves so that we can discuss how we might take all this forward. I say that as a general view as to what my intention is in order to make progress on the Bill, so that everyone will feel as though the contributions they have made have helped. I cannot promise the answers will necessarily be those that everybody would want, but certainly it is my intention, following Committee, to work with people to look at the various discussions that have taken place.

I apologise for the fact that the draft regulations dealing with the definition of what we mean with respect to a family have been made available online only an hour or two ago. Certainly, we gave them out as people came into the Room. There is, I am afraid, nothing I can add other than to say it was an administrative oversight, and I apologise profusely to everyone for that. I also know how irritating it is, having sat where the noble Earl, Lord Minto, is, to have to wait for regulations that do not appear. I can only apologise to the Committee for that.

It may have been the first time that the noble Baroness, Lady Smith, introduced an amendment, but nobody would have known. It is a very important amendment. I thank noble Lords and Baronesses here today for turning their expertise to the scrutiny of the Bill and for offering their board support to its principle and purpose. The ongoing welfare of our serving personnel and their families must remain a priority for this Government and the commissioner. The amendments we are considering today will do much to keep their welfare at the forefront of our minds in both Houses of Parliament.

I declare an interest, as my son-in-law is an active member of the Reserve Forces.

Amendment 1 is on the important issue of the Armed Forces covenant. As the noble Baroness said, its effect would be to place a requirement on the commissioner to have due regard to the Armed Forces covenant principles as part of their general functions. It would also require them to monitor and report on compliance with the covenant in all areas of their responsibilities. As I am sure noble Lords know—and as the noble Earl, Lord Minto, pointed out—the Armed Forces covenant recognises the unique obligations and sacrifices made by those who serve in the Armed Forces, whether regular or reserve, and those who have served in the past and their families, including the bereaved. This Government, as the last Government were, are fully supportive of the Armed Forces covenant. Indeed, our manifesto included a commitment to place the covenant fully into law with an ambition to include that in the next Armed Forces Act.

An important aspect of the covenant is that it applies to the entirety of the Armed Forces community, which encompasses both serving and former members of the Armed Forces. As the noble Baroness knows, the Armed Forces commissioner is very focused on the serving community and their families. It will, of course, be perfectly proper for the commissioner to consider covenant issues where they relate to serving members of the Armed Forces and their families, and I would imagine that those issues will be very much at the heart of the “general service welfare” matters that are within the remit of the commissioner to investigate. However, I strongly believe that there is a separate and pressing need to address the issues of our serving community, and it is in that role where the Armed Forces commissioner will have the powers to make the real impact that we all want.

I hope that I have been able to reassure the noble Baroness that the commissioner will be fully able to investigate covenant issues where they apply to the welfare of serving personnel and their families. Therefore, it is not necessary to specify this in the Bill, but I do not, in any way, decry the importance of the Armed Forces covenant, which every member of this Committee supports. We aim to extend and develop that in the Armed Forces Act that is coming in the not-too-distant future. With that, I ask the noble Baroness to withdraw her amendment, but I thank her for the thrust of the point that it made.

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[The Earl of Minto (Con)]

My Lords, although I appreciate the intent of the noble Baroness, Lady Smith, we believe that this Bill should retain clarity and focus.

It is important that the commissioner is responsible for those who are subject to service law. That is the language used in the Bill and the term defined by Section 367 of the Armed Forces Act 2006. As per that that section, those who are subject to service law include every member of the regular forces at all times; every member of the Reserve Forces while they are undertaking any training or duties relating to their reserve duties, are on permanent service on call-out, are in home defence service on call-out or are serving on the permanent staff of a reserve force.

As per chapter 18, Terms and Conditions of Enlistment and Service, recruits become subject to service law once they have sworn the oath of allegiance to His Majesty the King. I swore mine 53 years ago; that is a slightly awful thing to say. They would, therefore, already have access to the commissioner. The issue arises when we try to include all those going through the recruitment process, as we have just discussed. They are still civilians, and many may not complete the process of joining up. Therefore, they would not be likely to experience general service welfare issues in the same way that fully attested service personnel may do.

In Committee in the other place, the Minister for the Armed Forces pointed out that there can be up to 150,000 individuals going through the recruitment process at any one time. If the commissioner’s remit were to be expanded in this manner, their case load would, in essence, double. This seems like rather an onerous imposition that could hinder the commissioner’s ability to serve service personnel as the Government intend.

