Armed Forces Bill (Third sitting)

Al Carns Excerpts

Select Committee stage
Thursday 26th March 2026 Public Bill Committees

[David Reed (Exmouth and Exeter East) (Con)]

It is a pleasure to serve under your chairship, Mr Efford. I wish to add some points to bolster the argument of my right hon. Friend the Member for Rayleigh and Wickford.

We were promised the DIP before Christmas, but right hon. and hon. Members do not need me to tell them that it is now the end of March and we still do not have it. It is all well and good talking about a 25% reduction in delivery costs and about improved military housing, but until those promises are reflected in a clear, costed defence investment plan, they will remain words, not guarantees.

That is precisely why my right hon. Friend’s amendment 17 is so important. It states that if the Government are serious about defence housing, the Defence Housing Service’s budget must be set out in the DIP. It would tie the rhetoric on forces housing, new helicopters and new military hardware to an actual budget line. If Ministers truly intend to deliver what they have promised, they should have no difficulty in writing it into a plan.

Let us be clear with our service personnel and their families. We welcome investment when it is real, but we will not pretend that an uncosted statement is the same as a funded commitment. Until the Government publish the defence investment plan and the DHS budget is there in black and white, this House is being asked to take it on trust. That is not good enough.

[The Minister for the Armed Forces (Al Carns)]

It is a pleasure to speak under your chairmanship, Mr Efford. I put on record my thanks to the DIO team, Natalie Elphicke Ross and the collective armed forces for helping us to design this well-thought-through and very effective defence housing strategy. I thank the right hon. Member for Rayleigh and Wickford for his amendment concerning the Defence Housing Service budget, and for his interest, as always, in the defence investment plan.

The defence housing strategy will be backed by £9 billion of funding to deliver a decade of renewal for defence family housing. Previously, military housing was subject to insufficient, stop-start funding that did not deliver value for money for the taxpayer or the improvements that service families deserve. I have lived in service family accommodation, as I am sure other hon. Members have. We have seen the oscillating budgets. We have seen, in some cases, the lack of value for money.

When this Government came in, one thing we said we would absolutely do was ensure that people can have safe, secure, dry homes to live in if their loved ones go overseas to protect the freedoms we enjoy. That is why we set out the defence housing strategy. We liaised with a plethora of individuals, from the families federations to housing associations, to ensure that we came up with a well-thought-through plan that is funded and looks at the medium and long term as well as the short term.

The Defence Housing Service budget will be clearly set out. It will account for its spending to Parliament via an annual report, so there will be accountability. As the Committee heard during the evidence sessions, there is nothing in the defence investment plan process that is stopping the Department getting work under way now. The Defence Housing Service can be up and running from April 2027, and the work of renewing the estate can continue.

[David Reed]

We have heard these arguments in Committee, we have had experts come in and we have visited defence housing. We need to get to the nub of this. The wording being used today is that there will be £9 billion in the budget and that we know it will be in the defence investment plan. As it is reported that the defence investment plan is sat on the Prime Minister’s desk at the moment, and I am sure the Minister will have seen the defence investment plan, can he confirm today that he has seen that £9 billion in the defence investment plan, and that it will be signed off with that £9 billion for housing?

[Al Carns]

I can confirm that £9 billion will be secured to ensure that we get the defence housing strategy and the Defence Housing Service up and running. We have said that in Parliament previously, and I reiterate it here.

It is worth noting the need for a Defence Housing Service and the professionalisation of our service as a whole, because some of the stats and facts from the time we came into Government were, I can only say, nothing short of shocking. In November 2023, there was a high of 4,200 complaints. Where is it in 2026? It is 400. We have already made improvements, we are heading in the right direction and we will continue to deliver in due course. We are getting on with the job of making improvements now for service families and preparing for the launch of the new Defence Housing Service so that we can go even further and faster to fix defence homes.

Setting a requirement in legislation, in the way that the right hon. Member for Rayleigh and Wickford suggests, is not only unnecessary but risks frustrating the vital work of the Defence Housing Service. His amendment 17, which specifies that the Defence Housing Service must operate within a budget set out in the DIP, risks constraining the service in the scenario in which investment is set in the defence investment plan but then has to rise thereafter. That could happen, for example, in the case of additional increases in personnel, or a change in the international situation that could require additional housing. Any additional spending would risk being in breach of the requirement unless and until a new defence investment plan is published. That would undoubtedly constrain the service’s ability to respond swiftly and appropriately to changing requirements. I hope that provides the necessary reassurance to the right hon. Member.

[Sarah Bool (South Northamptonshire) (Con)]

It is a pleasure to serve under your chairmanship, Mr Efford. I understand what the Minister says—that there may be extenuating circumstances where there may need to be flex within the budget—but the most important thing that we are trying to establish is that this money is absolutely guaranteed.

At the Defence statement the other day, I asked what “flat out” meant when the Secretary of State was talking about finalising the defence investment plan. I was told it meant that they were “working flat out”, so the Minister will forgive me for seeking further reassurances. I would also be very interested to know whether he has indeed seen the defence investment plan, with this budget line item in it.

[Al Carns]

I can say that we are working flat out on the absolute shambles we were left by the Conservative party. I can also say, as the Defence Secretary said in the House, that £9 billion will be allocated to the Defence Housing Service. The study has been completed. It is a very effective strategy. It has taken into account a lot of the other details that were excluded in the past. It has pulled them all together and has put in place a comprehensive strategy that will be funded.

[Mr Francois]

I am not saying that in 14 years we got everything right, but we never ended up in a situation in which we could not put a destroyer to sea, to a NATO exercise, with three months’ warning. It was never that bad.

I was told at a dinner last night that the Secretary of State or other Ministers have not allowed this Minister to see the defence investment plan. Surely that cannot be right: he must have seen it. For the avoidance of doubt, could he just pop up and tell us that of course he has seen it, and he has seen the detail of it?

[Al Carns]

My role, when it comes to defence investment, is primarily linked to uncrewed systems. I have been pushing as hard as I can to ensure that there is significant resource and consideration of not just the delivery of capability, but training, tactics and procedures, and the inculcation of drones and autonomous systems into our armed forces.

[Mr Francois]

So you haven’t seen it.

[Al Carns]

I hope that I have provided the necessary reassurance to the right hon. Member. On those grounds, I ask him to withdraw his amendment.

[Mr Francois]

We all know how this works. That was what, in “All the President’s Men”, they would have called a non-denial denial. I am afraid we have had no satisfaction, so we will press amendment 17 to a vote.

Question put, That the amendment be made.

--- Later in debate ---

[Al Carns]

I believe that amendment 14, moved by the right hon. Member for Rayleigh and Wickford, is unnecessary. It is clear that the Defence Housing Service will have a service ethos at its heart, and we are already way ahead on that. The Committee heard from representatives of the families federations during the evidence sessions, in which Cat Calder from the Army Families Federation said that during the course of the defence housing strategy review, it was

“very much engaged with, listened to and questioned”,

and its views “taken into consideration.” That will continue as the defence housing strategy turns to the Defence Housing Service and the implementation of changes across the entire estate.

I welcome the right hon. Member’s comments about the FDIS statistical change. When I first took over this job, I visited multiple defence housing providers and, indeed, the houses themselves. I line-by-lined the cost of everything from a plunger to the taps to make sure we were extracting the best value for money from those contractual services. The trend was already moving, and I believe it has moved in the right direction. There is always work to do, but we have our foot on that pressure point and will ensure we extract best value for money and best time when it comes to the delivery of services for our families in service housing.

Importantly, throughout the development of the defence housing strategy, families have been at the very heart of the discussion to ensure that their views are considered, along with the differences between the way of life and operational priorities of the Army, RAF and Navy. That is why we have set up a new customer service committee with representatives from all three forces’ families as members. The Defence Housing Service will have a service family representative on its independent board.

We are already making rapid improvements after many years of ebbing and flowing standards and service in military accommodation, and we have delivered our consumer charter commitments to improve our families’ experiences. That includes transforming 1,000 of the worst homes by Christmas with new kitchens, bathrooms and floors, which the Committee will know from its visits were previously in a shoddy state. Some are still in that space, but we are moving rapidly to change it.

We are modernising outdated policies, giving families greater freedom to improve their homes, and streamlining processes for those who wish to run businesses from home or simply have a pet. We are also delivering named housing officers, as it is critical to have a central point of contact to make complaints to, or to demand better services, as well as delivering photos, floor plans and a new online repair service.

[Mr Francois]

This might seem like a point of detail, but it is important. I will come on to “Stick or Twist?” later, but one thing that came out very clearly is that many families wanted what used to be known in old money as “patch managers”, often a retired senior NCO who lived nearby, who knew the patch and all the quarters intimately. He knew that No. 23 had always had a slightly wonky boiler or whatever. He was someone that all the families knew, and who the wives could get hold of if their spouse was away on deployment. We have named housing officers, but at what level do they operate? Do we have one per patch, per garrison or per region? How close to ground level are these named housing officers?

[Al Carns]

I will get back to the right hon. Member with the exact numbers of housing officers and how much patch they will oversee and manage, depending on the different service contracts. As he will be aware, the Army, Navy and Air Force approach it in different ways. Some have retired officers in a Reserve billet, looking after everything from welfare to housing. Others have specific housing officers, and some have none at all. There is a requirement to standardise that, hence the reason for housing officers coming in. I believe that housing officers work most effectively when they have either served or have an understanding of service. We are seeking to replace the single point of contact for families to go to should they have a problem with their housing or the facilities provided by the contractual arrangements.

On the promises that were made to families, it is worth noting that work is fully under way to deliver them under the consumer charter. We are also seeing results. Satisfaction in defence homes is rising: rates are now at 51%, their highest level since 2021. I would argue that that has resulted in an increase in both retention and recruitment, pulling more people into the military. We have seen a 13% increase in recruitment and an 8% reduction in outflow.

I have always been really honest that, in the short term, we are getting after this with 1,000 homes and the consumer charter, but that we will really see the benefits over the medium to longer term, with a complete rejuvenation of the estate. Satisfaction with repairs has increased steadily, from a low of 23% in January 2023 to 66% in 2025. In February 2026, we received 400 complaints, compared with a high of 4,200 complaints in November 2023, so we are making progress. We want to get that 400 figure down even further and will continue to endeavour to do so.

Amendments 3 and 4 propose to specify further in legislation the standards that accommodation should meet. I thank the hon. Member for Tunbridge Wells for his service and for his attention to ensuring that service family accommodation meets the standards that families rightly expect. The conduct and the candour of this debate have shown that we all want the same thing.

As part of the generational renewal set out in the defence housing strategy, we are already making rapid improvements, including through the new consumer charter for service family accommodation, which the Secretary of State announced last year, with the first set of those commitments delivered way ahead of Christmas. Through the wider plan set out under the defence housing strategy, we will be delivering improvements to nine in 10 defence family homes over a decade of renewal, delivering on the opportunity presented by the buy-back of the estate in January 2025.

In relation to the amendment tabled by the hon. Member for Tunbridge Wells, the MOD is already committed to meeting and publishing compliance with the standard. The defence housing strategy specifically addresses the issue and sets out that the housing standard should keep pace not only with the decent homes standard, but with wider housing safety requirements such as Awaab’s law.

[Mike Martin]

Will the MOD publish a timeline for achieving the targets?

[Al Carns]

If the hon. Member will let me, I will come back to him with a specific timeline for the process.

In reply to an earlier question, there are 122 housing officers in total, and the figure will increase over time. Each housing officer is responsible for 300 to 400 homes. Although the housing officer will be a specific individual in place, a lot of armed forces also have other welfare officers and facilities. However, this is a step in the right direction to providing a single point of contact.

[Mr Francois]

I am grateful for that detail. I agree that it is a step in the right direction, so it would be churlish not to welcome it. To give credit where it is due, when my hon. Friend the Member for South Suffolk was a Minister in the Department, he invested several hundred million pounds in what was known as the mould action plan. Its aim was to get after the problem not just with temporary fixes, but with long-term work on properties with a persistent mould problem. As I have tried to be fair to the Government this morning, I hope the Minister will acknowledge that my hon. Friend put quite a lot of effort into that issue in defence housing. There has subsequently been some success, has there not?

[Al Carns]

I agree. The mould action plan got after a large chunk of the problem. I know there was work that went on previously, including “Stick or Twist?” and other reviews, but now that we have got rid of the Annington deal and got control of our estate, we can take a far more strategic outlook. That is what the defence housing strategy is all about, so that we ensure that we get best value for money over a longer period and do not have to spend huge amounts in a short time, which unfortunately can result in poor contractual agreements and not the best value for money.

The mechanism for embedding the standards, as well as Awaab’s law, including any changes over time, has already been included in the Bill. It has been deliberately drafted in that way to provide a mechanism for capturing future changes to policy without requiring legislative change. As a case in point, the hon. Member for Tunbridge Wells specified the 2006 decent homes standard in amendment 3, but he will be aware that the Ministry of Housing, Communities and Local Government is already in the process of introducing a revised decent homes standard. The amendment, although absolutely well intentioned, is too specific. It would set in stone a policy position that would rapidly become redundant. Further mechanisms will ensure that we keep in line with the decent homes standard, such as providing a report into the system on, I think, a yearly basis—I will clarify that point in due course.

I reassure the hon. Member that in practice the Ministry of Defence already uses the 2006 decent homes standard as a benchmark for service family accommodation and will work to meet the new decent homes standard as it is introduced. The same applies to Awaab’s law, which is being taken forward through the consumer charter. As the generational renewal set out in the defence housing strategy progresses, we will aim not just to meet minimum standards, but to provide homes that any of us would be proud to live in.

The scale of the problem should not be underestimated. The defence housing estate was built at any time from the 1960s all the way up to the early 2000s, with single-skin walls and a plethora of issues. It will take a medium to long-term strategy to deliver real, meaningful change over time. The messaging to the armed forces and their families is that we are on this: we have assured the money and we will head in the right direction to improve defence housing over the medium to longer term.

I hope that the points that I have set out provide the necessary reassurance as to why amendments 14, 3 and 4 are not necessary and can be withdrawn.

[Mr Francois]

I appreciate everything that the Minister has said. None the less, we feel strongly about amendment 14, so we will press it to a vote.

Question put, That the amendment be made.

--- Later in debate ---

[Mike Martin]

I would like to make some brief comments in support of amendment 15. We should reflect on how the divorce rate is much higher for service personnel because of the vagaries of service life and the stress under which it can put relationships. A measure like this is the least we can do to mitigate the worst excesses that result from service life. As hon. Members will know, court orders often come with specifications that appropriate surroundings be available for contact visits. By agreeing to this amendment, we would ensure that provision is available to facilitate such orders.

[Al Carns]

I thank the right hon. Member for Rayleigh and Wickford for tabling the amendment. I absolutely recognise the importance of facilitating contact visits between service personnel and their families; there are people here with experience of that.

The reality is that as we have come into government, we have the wrong houses in the wrong place in the wrong amount. That requires a whole restructuring of our defence housing estate to ensure that it matches and moulds itself to varying requirements across the population.

I was a base commander, and we had several welfare houses. There is a joint service publication in MOD policy, JSP 770, that designates service family accommodation as welfare support accommodation. This is a joint process with local military commands and welfare services to provide housing for welfare requirements. It cannot simply be met with the responsibilities that the amendment seeks to set for the Defence Housing Service.

Moreover, there has to be flexibility in the use of welfare support accommodation to ensure that it can respond to local needs and local requirements, including other important welfare uses such as those relating to domestic abuse and safeguarding. It would be far too inflexible for it to be earmarked as accommodation solely for contact visits, as the amendment sets out. That would limit our ability to respond to urgent needs of other kinds.

More generally, the issue that hon. Members have highlighted is only one part of a much bigger issue that the Defence Housing Service is being set up to address, which is that the defence estate is wrongly configured as a result of the legacy of Annington and years of under-investment, with not enough homes in the right places to meet the requirements of service personnel.

The focus of the Defence Housing Service is to improve existing homes and create thousands more, including by delivering widened access to accommodation for modern families. Its progress against that will be set out for Parliament to scrutinise through the annual reporting process. The defence housing strategy team looked at the issue as part of its review. An important conclusion of the review was a recognition of the important role that local welfare-based discretion plays in managing service personnel’s housing needs, which cannot always be planned from the centre.

The reality is that welfare houses provide a capability for a plethora of needs, from supporting individuals who have been subject to abuse all the way through to providing a comforting environment for families who have broken up or separated and need a place to live and thrive with their children. To narrow them down to one use may not meet the local requirement, but I absolutely support the premise and the positivity behind the amendment. Given the clear and comprehensive arrangements that are already in place, I see the amendment as unnecessary.

[Mr Francois]

I appreciate the spirit in which the Minister is replying. I have learned to take his word. Just so he does not think that we have a blanket policy of voting on everything this morning, if he gives me his word that he will take the issue back to the Department and the people setting up the DHS and look very seriously at how we might do a bit better, in return I shall not press the amendment. Can he give me that comfort now?

[Al Carns]

It is absolutely right and proper that we do that. I would like to go a step further: we could probably organise a sit-down with Natalie Elphicke Ross and the team at the Defence Housing Service. It has already been thought through, but they can explain it. If the right hon. Gentleman has any insight into how he would improve it, or indeed any reflections from his own experience of the defence estate, we will take that forward. I therefore ask him to withdraw the amendment.

[Mr Francois]

I will not look a gift horse in the mouth. I thank the Minister for his kind offer, and I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

--- Later in debate ---

[Al Carns]

I shall speak first to amendment 2. I thank the hon. Member for his engagement.

The measures in the Bill build on 18 months of work to stop the rot in defence housing and build for the future. We are buying back 36,000 military family houses from Annington and delivering a new consumer charter. We have already got after the first 1,000 homes, published the defence housing strategy and, importantly, we have launched the new single living accommodation review. That is important because there is a separation.

What the hon. Member is getting at is where, in some cases, we have Defence Housing Service family accommodation that is repurposed for single living accommodation because we have excess housing or a lack of single living accommodation on the base. Therefore, we must include both elements in bits of the Bill, but not all of the Bill, because SLA is subject to a completely separate review.

[Mike Martin]

I know of what the Minister speaks. A four-bedroom house may have four servicepeople living in it as single living accommodation—the defence equivalent of a house in multiple occupation—but does that not speak to the point that SLA and SFA should be treated under the same standards?

[Al Carns]

I fundamentally disagree. The review of single living accommodation will describe the complexity of the problems we have across the entire estate with both the shape and size of our single living accommodation, the requirements of a changing population, and how best to manage them. To combine the two would detract in particular from the defence housing strategy because of the funding mechanisms, ownership and oversight of single living accommodation.

Amendment 2 would have the effect of broadening the Defence Housing Service’s responsibility for the standard of housing to include single living accommodation as well as service family accommodation, which the Government do not believe is appropriate in any shape or form. Single living accommodation operates in a fundamentally different way from service family accommodation, and the two must therefore be separated. SLA is housing provided for individual service personnel living without families, typically on military bases behind the wire, with the primary responsibility sitting with frontline commands and the demand signal set by their operational requirements. Recognising the difference, the defence housing strategy, which sets out the basis for the Defence Housing Service, did not recommend that the Defence Housing Service is responsible for all single living accommodation, but recognised the need for dedicated, focused attention on service families that the new organisation will provide.

We are committed to driving up standards in single living accommodation, just as we are with service family accommodation. A separate, dedicated review of single living accommodation is already under way and should be complete in the summer. The Minister for Veterans and People is leading that, and pushing forward on it hard and fast.

[Mike Martin]

The Minister is being very generous with his time. Could he state precisely the difference between SLA and SFA that means we cannot bring them together?

[Al Carns]

Single living accommodation is often hundreds of rooms—think student accommodation—in barrack blocks behind the wire. Service family accommodation is often on the other side of the wire, out in the local population. Single living accommodation houses individuals rather than families. The whole set-up is completely different—some have cooking facilities and some do not. To balance the two on the same standards would completely skew the system.

I assure the hon. Member that the single living accommodation review is fully under way. It will look into this separately and deliver a strategy that is similar to the defence housing strategy, but it will look specifically at the nuances of single living accommodation. I think that many of the points the hon. Member is getting at will be included in that review and be open to scrutiny.

[Mike Martin]

If I understand the Minister correctly, he is saying that we are going to take different routes but get to the same place. If he could give me assurances that we are going to see the same standards reflected in SFA as SLA, but they are going to be managed through separate processes, I would be happy to withdraw the amendment.

[Al Carns]

The requirements are different for SLA and family accommodation, but we both want the same thing: the best accommodation, whether for a family or a single person living on base, either separated from their family or single. What I can offer the hon. Member is to engage and talk him through the single living accommodation strategy as it builds, so he can ensure his points are included and we either fill the knowledge gap or make the strategy reflect the intent of providing the best accommodation for single individuals outside the family setting.

[Mr Francois]

It may assist the Committee to know that when I looked at this in “Stick or Twist?”, we realised that we were talking about two slightly different propositions, and that some of the challenges in single living accommodation are a bit different from those in SFA. For the record, in “Stick or Twist?” we said we would start with SFA—we were talking about a housing association—and learn lessons from that and then go on to SLA. We realised there is a bit of an air gap between the two, so our work was concentrated on one and then maybe moved on to the other. That is, in some ways, similar to the spirit of what the hon. Member for Tunbridge Wells is saying, if the Minister will accept that.

[Al Carns]

I completely accept that. There are just nuances and differences in the requirements, and that will be reflected in the outcomes of both reviews. Again, I offer that engagement—if the hon. Member for Tunbridge Wells would like to get involved and ensure that his points are made as the strategy is built, he can affect the output as required.

The Government believe that a dedicated focus on the Defence Housing Service and family accommodation is the best way to achieve the step change needed for defence, specifically on family homes. We will continue simultaneously to drive up the standard of single living accommodation, and further detail will be set out in the next steps following the ongoing SLA review. If it is any consolation, I lived in single living accommodation for a large chunk of my life and have seen the good, the bad and the ugly, so I will personally be behind that work to ensure we get the best standards.

New clause 1 is designed to include single living accommodation within section 101 of the Renters’ Rights Act. It would require the Ministry of Defence to report annually to Parliament on the extent to which such accommodation meets the decent homes standard. As someone who has lived in single living accommodation for a huge chunk of my life, I appreciate the sentiment behind the new clause, but the Government do not believe it is the right way to drive up standards in single living accommodation.