On Amendment 10—I very much thank the Minister for the draft regulations—the only thing I would like to say is that I believe that there is already a precedent definition in legislation. The Armed Forces (Covenant) Regulations 2022 define relevant family members for the purposes of Section 343B of the Armed Forces Act 2006. The Government already have a list that defines family members, and it is fairly comprehensive. This begs the question: what differences will there be between that definition and this new definition? Also, since we have just received this latest definition, I ask the Minister: could we perhaps consider it and revert at a later stage?

[Lord Coaker (Lab)]

My Lords, I thank the noble Baroness, Lady Smith. Although I do not agree with her on Amendment 2, let me just say that I think the fact that she spoke to both that amendment and Amendment 10 has provoked a very interesting and important debate. I will deal with some of the issues that she raised when I make the formal government response to it.

First, I want to respond more widely and openly to the various questions that have been raised. I very much agree with the point made by the noble and gallant Lord, Lord Stirrup, and the noble Lord, Lord Lancaster. The Government are looking at ways to improve the recruitment process before the point of attestation through a review of recruitment and how it takes place, in order to try to improve the whole process, but that is separate to the whole point of the commissioner. None the less, the noble Baroness made an important point about how we could improve that experience for those who are applying to join our Armed Forces.

The noble Baroness spoke about kinship, and I will make some remarks about that in my formal remarks. Our belief is that the draft regulations she has received— I emphasise that they are a draft—are intended to be broadly drawn with respect to that. We have noted the comment the Delegated Legislation Committee made on how these draft regulations should be agreed using the affirmative process, rather than the negative process as is currently in the Bill. I say to the noble Earl, Lord Minto, and others, that we will come back and look at that on Report to reflect the views of the committee.

Our intention in the draft regulations is to ensure that anyone who is closely connected to a serviceperson and feels the impact of service life should be covered by the commissioner’s remit. We recognise that this could be a wide-ranging and diverse set of people. Before I forget, I will say to my noble friend Lord Stansgate that engaged people are covered by the commissioner.

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[The Earl of Minto (Con)]

My Lords, the very interesting amendments under consideration in this group all seek to push the Government on the terms of appointment of the commissioner. This is always one of the seminal issues when we debate the establishment of a new position in law. Amendment 3 appears—the noble Lord, Lord Beamish, can elaborate on this in his closing remarks—to interfere with the principle of exclusive cognisance. His amendment insinuates that Parliament must hold a confirmatory vote on the Secretary of State’s preferred candidate for commissioner. As other noble Lords have mentioned, it would be very interesting to hear what the Minister has to say in response.

Amendment 4, in the name of the noble Baroness, Lady Smith, creates a mechanism for appointment similar, as has been mentioned, to the committee system in the United States. Their congressional committees are required to hold confirmatory hearings and votes, and they have the power to decline a president their appointments. I am not certain how such a system could be translated into our particular constitutional model, but I am again quite intrigued to find out.

Finally, on Amendment 5, I too think there is merit in this proposal, so I agree with the noble Lord, Lord Beamish. If the particular commissioner is successful and executes their duties effectively, why should they not be able to hold that appointment for two full terms of five years? You would get a proper continuation as a result of a slightly extended period. I do not quite understand the two-year extension; it seems neither one thing nor the other. I look forward to the Minister’s response.

[Lord Coaker (Lab)]

My Lords, I again thank my noble friend Lord Beamish for bringing his experience and knowledge of many years. As he says, we have known each other for a long time, and I appreciate the contributions that he has made in the past and will make in the future—on not only Armed Forces and defence matters but many other things.

All the points made by my noble friends Lord Beamish and Lord Stansgate, the noble Lords, Lord Russell, Lord Lancaster and Lord Wrottesley, the noble Baroness, Lady Smith, the noble Earl, Lord Minto, and the noble and gallant Lord, Lord Craig, were really interesting. Before I come to my formal remarks, as I said at the outset, I can say that we will meet between Committee and Report to consider the involvement of Parliament. At the moment, the House of Commons Defence Select Committee is how we see the involvement of Parliament, and I can tell my noble friend—this answers other noble Lords’ questions—that we will discuss the length of time and whether the Government still consider that the most appropriate period.