As Members may recall, this matter was debated during the passage of the Renters’ Rights Act, and Ministers at the Ministry of Housing, Communities and Local Government set out why the decent homes standard cannot sensibly be applied to single living accommodation. Such accommodation exists to support operational readiness and cannot be treated in the same way as social housing or other forms of civilian housing.

Single living accommodation spans a huge range of types, many with shared facilities, and therefore, by definition, some parts of the decent homes standard would be difficult to meet. For example, the standard requires each unit to have adequate kitchen facilities, but single living accommodation units do not necessarily all have their own kitchens, because full professional subsidised catering is provided on defence bases or sites. For that very reason, civilian housing with shared facilities, such as purpose-built student accommodation, is typically not covered by the 2006 decent homes standard.

[Mike Martin]

That is not what new clause 1 seeks to do. It is about amending the Renters’ Rights Act so that defence housing standards cover both service family accommodation and single living accommodation, rather than applying the decent homes standard, as in the previous amendments we discussed.

[Al Carns]

I make it clear that we are not talking about amending the Renters’ Rights Act; we are talking about the Armed Forces Bill, but I am happy to take this offline and talk about the nuance between the two if required. We need to be clear that this does not mean we are complacent about the condition of single living accommodation—far from it. We are committed to driving up the quality of single living accommodation across the entire estate and ensuring that people get the experience they deserve if they are to serve on the frontline.

The Minister for Veterans and People has commissioned an independent review and is working on it now, and the single living accommodation piece should be complete by the summer. I will strongly recommend that she engage with the hon. Gentleman to talk through how we can work collaboratively towards the best solution for defence personnel. The review is the right vehicle for this work; it is targeted, expert-led and focused on the specific needs of those who serve.

Our commitment is simple: we will deliver safe, comfortable and well-maintained accommodation for our service personnel, taking into account the unique nature of service as a whole. I hope that reassures the Committee. On that basis, I ask the hon. Gentleman not to press amendment 2 or new clause 1.

[Mike Martin]

In the light of the Minister’s words— I know him well from before we came into politics—I am happy to take him up on his offer, and I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

Amendment proposed: 3, in clause 3, page 8, line 16, at end insert—

“(6A) The standards in subsection (6) must at a minimum meet the 2006 decent homes standard.”—(Mike Martin.)

This amendment requires that the framework agreement governing the new Defence Housing Service must at a minimum meet the 2006 decent homes standard.

--- Later in debate ---

[Al Carns]

I turn to amendment 16, tabled by the retired hon. Member for Rayleigh and Wickford—

[Mr Francois]

Retired?

[Al Carns]

Sorry, the right hon. Member. I do apologise; there is no requirement to retire yet.

[Mr Francois]

One day, obviously, but not quite yet.

[Al Carns]

The right hon. Member still has a lot of energy in him.

[The Chair]

Order. One person at a time.

[Al Carns]

Amendment 16 would require that the chief executive of the Defence Housing Service reports directly to the Minister for the Armed Forces, which is my current role. In the way it is written, it would confuse accountability in the Defence Housing Service, undermine the role of the board in particular, including the role of the family representatives, and risk duplicating lines of ministerial accountability that are already set out in the Bill.

From my perspective, when we have an issue, in defence or in any organisation, it is down to either a lack of understanding, command or control or a lack of accountability. I want to ensure, and reassure, that when the board reports on the Defence Housing Service and its deliverables, it is unfiltered and untainted as it hits ministerial offices. The governance of the Defence Housing Service has been carefully set out to provide the right balance between independence, accountability and ministerial oversight.

For the organisation to deliver its objectives, it must operate alongside strategic oversight by the Department, including accountability to Ministers and Parliament as a whole. Under established arrangements for arm’s length bodies, arrangements that operate across Government, responsibility for overseeing performance sits with the body’s board, with the chair acting as the principal interface with Ministers. It is critical that the chair is the principal interface with Ministers, reducing the ability of anyone to filter or taint any reports as they come up and through.

The Defence Housing Service will remain accountable to Ministers through that board and via departmental sponsorship and arrangements, alongside increased reporting to Parliament on its performance, as set out in the Bill. The DHS will continue to work closely with departmental teams, which will be covered in the MOD framework document in the usual way. It will be operationally independent, within the scope of the framework document and the legal powers in the Bill.

Critically, for its day-to-day activities, the organisation will be accountable to an expert, independent board, which will be appointed by the Secretary of State. The board will include a family representative, alongside the service family involvement in the wider governance, to ensure that the Defence Housing Service is held to account by not only those with appropriate expertise but the families that it has been set up to serve. Given its importance, it is right that ministerial reporting be held at Secretary of State level, rather than with the Minister for the Armed Forces. I was responsible for the delivery of the strategy, but housing is not necessarily within my portfolio.

Given the clear and comprehensive arrangements I have outlined, the amendment is unnecessary and I urge the right hon. Member to withdraw it.

[Mr Francois]

Mr Offord, I was—

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[The Chair]

With this it will be convenient to discuss the following:

Schedule 1 stand part.

New clause 7—Feasibility study on a Forces Housing Association—

“(1) Within 12 months of the passing of this Act, the Secretary of State shall publish a detailed feasibility study into the possibility of establishing a Forces Housing Association (FHA).

(2) The Study must examine the proposals in Chapter 5 of the 2020 Report ‘Stick or Twist – A Report for The Prime Minister into Retention in HM Armed Forces – and how to improve it’.

(3) The Secretary of State must lay a copy of the study before each House of Parliament.”

This new clause would require the Secretary of State to conduct a feasibility study into the merits of establishing a Forces Housing Association (FHA) as opposed to the proposed Defence Housing Service.

[Al Carns]

Clause 3, together with schedule 1, creates the Defence Housing Service, a new public body dedicated to improving the supply and quality of defence housing and spearheading the regeneration of defence communities. Our Defence Housing Service sets out a vision for the future transformation of military homes, 90% of which will be upgraded, renewed or rebuilt through a record £9 billion investment over a decade. The Defence Housing Service is the vehicle to drive that transformation.

The clause confers on the Defence Housing Service the functions of

“improving the supply and quality of defence housing,”

the management, regeneration or development of land used for defence purposes and

“supporting in other ways—

(i) the creation, regeneration or development of service communities, and

(ii) the continued wellbeing of those communities.”

To fulfil those functions, the Defence Housing Service will be empowered to generate income from property and to manage land on behalf of the Secretary of State and others. It may enter into contracts, buy and sell property, borrow money with Treasury approval, provide financial assistance and form partnerships or joint ventures. It will also have compulsory purchase powers to acquire land for any purpose connected with its functions. The Defence Housing Service will be accountable to Ministers. It must have regard to guidance issued by the Secretary of State and comply with the terms of the framework agreement entered into with the Secretary of State.

Forces families have previously been let down by homes that are not fit for purpose; we are determined and focused on delivering that. A new set of military housing standards that are fit for service family life will be established, including the decent homes standard, which the Defence Housing Service will be required to meet, under the terms of the framework agreement. The Defence Housing Service will lead the renewal and development of military homes across the United Kingdom, while unlocking the potential to deliver 100,000 homes of all types on developed MOD land.

[Mr Francois]

I note that the Minister never answered my previous inquiry about the bonus arrangements for the NAD. He is speaking to the clause standing part of the Bill, so perhaps he can tell me now—though he may need to seek inspiration. What are the bonus arrangements for the NAD relating to the DHS? What metrics will be applied?

[Al Carns]

The board of the Defence Housing Service will be accountable to the Secretary of State. I will not go into the detail of the NAD’s bonuses and how they are credited in the Bill, because they are not related.

That renewal will not only benefit the country as a whole in delivering against wider Government housing and economic growth targets but follow a “forces first” principle, prioritising current and former military personnel wherever possible. The Defence Housing Service will transform military housing, improve quality of life for service families and ensure that Defence housing is finally properly managed in a professional and efficient manner.

[David Reed]

Referring back to the intervention of my right hon. Friend the Member for Rayleigh and Wickford, the bonuses are an important part of the Bill. If accountability for housing is now going through the National Armaments Director, and we are seeking to increase visibility so that we can scrutinise what is happening in the Defence Housing Service, that bonus part is important. Maybe this is an area for the Committee of the whole House, but we have to dig into it.

[Al Carns]

On the question of accountability, the board will report directly to the Secretary of State. There will be no filtering and no taint on any information coming up. Therefore, I do not necessarily agree with the premise of the hon. Gentleman’s intervention.

I will address new clause 7 in my closing remarks.

--- Later in debate ---

[Mr Francois]

Yes, and in the immortal words of Mandy Rice-Davies, they would say that, wouldn’t they? We were proposing a slightly more market-oriented solution. Registered social landlords are somewhere between the public and private sector. They are not entirely private entities or entities of the state, but are, practically, somewhere in the middle. As I have already said from experience, they vary in quality, but to be fair, I have seen what good looks like. I appreciate the knowledge of the hon. Gentleman. He has a proud background of service in the Royal Engineers. He qualified as a clerk of works, which is no mean feat, so I appreciate that he knows his onions. None the less, the point he puts across came from the other side of the fence—no pun intended. Of course they would argue that.

The purpose of tabling new clause 7 was so we could debate the relative merits of the two systems. If we think of this as a spectrum, the old DIO was at the most statist end, the Defence Housing Service as proposed is one notch further along to something more market-oriented, and we are proposing something another notch further along the spectrum. The Minister is listening intently; hopefully he understands the analogy.

As I said at the beginning, I do not believe there is any violent disagreement, or indeed any disagreement at all, about what the Committee is trying to achieve. We all want service family accommodation of the best possible quality for our personnel and their families; the debate is about how we best get to that objective. We were asking the Government to conduct a feasibility study, perhaps slightly more independently than the response that the hon. Member for South Ribble just cited, and to come back a year later, before the Defence Housing Service is fully up and running, to see whether there might be a better way of doing it or whether it could be tweaked. We might return to this on Report, but that is the background, the genesis and the stimuli of our proposal.

When we did the visits—it was a former Minister, a politician in a suit, coming down to a military establishment—we sat 20 people down in a room and gave them the scenario of the corporal’s conversation at the kitchen table as a bit of an icebreaker. To begin with, everyone looked at everyone else, and they were all a bit nervous about saying something. One person then said something, and the dam broke: everybody wanted to pitch in, and everybody had a contribution to make. That taught me how powerful all of this is. We had a number of specific examples when people of varying ranks told us, “We are going to leave the service of the Crown, because of our concerns about housing.”

I know from experience that this really matters to service personnel and their families. I apologise for trying the patience of the Committee this morning, Mr Efford—in all seriousness, you have everything in Greenwich, including your own barracks, so you will be very familiar with these matters yourself. I hope Members understand the spirit of what we are trying to do with new clause 7.

On clause 3, I think we have had a good debate this morning, and we have tested some of the issues fairly well. I hope we have done our duty, and no doubt we will wish to return to some of these issues on Report, not least the prospective bonus for the National Armaments Director. I will conclude there, and I am genuinely interested to hear the Minister’s reply and the opinions of any other members of the Committee.

[Al Carns]

New clause 7 would require there to be a feasibility study when establishing a forces housing association, but before I go into the detail, I will reflect on some of the comments made by the right hon. Member.

Recruitment and retention are intrinsically linked, as both the Government and the Opposition acknowledge. We have introduced lots of changes in recruitment and retention over the last year and a half, but there is much more to do. While it differs across the services, overall we are seeing a 13% uptick in recruitment and an 8% reduction in outflow, which is the first time we have seen a change in direction for 14 years. There is much more to do, but we are heading in the right direction.

One of the reasons we are heading in the right direction is because I genuinely believe that our armed forces personnel can see that we are doing the right thing, particularly with accommodation. The right to a family life is one of the critical components of anyone serving, and that looks like safe, secure, warm and dry accommodation, whether single living or family accommodation. To give a small example, I went through marine training in 1999, and the accommodation in which I was housed was still in place in 2024, when I came back to be the unit’s commanding officer. In 1999 it was terrible, and in 2024 it was unworkable. We need to get after those accommodation issues and put them right. I am absolutely confident in the Defence Housing Service, and the strategy review comprehensively looked at single living accommodation and family accommodation, and we are putting them on the right track to deliver significant change.

It is not lost on me that the drafting system in the military can put an undue amount of pressure on individuals; I have been on a satellite phone to my children on their birthdays in the middle of all sorts of carnage, with helicopters burning and turning in the background, or with incoming rounds in Afghanistan. It puts exceptional pressure on families, so the ability to return to a safe and secure place is the least that we can provide.

The independent strategy produced prior to the establishment of the Defence Housing Service was exactly that: it was independent, and it took a huge amount of advice from a variety of people. Most importantly, the families federations fed into that process and ensured that their voices were heard. The quote highlighted by my hon. Friend the Member for South Ribble was only reinforced by the oral evidence given by Natalie Elphicke Ross OBE, when discussing the strategy review in response to the hon. Member for Solihull West and Shirley. The view was firmly held throughout the entire review that the housing association model was not the right approach, and it was not included in its recommendations.

It is worth noting that, while there were a plethora of strategic issues during covid, the previous Conservative Government did not adopt the totality of the “Stick or Twist?” report produced by the right hon. Member for Rayleigh and Wickford, although it contained valuable points. A housing association model would jeopardise the close working with the military that is essential to ensuring appropriate operational capability. It would also put at risk the Crown basis on which personnel occupy their homes. Crown immunities allow the Ministry of Defence to move personnel at pace, without some of the regulatory constraint that we would have otherwise, which is vital for operational effectiveness. We must also bear in mind that we have more throughput in the armed forces than probably any other organisation or housing association in the country.

[Mr Francois]

For the record, that was the one recommendation in the “Stick or Twist?” report that was not adopted. All the other recommendations were adopted, including spending a lot of money on wraparound childcare because, again, childcare was a very important point for retention. Ben Wallace told me that he used the report to get quite a bit of cash out of the Treasury, so that recommendation about childcare was one that we did manage to get through. For the record, this was the one recommendation that was too much for the system to bear.

[Al Carns]

Perhaps that is why we are not taking it forward now.

Furthermore, the Ministry of Defence heavily subsidises rents. There have been suggestions that the Defence Housing Service could borrow private finance off the balance sheet if it was a housing association rather than a public body. However, expert advice from the Treasury, the Cabinet Office and others confirms that is not the case. The exclusivity of the defence housing purpose and the scale of MOD payments mean that such financial arrangements are not feasible.

Equally important, and close to my heart, is the welfare of service personnel and their families. Evidence presented to the defence housing strategy review team revealed that local commands exercised significant discretion to support personnel in a plethora of difficult circumstances, such as bereavement. That welfare-based discretion is a cornerstone of armed forces culture, and moving housing management to a third-party provider could put it at risk, undermining this vital welfare function. Finally, the planned housing renewal programme demands very close working relationships with military commands to ensure that it supports operational effectiveness rather than undermining it. Such close collaboration is not realistically achievable through a private or third sector body.

[David Reed]

I refer the Minister back to amendment 16 on the line of accountability. He makes the point about adding an extra layer and removing accountability from the Minister for the Armed Forces. Does he not see that that is the point that we are trying to make? Making the CEO for DHS report directly to the Minister for the Armed Forces would give him an unfiltered view, so that he can do this work on bereavement or the state of housing. This direct line of accountability would give him that power.

[Al Carns]

There is some confusion here. The Minister for the Armed Forces does not deal with the housing, the people or the welfare; he deals with the operation and policy output. There is a clear understanding of that. Amendment 16 refers to

“ the Minister of State for the Armed Forces”.

That is the wrong role, so the amendment is wrong.

Let us just stick to the point. The board itself will be accountable to the Secretary of State. That is the cleanest way to provide a sharp and crisp command and control model, and to allow the Secretary of State to make sure that the board, which has family members on it, provides the best service. Let us not misunderstand some of the ranks, roles and responsibilities within defence.

Question put and agreed to.

Clause 3 accordingly ordered to stand part of the Bill.

Ordered, That further consideration be now adjourned. —(Christian Wakeford.)

Armed Forces Bill (Second sitting)

Al Carns Excerpts

Select Committee stage
Tuesday 24th March 2026 Public Bill Committees

[The Chair]

With this it will be convenient to discuss the following:

New clause 2—Veterans’ Mental Health Oversight Officer—

“(1) The Armed Forces Act 2006 is amended as follows.

(2) After section 343C (Establishment and functions of veterans advisory and pensions committees) insert—

‘343CA Establishment and functions of a Veterans’ Mental Health Oversight Officer

(1) The Secretary of State must appoint a person to be the Veterans’ Mental Health Oversight Officer.

(2) The general function of the Officer is to oversee the mental health care and treatment provided to veterans by the health bodies specified in section 343AZB.

(3) In exercising their function, the Officer must, in particular, monitor and assess the extent to which health bodies are complying with the duty imposed by section 343AZA (Duty to have due regard to the covenant) in relation to the mental health and well-being of veterans.

(4) The Officer may require a health body to provide such information as the Officer considers reasonably necessary to discharge their functions under this section.

(5) The Officer must prepare an annual report on the exercise of their functions and the general state of veterans’ mental health care and treatment in the United Kingdom.

(6) The Secretary of State must lay a copy of the Officer’s annual report before each House of Parliament.

(7) In this section, “veteran” means a person who has at any time been a service member.’”

This new clause establishes the statutory role of a Veterans’ Mental Health Oversight Officer.

New clause 6—National Veterans’ Commissioner (England)—

“After section 366 of the Armed Forces Act 2006 insert—

‘366A National Veterans’ Commissioner (England): establishment

(1) Within 12 months of the passing of the Armed Forces Act 2026, the Secretary of State must appoint a National Veterans’ Commissioner for England (“the Commissioner”).

(2) The Commissioner shall act independently in carrying out the functions of the office.

(3) The Commissioner shall, amongst others, perform the following functions—

(a) promote the interests of veterans in England;

(b) monitor the operation and effectiveness of the Armed Forces Covenant in England;

(c) review the effect of public policy and public services on veterans and their families;

(d) identify barriers faced by veterans in accessing housing, healthcare, employment, education, and other public services;

(e) make recommendations to the Secretary of State and to public authorities on improving support for veterans.

(4) In exercising these functions the Commissioner may—

(a) carry out reviews and investigations into matters affecting veterans;

(b) consult veterans, service charities, public authorities, and other relevant organisations;

(c) publish reports and recommendations.

(5) The Commissioner shall prepare an annual report on the exercise of the Commissioner’s functions.

(6) The Commissioner may at any time prepare a report on any matter relating to the interests of veterans in England.

(7) The Secretary of State shall lay any report prepared under this section before both Houses of Parliament.

(8) The Secretary of State must make arrangements for—

(a) the provision of such staff, accommodation, and other resources as they consider necessary for the Commissioner to carry out their functions;

(b) the publication of the Commissioner’s reports.

(9) The Commissioner is to be appointed for a term of three years and may be reappointed for a further term.

(10) The Secretary of State may remove the Commissioner from office only on grounds of—

(a) incapacity,

(b) misbehaviour, or

(c) failure to discharge the functions of the office.

(11) In this section—

“public authority” has the same meaning as in section 6 of the Human Rights Act 1998;

“veteran” means a person who has served in His Majesty’s armed forces.’”

This new clause would require the Government to appoint a National Veterans’ Commissioner for England and sets out its functions.

[The Minister for the Armed Forces (Al Carns)]

It is an honour to serve under your chairmanship, Mr Efford. I thank everyone for our progressive and balanced debates so far.

I am delighted to introduce clause 2, which extends the armed forces covenant legal duty, delivering a manifesto commitment to strengthen support for our armed forces. The clause will amend part 16A of the Armed Forces Act 2006 by inserting two new sections that will extend the statutory duty to have due regard to the principles of the armed forces covenant. They will do so by applying the duty to public bodies across the UK and additional policy areas, as I shall explain.

Proposed new section 343AZA introduces the principles of the armed forces covenant. It states that bodies subject to the duty must have due regard to the unique obligations of, and the sacrifices made by, members of our armed forces. Those principles include the principle that it is desirable to remove disadvantage faced by servicepeople as a result of their current or former service, and the principle that in some cases special provisions may be justified for the armed forces community because of the impact of their service.

Proposed new section 343AZB will impose the duty on national authorities, local authorities, education bodies and health bodies across the United Kingdom. For the first time, in recognition of the breadth of the covenant, the devolved Governments of Scotland, Wales and Northern Ireland and UK Government Departments will be subject to the duty. It applies when those bodies exercise public functions in relation to the following matters: childcare, education and training, employment, health and social care, housing, social security benefits, personal taxation, criminal justice, transport, pensions, immigration and citizenship, and armed forces compensation.

[Sarah Bool (South Northamptonshire) (Con)]

It is a pleasure to serve under your chairmanship, Mr Efford. New clause 6 would introduce a veterans commissioner for England. We have three excellent veterans commissioners —the commissioners for Northern Ireland, for Scotland and for Wales—but they represent just 15% of veterans living in the UK. Some 85% of veterans live in England, yet there is no equivalent dedicated commissioner. As Members will recall, when the Minister asked at our evidence session on 25 February whether there should be a veterans commissioner for England, the three commissioners all expressed their support for such an appointment.

This is not a new campaign or issue. On 1 May 2024, after a campaign by the Royal British Legion, which included a petition that received 1,400 signatures, the Office for Veterans’ Affairs under the last Conservative Government said that it would appoint a national veterans commissioner. It started recruiting for the role, and the job advert stated:

“This role will cover England and any veterans matters which are reserved to the UK Government and are not in the remit of the Devolved Administrations.”

At the time, the RBL was delighted that England would have the same key public role of an independent advocate and voice for the armed forces community as Scotland, Northern Ireland and Wales, which have had veterans commissioners since 2014, 2020 and 2022 respectively.

The national veterans commissioner was intended to replace the Government’s independent veterans adviser. The IVA was a UK-wide advisory role with informal influence; the national veterans commissioner, by contrast, was to be a public commissioner with formal oversight and scrutiny, looking at England and UK-wide reserved matters to improve veteran support and accountability. However, the post has never been filled.