I say that without any promise that we will therefore change or alter it. I have heard what noble Lords have said and the points and contributions they have made. It is certainly my intention to meet to discuss their points to see whether we may move or if the Government are not persuaded. We will meet to discuss all of that.

I will just reply to some different points before I come to the formal remarks. My noble friend Lord Beamish will be happy that his amendments have at least caused the Government to say that we will have to reflect on the points he has made. He knows me well enough to know that I do not say that as a way of assuaging his views but as a genuine engagement that we can have to see whether we can take forward his points. I say that to the noble Baroness, Lady Smith, and the noble Lord, Lord Russell, with respect to the support they have given to those amendments and the various comments noble Lords have made.

I take the point that the German system is not exactly the same. As my noble friend pointed out, in the Secretary of State’s speech he spoke about our system being inspired by what happened in Germany. That is the point. It is not an exact replica but it has been inspired by it. In discussions with the German commissioner we have taken that forward.

As the noble Lord, Lord Russell, helpfully pointed out, the German commissioner sits in the Bundestag. The German model allows for their commissioner to be there and join in and that is not the role we will have for the commissioner, so again, it is different in that sense. There are differences, but the fundamental question goes back to the point the noble Lord, Lord Russell, made and that the noble and gallant Lord, Lord Stirrup, made earlier; we are setting up the commissioner to answer the “So what?” question.

In answer to the question on how the military feel about it, they are very supportive of this commissioner being set up, so that is really important. The noble Lord, Lord Russell, is right to challenge us; this is a difficult balance between independence and accountability. We are attempting to say that the commissioner has to be independent to command the respect of all of us and to do the job we need them to do: to act without fear or favour to deal with some of the very real issues we face. But we want them to be accountable as well.

My noble friend Lord Beamish has said that accountability should be done through confirmatory votes of both Houses of Parliament. The Government’s view, as it stands, is that that accountability should be done through the Defence Select Committee, with the pre-appointment scrutiny process there and its ability, once the appointment is made, to consider that further and report to the Secretary of State on its view of the suitability of that particular candidate. The noble Baroness, Lady Smith, has added another possible dimension to it. All of us are wrestling with independence versus accountability. That is a very real dilemma for all of us, but it is a balance we seek to achieve.

I will say a little about the Armed Forces commissioner and the process as we see it. I want to answer my noble friend’s question as it shows a difficulty. My noble friend asked why the appointment is on the recommendation of the Secretary of State and not a parliamentary appointment. He noted the fact that it was pointed out at Second Reading that the Parliamentary and Health Service Ombudsman was a precedent for the sort of process he wants. However, there are several examples of similar roles where appointments are made on the recommendation of Ministers and not subject to the same process as the Parliamentary and Health Service Ombudsman.

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[The Earl of Minto (Con)]

My Lords, I too will be very brief with these amendments.

I suggest that it is difficult to see how one should quantify what constitutes adequate assistance for the commissioner. Of course, the commissioner must have the necessary resources to execute their duties efficiently. The Explanatory Notes estimate that, as my noble friend Lord Lancaster pointed out, the cost of this new office will be between £4.5 million and £5.5 million; that is considerably larger than the current cost of the ombudsman, which is £1.8 million. The funding, therefore, has been expanded. Is it sufficient?

Furthermore, as is the usual course, the Secretary of State will have to ensure that the commissioner receives the correct level of support. I am minded to conclude that these amendments may not be entirely necessary.

[Lord Coaker (Lab)]

I thank the noble Earl, Lord Minto, for his remarks and the points that he made. I also thank other noble Lords.

Again, let me say something about the general point around the reason for the Armed Forces commissioner; this was alluded to by the noble Baroness, Lady Newlove, and referred to by my noble friend Lord Beamish. I have made my point. The noble Baroness and my noble friend were at Second Reading, so they know that I made the point about the statutory footing for the post then.

This is my personal view, as well as a ministerial view: it is of huge significance when the British Parliament, because of its concerns about some issues happening in the Armed Forces, establishes a statutory person or body—I forget the legal term—to undertake investigations into issues of general welfare concerns that can be raised by a wide cohort of regulars, reserves and their families. It has been given a statutory footing, rather than being a single response to a particular horrific event, although of course it is important to have an inquiry if something happens. To have a standing statutory office responsible for dealing with some of the issues that we have talked about and are all appalled about, with a statutory legislative basis, is significant.