Following the general election in July 2024, the new Labour Government moved the Office for Veterans’ Affairs from the Cabinet Office to the Ministry of Defence. The Prime Minister explained in a written statement that the change would

“enable the Minister for Veterans and People to have complete oversight for the entirety of service life; from training to veterans working with all government departments to deliver for our service personnel.”

In February 2025, at Defence questions, I asked the then Minister for Veterans and People whether he planned to appoint a veterans commissioner for England. His response was:

“I reassure the hon. Member that I work closely with my Northern Ireland, Welsh and Scottish commissioners. We are currently looking at the structures by which we support veterans across the whole tapestry of the United Kingdom, and we really want to put in place an institutional resilience system that gives the best care at the right time and in the right place to the right people. That primarily involves working with thousands of charities collaboratively and coherently to ensure that we can get the best bang for our buck from all the amazing volunteers and charitable services out there. A bigger review is going on. It is on hold at the moment, and we will let the House know more in due course.”—[Official Report, 10 February 2025; Vol. 762, c. 16.]

However, the new veterans strategy published in November 2025 made no reference or commitment to the creation of such a role.

I appreciate that Op Valour is ongoing. It was announced last year and was described as the first ever UK-wide, Government-led approach to veterans support. It is said that the programme, backed by £50 million of funding, will deliver easier access to care and support for our veterans, connecting housing, employment and health services across the UK. It has three parts: Valour-recognised support centres, Valour field officers and the Valour HQ. However, it does not provide the single point of overarching advocacy that a commissioner would provide. Neither would the Armed Forces Commissioner, which was established in legislation in 2025. I note that there has still not been an official announcement, nearly a year after the application deadline closed, of who that will be, but perhaps the Minister can provide an update.

The role of the Armed Forces Commissioner is to investigate general welfare matters in the armed forces. The office of the Service Complaints Ombudsman would be abolished, with its functions and responsibilities transferred to the newly established commissioner. A veteran would fall under the commissioner’s remit only where their complaint relates to their time in service when they were subject to civil law. There are time limits for submitting a complaint; only those veterans who recently left the armed forces will generally fall within the provision.

New clause 6 proposes that a veterans commissioner for England be appointed within 12 months of the passing of the Act. We have used the word “appoint”, because this is not a statutory role but a public appointment. That would mirror the position for Northern Ireland, Scotland and Wales, which all have non-statutory commissioners. I note that the Scottish Veterans Commissioner, while technically non-statutory, operates much closer to the statutory model than those in Wales or Northern Ireland. It is treated like an arm’s length public body, with a defined budget, a permanent staff, a published governance framework and annual reporting requirements. Although that is not the exact model proposed here, perhaps it is one that the Minister might consider.

Proposed new section 366A(3) sets out the commissioner’s core functions, which are to

“promote the interests of veterans in England…monitor the operation and effectiveness of the Armed Forces Covenant in England…review the effect of public policy and public services on veterans and their families…identify barriers faced by veterans in accessing housing, healthcare, employment, education, and other public services…make recommendations to the Secretary of State and to public authorities on improving support for veterans.”

In doing so, the commissioner may

“carry out reviews and investigations into matters affecting veterans …consult veterans, service charities, public authorities, and other relevant organisations…publish reports and recommendations.”

Given the proposed extension of the armed forces covenant, and the issues and concerns that many people have, the oversight role of a commissioner is vital. To date, as the local government representatives indicated to us, the covenant has been delivered through enthusiasm, but we now need robust implementation.

Any report prepared by the veterans commissioner would be laid before Parliament. The role would operate for three years at a time, with a further chance to be reappointed.

I believe that all members of the Committee understand the value of a veterans commissioner for England. As the existing commissioners are calling for it, I implore everyone to consider carefully how vital it will be.

--- Later in debate ---

[Mike Martin]

I agree with the hon. Lady. In the spirit of cross-party working, I say that we all support our veterans, and I think that the strides that the Government have made are fantastic. The previous Government had a Minister who was passionate about this issue, and he also made strides in this area. We are all trying to move in the same direction; it is not either/or. We have used the phrase “postcode lottery”. We all accept that veterans or people with mental health injuries do not reach out—often people who are depressed or anxious retreat inside themselves—so it is a good thing to have somebody who is able to survey veterans, understand their concerns and see how well linked they are to the fantastic mental health services that are being rolled out by the Government.

Let me highlight a couple of statistics about veterans. Suicide rates are four times higher for veterans under the age of 25 than for the same group in the civilian population, and 52% of veterans have had a mental health problem compared with 45% in the general population. On the point about belonging that I mentioned, a third of veterans reported feeling loneliness compared with just 7% of the civilian population. Veterans experience PTSD at twice the rate of the civilian population. We do not have any figures for the moral injury concept that I spoke about because it is hard to define and band.

The particular case of veterans and mental health is a well-recognised problem—we do not need to over-make the case; we understand it. Veterans often do not reach out when they have mental health issues, so there is a case for a sort-of chief gardener to help us make sure that we all tend the garden of our mental health.

[Al Carns]

I thank hon. Members for their contributions on clause 2 and the new clauses. They are based on the right intent, and Members are trying to do the best by our serving and ex-serving population.

I will leave the script and step back to look at where we have come on this journey. Under the previous Government, the Office for Veterans’ Affairs sat outside the Ministry of Defence. I sort of understand why that happened in some cases. I analysed this to and fro for a long time before making the decision to bring it back in. With hindsight, after a year and a half, the ability to amalgamate all the different parts of the veterans portfolio, including pensions, injury claims, records and the resource that Defence brings, has brought us far further forward. Would that have happened if the OVA had not been outside in the first place? I cannot comment, but its position in Defence, where it is safeguarded as an organisation, means that it harnesses all the bureaucratic power that Defence can bring to move stuff forward.

I will come in a second to the issues of veterans’ mental health and having a veterans commissioner. But if we step back and look at Afghanistan—where some Committee members here served; I did five tours there—there was a palpable feel among the population that the Government were not doing enough, or that the system was not flat and fast enough to deal with the scale of the problem that Afghanistan was kicking out on rotations. We therefore saw an explosion in the number of veterans charities, and the reality is that we now have more than 1,000 veterans charities in the UK. That number is growing every day. Some are the best, most well-meaning people, doing an amazing job and dealing flat and fast with veterans in our communities at the grassroots level. They do an outstanding job, and we have to harness the best charities. Some big charities, too, do a fantastic job of analysing data and providing the Government with clear advice on how to support veterans. There is also everything in between. I will be clear: there are the most amazing charities, very good charities, average charities and a very small minority that do not deliver as efficiently as perhaps they should.

In the veterans portfolio, how do we help the charities cohere their capacity, the £1 billion market that is the veterans charity sector, to deliver it more effectively? And how do we do that in conjunction with local government, while understanding the good, the bad and the other group that sits to the right of that mark? That will stem from Valour. It has taken small steps, but it is moving forward relatively quickly. The first one was about the establishment of an OC—officer commanding—Valour, the head of Valour. Who will run this programme, which is not just about England, but about England, Scotland, Wales and Northern Ireland?

The reason why we need one central point of contact is that we have devolved Administrations that do things differently. We have a plethora of datasets that sit within big charitable organisations, sometimes feeding the output of the charities and at other times providing us with good, balanced analysis. The trouble is that we do not have a collective dataset to give us a clear understanding of the various issues across our veterans space. In fact, the RBL did a fantastic study on perception versus reality, on the statistics and the view of the population versus the actual realities for veterans at the grassroots level. It pointed to one thing: with so many charities needing to generate and raise funds, in some cases they had to champion the requirement for money to go to the most needy or individuals in most need of support.

When we look at the realities, most veterans leave the military and do not have an issue. A proportion have medium-level needs, and a proportion have some really acute needs. The reality and the perception, however, are different. Some of that is skewed, because we have created a charitable sector network that must generate an income from championing or sometimes pushing the most injured and the individuals who need the most support to the very front of the limelight. That creates a national narrative that turns veterans into victims, and I tell the Committee now that it is 110% not the case. Some individuals need lots of support, some need some support and other people go on to contribute to society with no impact whatever.

[Mr Francois]

To reinforce what the Minister is saying, Lieutenant General Sir Andrew Gregory, who for many years was the controller of SSAFA, always used to make the point that while clearly some people suffer as a result of their military career, as the Minister admits, the vast bulk emerge in good shape, remain in good shape and benefit immensely from their time in service. I put on record what Lieutenant General Gregory, the head of SSAFA until recently, said, if only to back up absolutely everything the Minister is saying.

[Al Carns]

Sir Andrew is an exceptionally good man, and few are more knowledgeable than him on veterans matters. We have a position where, in some cases, veterans are seen as victims, but we have no central body that understands the totality of veterans issues across the United Kingdom. Head Valour is therefore coming into place in the next month or two, with a new headquarters. What does a headquarters mean? It means pulling in all the data sources to provide us with a comprehensive view of the issues that veterans face in this country—a balanced, analytical view, not one that is sometimes skewed by institutional organisations or other bodies. That is not because it is in their interests to do so, but it might be a passion project. It is about providing a balanced, analytical view, which must be data-led and have the horsepower to do that across all the devolved nations.

There is, of course, no point pooling data feeds if they come in all sorts of different forms. That brings in the Valour centres. The hon. Member for Tunbridge Wells talked about camaraderie. One of the issues at the moment is that when a veteran has a mental health issue, they have to go to eight different charities before they land on the right one. They usually start with family or a friend, and they will then go from one charity to another, having to bounce around, retelling the story, reliving the trauma. Sometimes, by the time they get three or four down the line, they give up. That is where we have some pretty catastrophic consequences.

The Valour centres are about taking some of the existing centres—we have more than 700, and growing, across the country—finding the very best ones, providing them with long-term Government funding, and standardising the services and engagement. We will ensure that they understand their local networks of the good, the bad and the ugly charities, and can then distribute resources down to them, to provide a set of standard-ish services as best we can—that goes back to the postcode issue. Secondly, we will ensure that the data flows back up to the headquarters in a manner that can be digested and analysed in the most effective way. On top of the Valour centres, field officers in local councils will help to control the centres, as well as to hold councils to account should they not fall in line with the covenant and some of the principles we have talked about today. We are in the foothills; in the future, we should have a far better, greater dataset for us collectively to analyse.

I do not believe that putting one individual in charge of veterans’ mental health would provide us with the systemic jump to deal effectively with that issue. Courage is a programme from the previous Government. We have taken it on and kept it going, because it is working well. For everything we have talked about today—mental health, housing, education, and special educational needs and disabilities—we need the data flowing in, proper analysis and then proper, comprehensive solutions flowing back down. That is one of the reasons why I cannot support new clause 2.

When I was Minister for Veterans and People and dealt with the veterans commissioners, I did not really know whether they were in the right place, in the wrong place or doing the right things. They were brought in from a devolved Government perspective to ensure that we could continue to check and balance the devolved Governments in line with central Westminster policy. Interestingly, 85% of all veterans, which equates to about 1.7 million people, live in England—a veterans commissioner for England would be a huge role.

I have been clear, I think on the record, that once Valour is up and running and we establish the framework for how the hubs will work, we then need to deal with whether we need a veterans commissioner for England. I would suggest that it may be positive, depending on the veterans architecture out there. Why do I say that? At the moment, we have armed forces champions, at different levels and with different terms of reference—some part time, some full time, some employed by councils and some not—and we have Valour field officers going into councils. We have veterans commissioners in the devolved Governments, and then we have the head of Valour, who will have a whole set of data, with the Valour centre network sitting below them. Throwing a commissioner on top of that, at the same time, would perhaps dilute the hierarchy and centralised control. I absolutely understand the utility of having a fourth commissioner in place over time and, although I have to oppose new clause 6, I would like to take on this discussion. I have a feeling that, in the next 24 months or so, we will be moving in the right direction with regard to the measure.

[Mr Francois]

The Minister has made a strong argument. I place on the record my admiration for the three veterans commissioners for Scotland, Wales and Northern Ireland, all of whom are excellent at what they do. I seem to recall—I do not have the Hansard here—that when we were debating the Armed Forces Commissioner Act 2025, I asked the Minister when we would get an English veterans commissioner, and he was pretty clear that we would get one. The Minister today has intimated that we will probably still get one, so he is being consistent, but can he give us some idea of the timing?

[Al Carns]

Once we analyse the tapestry of veterans support, I would like to come to a solution on the English veterans commissioner to align with and amplify what we do on Valour. I think that Valour will take 36 months to be properly embedded in our local councils, with the structures and data network in place. It has taken us longer than I expected to get the Valour OC in place, but perhaps that is one for the bar downstairs.

Armed Forces Bill (First sitting)

Al Carns Excerpts

Select Committee stage
Tuesday 24th March 2026 Public Bill Committees

[The Chair]

Before we start, I need to make a number of announcements. Will everyone ensure that their electronic devices are turned off or in silent mode?

We now begin line-by-line consideration of the Bill. The selection list for today’s sittings is available in the room and on the parliamentary website. It shows how clauses, schedules and selected amendments have been grouped together for debate. I remind the Committee that a Member who has put their name to the lead amendment in a group is called first or, in the case of a stand part debate, the Minister will be called to speak first. Other Members are then free to indicate that they wish to speak in the debate by bobbing. Hansard colleagues would be grateful if Members could email their speaking notes to [e-mail] or, alternatively, pass their notes to the Hansard colleague in the room.

At the end of the debate on a group of amendments, new clauses and schedules, I shall call the Member who moved the amendment or new clause to speak again. Before they sit down, they will need to indicate whether they wish to withdraw the amendment or to seek a decision. If any Member wishes to press to a vote any other amendment—that includes grouped new clauses and schedules—in a group, they need to let me know. The order of decision follows the order in which amendments appear in the amendment paper. I hope that is helpful.

Clause 1

Duration of Armed Forces Act 2006

Question proposed, That the clause stand part of the Bill.

[The Minister for the Armed Forces (Al Carns)]

It is a pleasure to serve under your chairmanship, Mr Efford. This clause is an essential part of each and every Armed Forces Bill, as it provides for the Armed Forces Act 2006 to be renewed for a further five-year period. Without it, the 2006 Act would expire on 14 December 2026.

For constitutional and legal reasons, an Armed Forces Act is required every five years. That requirement for Parliament’s agreement for continuation has its origin in the Bill of Rights of 1689, which provides that the raising of a standing army is against the law unless Parliament consents to it. Primary legislation, an Armed Forces Act, is therefore required every five years, this one to renew the 2006 Act to provide for the armed forces to be recruited and maintained as disciplined bodies. The most recent Armed Forces Act was the 2021 Act, which provided for annual continuation in force of the 2006 Act by an Order in Council, but not beyond the end of 2026. That means that this Armed Forces Bill must receive Royal Assent before 14 December 2026.

Clause 1 replaces section 382 of the 2006 Act with a proposed new section 382 that provides for the 2006 Act to be continued until the end of 2031. It provides specifically for the 2006 Act to expire one year after the Royal Assent of this Bill, but it also provides for it then to be continued annually—rather than expiring—by an Order in Council up to, but not beyond, the end of 2031. As a consequence of clause 1, section 1 of the Armed Forces Act 2021, which inserted existing section 382 and the expiry date of 2026 into the 2006 Act, is repealed.

[Mr Mark Francois (Rayleigh and Wickford) (Con)]

By way of some brief introductory remarks, Mr Offord—

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[Mike Martin (Tunbridge Wells) (LD)]

In the same vein, we see the Bill as part of our constitutional duty, and one that will help us to deliver the best for our service personnel—an aim that we all share. I echo the shadow Minister’s thanks to the Clerks and you, Mr Efford. I, too, look forward to working collegially across the Committee to ensure that we get the best Bill possible.

[Al Carns]

I will triple down on what was said and say thank you very much to an amazing team, first, for putting together great evidence sessions and, secondly, for approaching this in a positive and pragmatic way. I also thank the Opposition parties for also being pragmatic in the way we move this forward in the best keeping of our armed forces.

Question put and agreed to.

Clause 1 accordingly ordered to stand part of the Bill.

Clause 2

Armed forces covenant

[David Reed (Exmouth and Exeter East) (Con)]

I beg to move amendment 8, in clause 2, page 3, line 19, at end insert—

“‘due regard’ means that specified bodies should think about and place an appropriate amount of weight on the principles of the Armed Forces Covenant when they consider all the key factors relevant to how they carry out their functions.”

This amendment defines due regard for the purposes of interpreting section 2 of the Armed Forces Bill.

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[Sarah Bool (South Northamptonshire) (Con)]

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

I want to add further weight to the points that colleagues have already made. Service personnel themselves have said that the armed forces covenant, while incredibly well meaning, needs to be enacted and enforced properly. It also needs to be explained to the forces themselves what it means and what is on offer to them. With the duty’s extension going as far as it does, we must be absolutely clear what it means in practice, in order to ensure its enforcement. I speak as a lawyer, too, and the enforcement issue is always the biggest problem with any legislation that comes out of this place.

From the evidence sessions we know that the statutory guidance will be doing a lot of the heavy lifting, but we do not know what it will look like or what form it will take—that is not in front of us—so it is important that we discuss and consider the definition of due regard. Including a definition would bring more clarity to the Bill, as my right hon. and gallant Friend the Member for Rayleigh and Wickford said. During the evidence sessions, many Members questioned what due regard means, so it is really important that we ensure that our local bodies know, via a definition on the face of the Bill, what we are hoping and aiming for them to achieve.

[Al Carns]

I thank the right hon. Member for Rayleigh and Wickford and the hon. Members for Exmouth and Exeter East, for Solihull West and Shirley, and for South Northamptonshire, for amendment 8, which seeks to define “due regard” in the Bill. I recognise their intent, their positivity and their commitment to the covenant, but I cannot accept the amendment.

The amendment is unnecessary because due regard is a long-established legal concept that public bodies already understand and routinely apply in practice. The existing covenant duty of due regard is already driving positive change in its current areas of housing, healthcare and education.

[Dr Shastri-Hurst]

Does the Minister not accept that there is inconsistent application of the covenant across public bodies, and that to try to fix that, which all of us on the Committee are seeking to do, there is strength in codifying it in the Bill?

[Al Carns]

I absolutely agree, and I am one of the biggest champions for shouting about the postcode lottery in the delivery of the covenant. Putting that in the Bill would not change it. It requires education, communication and, in a lot of ways, internal support within local authorities to deliver it. The hon. Member for Exmouth and Exeter East mentioned the lack of skills at local council level—that is the problem. It is not necessary to amend the Bill; the statutory guidance will be absolutely clear and concise on what the covenant means.

[Dr Shastri-Hurst]

I am grateful to the Minister for indulging me. I do not disagree that, to a greater or lesser extent, this is a matter of education, but there is the issue of guidance being guidance and not being mandatory. If a definition were included in the Bill, it would provide a much stricter framework—alongside the education piece for local authorities—to ensure that we are getting this right. Does he agree?

[Al Carns]

I agree with the premise of the hon. Member’s point. Where I disagree is in how local authorities may view that and how it may restrict their ability to deliver services across other requirements, in line with local priorities. In my letter to the Committee, I wrote:

“When developing the Armed Forces Covenant Legal Duty, due regard was deliberately chosen to bring about lasting positive change…whilst at the same time retaining some flexibility for public bodies to make decisions that are right for their local context and circumstances.”

That is really important, because some of our constituencies will have different levels of need compared with others. Some may have large veteran populations; others may not. Some may have a large number of cancer patients, for example. Prioritising veterans in a very narrow, bounded line above those individuals may skew a whole list of requirements and needs across other public services, hence my point about communication and education, and then the yearly accountability in line with the covenant, which is critical to ensure a level of accountability.

Government Departments are also demonstrating how covenant considerations are driving change in practice. For example, this Government have gone further than before by removing local connection requirements for access to social housing for all veterans. I would be really interested if the right hon. Member for Rayleigh and Wickford has examples of where that local connection requirement has not been removed; if he does, I ask him, please, to highlight them to my office so that we can take them on and deal with them, because we removed the requirement last year.

Our experience of the public sector equality duty also shows that a duty of due regard, when properly supported, is sufficient to drive lasting cultural and organisational change, but I do accept that this is the first step to moving in that direction. In addition, the covenant’s statutory guidance, which we can scrutinise in due course, will include a dedicated section explaining what due regard means in practice, including the key issues faced by the armed forces community that bodies must consider. I would welcome the whole House’s view on how that can be improved—if, indeed, it thinks it should be.

[Mr Francois]

I do not think the Minister ever served in local government—he was serving his country in uniform, so I mean no slight by that comment—but I did for four years, albeit in the last century. I remember that primary legislation had more effect than guidance on councils, not least because even then we were drowning in such guidance—there is even more of it to drown in now. Would he accept that having something in primary legislation is more likely to get a councillor to do something about it than if it is included in reams of guidance, which they tend to drown in anyway on a weekly basis?

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[Al Carns]

While I may not have served in local government, I absolutely acknowledge that we drown in bureaucracy across the UK. I would say that, compared with primary legislation, a councillor is far more likely to listen to and acknowledge an individual who has experience of armed forces service and who tries to enforce, educate and communicate the requirement to comply with the covenant.

There are two things that are going to bring about change. The first is armed forces champions across local councils, who do a fantastic job. They can be paid and there are no terms of reference; the role has not been standardised. The second thing, which will really change things over time, is the Valour programme, under which local field officers will help communicate and educate on compliance with the covenant over time, and help those councillors who perhaps do not understand it to deliver in line with it more effectively.

[Ian Roome]

I was a local armed forces champion. I was in local government for 22 years and ended up being council leader before entering this place. I can tell the Committee that, in practice, I was going around and screaming my head off to make sure that people were listening but, as it was not mandatory, they could just refer to due regard and make their interpretation of the guidance. I was a local armed forces champion for eight years, right up until I entered this place in July 2024, and I struggled to get veterans the help they needed. I just want the Minister to take that on board.

[Al Carns]

I thank the hon. Gentleman for his service, both in the military and in local government, and as an armed forces champion. The honest reality is that as the duty is broadened from three areas to 12 plus two, local councils will be held to account to deliver for the armed forces community—and not just for veterans, but for families and others. The statutory guidance will be really clear. Combine that with field officers, under Op Valour, holding councils to account, with clear terms of reference that are standardised across the UK, and I think we will see a massive improvement in services, not just for veterans but for the broader armed forces community.