I can take off the ministerial hat and become a citizen—and it means something for the vast majority of the people in this country to say that the legislative will of Parliament is that a statutory body has been set up to do something. The noble Lord, Lord Russell, raised the issue of culture. The statutory body or office of the Armed Forces commissioner will make a significant difference to individual investigations. As well intentioned and important as they are, although they can shine a light, they cannot get to an overall pattern of dealing with issues that arise and are brought to their concern. My noble friend raised the issue of it being statutory. I realise and agree that, on its own, that does not matter and will not make a difference, but it is of huge significance as a starting point for setting up the office.

I will deal with the particular points as I go through, and I want to take up a point that the noble Baroness, Lady Newlove, made. Part of what we have in the Bill is the ability to have transition arrangements, moving from the end of the term of the Service Complaints Ombudsman at the end of 2025 to the new arrangements —the transition to the office that we want to set up in early 2026 to try to overcome any particular problems that occur. I take her point about trying to ensure that we get that office up and running as quickly as possible, notwithstanding the fact that, when you set something up new, there are inevitably things that come up. But I thank her for raising that point. I shall come to the point on resources when I have made some general points, and come back to other points that noble Lords have made.

Amendments 6 and 7 relate to the financial resources available to the commissioner. Both amendments aim to ensure that the commissioner has sufficient funding. The noble Baroness’s amendment would also ensure that they have practical assistance now and in the future to undertake their functions.

I reassure my noble friend Lord Beamish and the noble Baroness that I fully support and share their intentions. It is crucial that the commissioner has the tools that they need, and the Bill has been designed to ensure that that is the case. Therefore, the intent behind this amendment is critical and acutely observed.

I want to point something out to noble Lords and try to answer the points that they are raising. The Secretary of State has an obligation in Clause 4, under new Section 340IA(7), to

“co-operate with the Commissioner so far as is reasonable”.

It says that the Secretary of State

“must, in connection with an investigation … give the Commissioner such reasonable assistance as the Commissioner requests”.

That ensures that they have the necessary assistance from the Secretary of State to conduct their work effectively. In that instance, in dealing with investigations, the word “must” is included.

--- Later in debate ---

[Lord Coaker (Lab)]

The contribution the noble Lord has just made shows the advantage of his experience and knowledge. We will certainly consider that, and I will write to him and circulate the letter to members of the Committee, because some of it is quite technical and legal, and subject to all sorts of various laws under different pieces of legislation. I shall ask my officials to reflect on the point. I could hazard an answer, but I will get a proper, official answer, send it to the noble Lord, copy it to all members of the Committee and place a copy in the Library. I hope that that is satisfactory to the noble Lord, because the points that he makes are important, and I do not want inadvertently to mislead or misinform the Committee.

I turn briefly to some of the other points related to the points the noble Lord has made. I note that the significant Amendment 8, raising the Continuity of Education Allowance, special educational needs and service accommodation, refers to former service personnel. As the noble Lord will appreciate, the commissioner’s scope is deliberately tightly drawn to focus on serving personnel and their families, rather than former service personnel. As civilians, veterans already have full access to a range of mechanisms for support and redress and to enable their voices to be heard. Having said that, I have been in the noble Lord’s position, and I know that people sometimes say, “That amendment is not tight enough, it included something that is not within scope”, but that does not alter the fact that the intention of the amendment and of noble Lords, is to draw attention to issues of real concern with respect to serving personnel. As such, of course there are issues around special needs, which the Armed Forces covenant seeks to ensure are addressed properly. When service personnel go abroad, they take with them a form by which they can try to ensure that they are given support.

Special needs is a very real problem. I have to say as an aside that I think that special needs is an issue for all of us across society, from what I understand from friends, family and colleagues. Notwithstanding that, there are obviously particular circumstances with respect to serving personnel, and that needs to be reflected. Certainly, the Armed Forces covenant seeks to address that by saying that nobody should be disadvantaged through their service, and special needs is an example of that.