[Mr Francois]

I do not want to labour the point, but in reality, a lot often comes down to the calibre of the armed forces champion in a particular council; I am sure that the hon. Member for North Devon was an excellent one. If such a champion were in a debate in full council—on how to amend housing policy to advantage veterans, say—it would be far more effective for them to be able to point to a section in an Act of Parliament than to paragraph 212B(III) of some Government circular. An argument is far more effective in a council chamber if a person can wave an Act of Parliament; I have seen people do it. Does the Minister not accept that if we are trying to empower armed forces champions to deliver at ground level, having a definition in the Bill would be very helpful?

[Al Carns]

Empowering armed forces champions is not necessarily the solution; unfortunately, whether we like it or not, armed forces champions differ between councils. I am not an expert, as some members of the Committee are, but I have travelled to many local councils and seen where it works exceptionally well. For example, in Manchester, armed forces champions are paid and employed by the council and have clear terms of reference. Other areas do not even have armed forces champions. To deliver the most consistent change, the solution is not necessarily to empower armed forces champions but to provide a set of terms of reference for the accountable individuals in councils to uphold the covenant and support veterans, across the entire nation, in line with the Valour programme.

[Mr Foster]

On this Committee, we have veterans and former council leaders, and I am both. One of the main reasons for all the changes being made in the Bill is a recognition that, historically, the covenant has not been delivered appropriately by local authorities. However, does the Minister agree that there is evidence that it has significantly improved recently, and that including Op Valour will take that improvement a step further?

[Al Carns]

I completely agree. The reality is that the implementation of the covenant has been really narrow, across three different Departments. The Bill will broaden the number of policy areas it covers to 12 plus two, which will put an onus on councils and allow people to hold them to account on delivering in line with the armed forces covenant. That is a positive step in the right direction. When we combine that with Valour over time, starting small and broadening out, we will end up with a data-based solution that ensures that councils can support their armed forces community in a more effective and balanced manner.

A definition of due regard in the Bill risks being overly narrow and could unintentionally limit how bodies apply it in practice.

[Dr Shastri-Hurst]

I promise the Minister that this will be the last time I intervene.

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[Dr Shastri-Hurst]

That was a lawyer’s promise; the Minister can read it as he wills.

Does the Minister not think that having a definition of due regard in the Bill would assist the courts in interpreting its application in cases where a public body’s decision is challenged by a member of the armed forces community?

[Al Carns]

When it comes to the legal process, we must ensure that there is the flexibility in local councils to adhere to the covenant in line with the broader issues and capacity that they may have to deal with. Some council areas have a huge number of veterans, and others have very few. Many councils, including mine in Birmingham, have a huge housing problem. Should we prioritise a single mum with a child, or a veteran? If we made that too explicit, we would skew how local councils view veterans and the armed forces as a whole. That is quite dangerous.

[Sarah Bool]

The Minister talks about the definition being narrow, but it would actually be quite broad. The amendment says that

“‘due regard’ means that specified bodies should think about and place an appropriate amount of weight on the principles of the Armed Forces Covenant when they consider all the key factors”.

That definition sets out a framework, but it is not so narrow and specified as to be problematic. On the Minister’s point, we already have problems enforcing the covenant across three areas; now we are going to 12. Even the armed forces personnel I have been speaking to have said that they have severe concerns about that. Local councils also raised that issue in the evidence sessions. While the Bill is very well intentioned, I worry that we are setting up councils to struggle, and that the postcode lottery will get even worse.

[Al Carns]

I disagree—the postcode lottery will get better and start to standardise over time. There is a multitude of problems with the covenant that the Bill will try to solve, one of which is education, and communication to our own armed forces personnel about what it is and what it is not. That is a problem for the Ministry of Defence, which we are taking forward.

A definition of due regard in the Bill risks being overly narrow and could unintentionally limit how bodies apply it in practice. I talked in my letter about flexibility, which is critical. Due regard is about informed decision making. It may involve training staff and putting mechanisms in place to ensure that decision making includes concise analysis of how decisions might impact members of the armed forces community.

[Rachel Taylor]

The Minister has been extremely generous with his time. I want to come back to this definition and whether it will help us, because what the Minister is saying is that we need to educate, inform and work with the champions in local authorities, rather than set up a system that litigates the meaning of “an appropriate amount of weight”. I fail to see how a definition that talks about an appropriate amount of weight is any more helpful for someone interpreting it than the phrase “due regard”, which, from a lot of evidence, is well understood by most of the people delivering on the armed forces covenant.

[Al Carns]

The public sector equality duty has been in force for 15 years and its duty of due regard is working well; we seek to replicate that as we move forward. From my perspective, the amendment risks constraining rather than strengthening that approach. As I have said many times, this is a step in the right direction. It broadens the policy areas covered by the covenant, which is a fantastic step and should be seen very positively across the armed forces, their families, our veteran community and the bereaved.

I thank the hon. Members for North Devon and for Tunbridge Wells for amendment 5, which proposes a statutory requirement for the Secretary of State to

“prepare and publish a national protocol for consistent access to public services”

for personnel and their families. While I recognise the importance of consistent and reliable access to public services for the armed forces community, again I respectfully cannot accept the amendment. A national protocol setting out standardised procedures and expectations could create a minimal level of requirement that organisations might seek to meet without going any further. It therefore risks unintentionally limiting the steps taken by those organisations to support the armed forces.

[Ian Roome]

Will the Minister outline what the minimum requirement is currently?

[Al Carns]

The minimum requirement at the moment is to stay in line with the covenant principles. That needs to be balanced with the broader local issues that each local authority is facing. That will never be standardised because our local communities are different, from Cornwall to the north-east, Scotland and Northern Ireland. This is the harsh truth of the postcode lottery: the covenant will broaden out to a variety of policy areas but the way to solve its implementation is through communication and education, rather than tying ourselves up in bureaucracy and legislation.

[Ian Roome]

We heard in the Defence Committee that a lot of people currently serving in the armed forces have never even heard of the armed forces covenant; they do not know what it is. We are discussing how to educate the public, but a lot of people serving have never heard of the armed forces covenant. Does the Minister think that the education needs to start within the Ministry of Defence on how it handles the armed forces covenant?

[Al Carns]

I completely agree. I served for 24 years, and I did not know what the covenant was until I left and became the Minister for Veterans and People. That is the honest reality. I am sure that others who are serving also do not know what the covenant is. There is an educational requirement within the military, but also—I say this ever so gently—they are so focused on their operational roles and responsibilities that they are not necessarily interested in what comes next, or in understanding the benefits of the covenant to their families and loved ones while they are serving, which is a crying shame. I completely agree that we must make a more conscious effort to ensure that the covenant is understood by those serving, those who have left, and importantly—perhaps in some cases more so than for any other group—the families of veterans or of those serving. There is a huge amount of support out there, but it is often untapped because of the lack of education.

The legal duty is set up so that bodies can make decisions that are right for the local context and circumstances, including the devolved Governments. I would argue that a one-size-fits-all approach could inadvertently hinder tailored solutions that best meet the needs of armed forces personnel and their families. Instead, the covenant duty is supported by robust statutory guidance that acts as a clear point of reference for public bodies. Therefore, further expectations are unnecessary. This guidance ensures that the needs of the armed forces community are properly considered, while allowing for local discretion and responsiveness. Furthermore, transparency and accountability are maintained through the armed forces covenant annual report, which monitors progress and highlights areas for improvement.

In summary, mandating a national protocol risks imposing unnecessary rigidity and could limit the ability of public bodies to respond effectively to local circumstances—a point that I keep coming back to. We believe the current approach strikes the right balance between consistency, flexibility and accountability. I hope that reassures hon. Members, and I ask them not to press amendments 8 and 5.

[David Reed]

Given the strength of the argument this morning, I would like to test the will of the Committee and press amendment 8 to a vote.

Question put, That the amendment be made.

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[Mr Francois]

I did not want to push my luck, but briefly, amendment 12 is similar in spirit and relates to portability and adoption. In this instance, I want to raise a specific case of two serving officers. They asked not to be identified, but perhaps the Minister will take my word that it is a genuine case; if he wants me to provide the details privately afterwards, I am happy to do so.

This married couple, both serving majors based at Shrivenham, have been looking to adopt. They are both due to be posted to PJHQ—permanent joint headquarters —in Northwood at the conclusion of their course, in under six months. They reached out to their future local authority to start the adoption process, but they were told that they could not start the process unless they had been living in that local authority area for at least a year. Also, they would have to commit to staying in the new local authority area for a minimum of two to three years after they had adopted—a potential total of more than five years. That is clearly not feasible for a military family, used to two-year posting cycles.

Our amendment 12 would therefore simply give military families the same rights as civilian families, who do not have to move wherever the nation needs them. It is very similar in essence to the point about EHCPs, but representations have been made to me by that family and others, so I undertook to draft a parallel amendment that specifically covers fostering and adoption. I hope the Committee can understand the spirit of what I am trying to achieve. With that, I rest my case.

[Al Carns]

I begin by addressing amendment 10. I thank the right hon. Member for Rayleigh and Wickford for his views on the Bill, and for raising the important issue of continuity of NHS secondary care for armed forces families. Although the amendment is well-intentioned, the Government cannot support it, for a relatively simple reason.

Healthcare, education, adoption and fostering arrangements are devolved matters in Scotland, Wales and Northern Ireland. The amendment risks overstepping devolved powers, and could breach the Sewel convention by imposing UK-wide operational requirements from Westminster, potentially straining relationships within the devolved Governments. It is counterintuitive.

The amendment also raises significant concerns about clinical prioritisation and patient safety. Requiring patients to retain waiting-list positions regardless of clinical urgency risks distorting NHS prioritisation principles, which are based on clinical need, ensuring fairness and safety. Similarly, transferring care without appropriate referral processes could undermine clinical governance, particularly given variations in treatment pathways and IT systems across NHS regions. For a long time, we have known that that creates a set of complexities that is difficult to navigate.

The armed forces covenant already provides a strong, flexible framework for addressing those challenges. The NHS has embedded the covenant principles into its constitution. It delivers bespoke pathways for the armed forces community, such as Op Restore and Op Courage, and it has a central armed forces commissioning team, which works to retain NHS waiting-list positions where clinically appropriate. I have met them, and they are exceptionally proficient at what they do.

In addition, existing programmes and ongoing electronic record integration already address many of the challenges associated with frequent moves and continuity of care, without the need for additional statutory requirements. A clear example of that collaborative approach is the work that is under way with the devolved Administrations. Wales and Scotland have today confirmed that following the cross-border work that has been led by the Government, they are actively considering updating their policies to better reflect cross-border arrangements and the maintenance of waiting times.

The current approach is based on close co-operation between the MOD, NHS, devolved Governments and local health bodies, supported by the armed forces covenant duty, rather than by rigid primary legislation. That allows for locally tailored solutions that respect clinical priorities and patient safety and avoid unintended consequences, such as disruption and delay. Extensive consultation and co-operation with devolved Administrations and stakeholders is essential to maintaining effective healthcare provision, and that could be undermined by prescriptive regulation and unrealistic deadlines. The objectives of the amendment are therefore largely met through existing statutory guidance and NHS policies, which provide a more flexible and effective framework for supporting armed forces families.