On the continuity of education allowance, I will not read out all the various statements in my brief. We have had a debate about it in Parliament, and I have answered questions. The noble Earl will have seen the rise in the continuity of education allowance to 90% of that cost, which—I tell him gently—was the policy of the previous Government, too. We cover that 90%. The impact on the behaviour of service personnel in their choice of education has been very limited in terms of the number of people who have changed their decisions on the basis of that change in the law. Whatever the rights and wrongs of it, very few people have changed their actions. Notwithstanding that, the noble Earl was right to raise it. We reflected on it as part of the challenge that the Government have and decided that an increase in the continuity of education allowance was important, whatever the rights and wrongs of the overall general government policy, which, obviously, I support.

Turning to Amendment 9, I acknowledge the concerns of the noble Baroness about pensions and death-in-service benefits, which impact both current and ex-service personnel, as well as their dependants. The amendment seeks to specify pensions, and wider associated benefits for dependants, as a particular area for the commissioner to focus on. As I said, it also seeks to allow former members to raise issues about pensions to the commissioner. Pensions and death-in-service benefits for dependants are of course extremely important and are not precluded from the scope of the commissioner. In the case of pensions, there is already a set procedure that allows current service personnel and veterans to raise complaints: the internal disputes resolution procedure. These cases are assessed by discretionary decision-makers within the Defence Business Services authority. If unhappy, they—like the vast majority of us—are able to appeal these decisions to the Pensions Ombudsman.

I reassure the noble Baroness that I am sympathetic to what Amendments 11 and 12 seek to achieve. The Armed Forces and their families represent a wide-ranging and diverse community, and it is important to acknowledge the experiences of minority groups and service personnel aged under 18 within the Armed Forces. I know that the noble Baroness, Lady Bennett, quite rightly, continually raises this issue. Her opinion on the policies for recruiting under-18s to the Armed Forces differs from mine, but let me make it clear, as she and every member of the Committee has, and as we discussed earlier, that any abuse of anybody is unacceptable and needs to be dealt with quickly and forcefully. It is important to address and tackle any matters when they arise that are unique to one or more of these groups. It is vital that any member of the Armed Forces can access the commissioner and trust that he or she will consider their issues, regardless of who they are, where they serve and what they do.

I draw the Committee’s attention, as the noble Baroness, Lady Carberry, helpfully did, to paragraph 6 of Schedule 1, which adds the commissioner to the list of public bodies captured by the public sector equality duty. The commissioner will already have a duty under the Equality Act 2010, which will cover all the characteristics listed in the amendment.

Finally, I assure the Committee that the commissioner’s reporting functions will enable the commissioner to report on any matters that have been raised and to make recommendations in relation to any issues related to minority groups—or, indeed, any of the other issues raised by the noble Earl, Lord Minto, and others. Let me restate that the commissioner will be able to investigate any matters that may materially impact the welfare of those who are subject to service law and their families. It is not necessary to specify this level of detail on any of these matters in legislation.

In fact, creating a list of individual matters for the commissioner’s remit could suggest that these topics are more relevant or important than others and may indirectly narrow the scope of what they consider, which would not necessarily be a desirable outcome. It could also be seen as contrary to upholding the commissioner’s independence. In other words, as soon as one starts to generate lists, one always ends up with an (f) or (g) that says, “and anything else that may be of significance”.

I hope that I have provided the noble Earl, Lord Minto, with the necessary reassurance. I thank all noble Lords and noble Baronesses for their contributions to this debate; I look forward to continuing our debate and discussion on further amendments on Monday.

[The Earl of Minto (Con)]

My Lords, I also thank all noble Lords and noble Baronesses for another interesting debate.

I will comment briefly on Amendments 11 and 12 from the noble Baronesses, Lady Smith and Lady Bennett. For the reasons that we have discussed, we do not believe that it is necessary to provide a list of groups that should receive special treatment from the commissioner. As we covered earlier, the Bill applies to all those who are subject to service law and their families. This includes all members of the regular forces and the Reserve Forces, not just a particular group of service members. This list is not exhaustive, obviously, but that causes an issue in itself.

I thank the Minister for his comments. I have no doubt that he understands the issues raised. I am sure that he has received representations from those affected, and I know he takes a genuine interest in the welfare of all service personnel. Having said that, these are issues that the commissioner really should investigate; I hope that this will be the case once the office is established. For now, I beg leave to withdraw my amendment.