Generally, the difficulties and complexity of triaging patients across devolved Governments, different NHS trusts and secondary care are not lost on me. Separately from discussing the amendment, I would welcome a discussion with the Minister for Veterans and People about how we can continue to improve the existing process. I understand the positive and forward-looking intent behind the amendment.

Amendment 11 seeks to mandate the transfer of special educational needs plans between the devolved Governments. While well-meaning, that approach is unlikely to work in practice. Each nation operates a distinct statutory system for identifying need, assessing children and delivering support. Imposing a legal requirement for portability across those frameworks risks creating delay, duplication and additional bureaucracy for some families.

The more effective route is continued joint working with bodies in scope, building on the existing protections that are already provided by the covenant. The duty requires public bodies to consider the specific impacts of service mobility, including for children with SEND, and to ensure that support remains responsive as families move.

The Government are already taking significant steps in this space. The Department for Education is consulting on SEND reforms that explicitly recognise the challenges faced by service children. A central part of this work is developing digital, streamlined plans that can be easily transferred, reducing delays during moves.

In England, local authorities already have a statutory duty to manage and transfer education, health and care plans when a child moves between areas. The Ministry of Defence has been fully engaged with the Department for Education’s consultation on SEND reform, highlighting the importance of minimising disruption to service personnel and families and ensuring quicker access to support in new locations. Reforms under consideration by this Government include digital EHCPs and individual support plans, which go a long way towards sorting out some of the bureaucracy, and are designed to support smoother transitions for highly mobile children. The MOD is also working with the Department for Education on the Best Start in Life programme and family hubs, providing integrated, accessible support from pregnancy onwards. Guidance to help the hubs to support service families effectively is expected this spring.

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[Mr Francois]

I am not quite convinced by the Minister’s argument. I understand what he is saying, but if Corporal Tommy Atkins, his wife and their special needs child in Wiltshire are posted to Edinburgh castle, Fort George, Leuchars or wherever in Scotland, that is not their fault. The amendment would help to reduce bureaucracy by requiring the receiving LEA to take the EHCP. The fact that it was created in England does not mean that it should not be valid in Scotland. The currency we use is valid in both nations, so I am not quite convinced by the Minister’s argument—and either way, it does not help the service personnel or the child much, does it?

[Al Carns]

We continue to discuss with Scotland, Northern Ireland and Wales how best to enhance the cross-pollination of EHCPs and individual support plans. We will continue to do so and, in particular, will try to speed up the transition and make it smoother for highly mobile children.

To legislate in the way the shadow Minister suggests, when a White Paper is already out and changes in legislation are coming, could result in the incorrect solution for armed forces families. What I would recommend is a discussion with the Minister for Veterans and People to update the right hon. Member in full and ensure that any ideas or insights that he has are pulled into that work, so that we come up with the best collaborative solution. The Government’s preferred approach is collaboration within existing frameworks, underpinned by the covenant duty, which will deliver the practical benefits without the unintended consequences.

Amendment 12, which seeks to continue adoption and fostering arrangements automatically across local authority boundaries, would raise significant practical difficulties. Each local authority operates with its own procedures, safeguarding requirements and legal frameworks. A single, one-size-fits-all statutory requirement risks creating confusion, administrative burden and potential delays, which is precisely the kind of disruption that the amendment seeks to avoid.

The Ministry of Defence already provides comprehensive guidance for service families through the adoption and fostering defence instruction notice, which embeds the MOD’s role firmly within existing civilian-led systems. These long-standing civilian frameworks already ensure continuity for families when they move. In combination with the strengthened covenant duty, they provide a far more practical and effective approach than the amendment process.

The right hon. Member for Rayleigh and Wickford raised a specific case. I am more than happy to take it offline. If we can help directly where the system has not worked, or help with the process, I will pass it on to the Minister for Veterans and People, and we will get after that problem set.

The covenant’s statutory guidance provides a flexible and practical framework that respects local authority responsibilities while directly addressing the challenges faced by service families. It ensures that individual circumstances can be properly considered without imposing rigid requirements that may not fit every complex case.

For those reasons, the Government consider the amendment unnecessary and duplicative. We remain fully committed to supporting healthcare needs for armed forces families, improving SEN provision and ensuring robust support for those involved in adoption and fostering. We will continue to work collaboratively with delivery partners and improve guidance where needed, rather than impose inflexible statutory mandates that risk unintended consequences. I hope that that provides reassurance. I ask hon. Members not to press amendments 10, 11 or 12.

[Dr Shastri-Hurst]

I am grateful to the Minister for setting out his broad support for the intent of my amendment, if not for its practical workings. I am grateful for the invitation to meet him and his ministerial colleague to see how we can reach a settlement to ensure equality for armed forces personnel on this issue. On the basis of his reassurances, I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn.

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[David Reed]

My hon. Friend makes a very good point. Looking across the Committee, I see Members who have served in local government, some of whom may have had military experience before doing so. They would have been able to apply their experience, and that of their families, to their work as elected councillors. However, that is not standard across the country, which takes us back to my central point: given the financial pressures and other statutory pressures, we can see why, without a requirement for a clear plan, implementation becomes difficult for a local authority that does not have experience.

The lack of comparability limits our ability to identify where approaches are working well and where improvements may be needed. It also makes it harder to share learning among areas. Amendment 13 seeks to address those points in a proportionate and practical way. It would not impose a detailed or overly prescriptive model, as it is not bureaucratic in nature, and it would not remove flexibility from local authorities; authorities that want to do a lot more could do so, which would perhaps be fed back into central Government. Instead, it would establish a clear expectation that each authority take a structured approach to delivering its covenant responsibilities.

It is important to be clear about what the amendment would not do. It would not impose a complex or resource-intensive new burden. Many local authorities are already undertaking elements of this work; the amendment would simply bring that activity into a clearer and more consistent framework. It would require local authorities to produce an armed forces covenant action plan, which I am sure would be developed in conjunction with the Ministry of Defence, bringing together experience from where it is being done well in local government. That plan would set out in clear terms the steps that the authority intends to take to meet its obligations. It would provide a more coherent framework for delivery, bringing together activity that might otherwise be spread across different services.

Importantly, amendment 13 would also require authorities to assess the level and nature of the need within their local armed forces community. This key element would ensure that planning is informed by evidence, rather than assumptions. It would also encourage engagement with those directly affected, including service personnel, veterans and their families, as well as the organisations that support them. In addition, the amendment would require authorities to set out how resources would be allocated to meet that identified need, helping to create a clearer link between assessment and delivery. It would support more transparent decision making and would help to ensure that commitments are reflected in practice.

The requirement to report on progress is another important part of the amendment. It would introduce greater transparency, allowing central Government, local partners and the armed forces community to understand how the covenant is being delivered in particular areas. That transparency would support activity and accountability; allow local authorities to demonstrate the work that they are undertaking, including where progress has been made and where further development is needed; and provide a basis for identifying effective approaches and sharing good practice.

I will wrap up, because I am conscious of time. Amendment 13 is an important amendment. It would give local authorities a framework to work with central Government to carry out their new statutory duties, while managing their workload across competing priorities.

[Al Carns]

Amendment 13 would require local authorities to prepare and publish detailed action plans within six months of the passing of the Act. The Government are fully committed to strengthening the delivery of the covenant at a local level. The Bill represents a significant step forward by placing the duty on an improved statutory footing, extending the policy areas that are in scope from three to 12.

Mandating detailed action plans risks imposing a rigid bureaucratic process that may not reflect the diverse circumstances of local government, geography or the composition of armed forces communities across the country. For example, mandating an action plan for areas with little to no armed forces footprint could divert valuable resources away from practical support and into compliance activity.

Delivery of the covenant at a local level is already supported through established mechanisms, including the Covenant Community Action Group, the annual covenant conference and a dedicated covenant website that promotes good practice, shared learning and engagement across the system, which are areas that the hon. Member for Exmouth and Exeter East mentioned. We are also investing in improved awareness and understanding of the covenant across both the armed forces and service providers, including through the new regional Valour centres and field officers.

Rather than mandating prescriptive local action plans, we are taking a proportionate and flexible approach, supporting bodies in scope with extensive guidance and practical tools aimed at improving outcomes for the armed forces community. My officials are creating a suite of materials for service providers to give clear guidance and practical support. The Valour regional officers will be able to provide tailored advice at a local level up and down the United Kingdom.

[Ian Roome]

When I was a council leader, we signed up to the armed forces covenant scheme, which set some principles for councils. Can the Minister give any indication of how many councils up and down the country have actually signed up to the armed forces covenant scheme?

[Al Carns]

That is a really good question. I will come back to the Committee with the exact detail, but lots of councils have engaged and have gold, silver and bronze standards. Some of them are exceptional. Some of them—this goes back to the point about the postcode lottery—do not necessarily need to sign up, because their community does not have a huge number of veterans or armed forces. I will endeavour to come back to the Committee with the detail.

There is already an established statutory duty to report to Parliament on the delivery of the covenant. There is therefore no need to establish a new reporting mechanism. The hon. Member for Exmouth and Exeter East is welcome to come and have a discussion with the Minister for Veterans and People and me about what that report looks like so that we can move it in the right direction. However, we believe that a proportionate, flexible approach, supported by guidance and ongoing engagement, is the best way to ensure that local authorities deliver meaningful support to the armed forces community without unnecessary administrative burdens.

I hope I have clarified the situation, reassured the Committee and offered up a brief for the Minister for Veterans and People and me on the annual report and what it consists of. I ask the hon. Member for Exmouth and Exeter East to withdraw amendment 13.

[David Reed]

I thank the Minister for his wind-up. In the light of his answer, I beg to ask leave to withdraw the amendment.

Amendment, by leave, withdrawn. 

Ordered, That further consideration be now adjourned. —(Christian Wakeford.)

Defence

Al Carns Excerpts

Tuesday 24th March 2026 Commons Chamber

[The Minister for the Armed Forces (Al Carns)]

I read the motion with a sense not of anger but of disappointment, because at a moment like this, when British armed forces are actively protecting our people and our interests in the middle east, intercepting drones, defending our bases, and preparing for further and potential escalation, I had hoped for a more well thought through and balanced motion to contribute to the debate.

Let me start by paying tribute to those who are serving today, at home and overseas, in the air, on land, at sea, and 24/7 beneath the waves, often in conditions of real danger, doing exactly what the country asks of them. This debate should have been about them. Instead, we have a motion that reads less like a serious contribution to defence policy, and more like an attempt to rewrite the record, and to whitewash what happened over the past 14 years. The House knows the record, and the public know it too. Importantly, the implications of 14 years have an impact on our armed forces, and they are bearing the brunt of it. Opposition Members cannot rewrite it, and they cannot run from it.

Let us be clear about the world we are now operating in. A major land war continues in Europe, where 55,000 drones and missiles have been fired by Russia into Ukraine, and there have been over 100,000 casualties on the Russian side alone—that is more casualties than America took in the entire second world war. Conflict is spreading across the middle east, and 10 countries have been struck by hundreds of ballistic missiles and thousands of drones. Authoritarian states are becoming more aggressive, and the way wars are fought is changing at pace. This is the most volatile security environment for a generation. This is not a moment for gestures or political point scoring; it is a moment for a serious decision.

[James Cartlidge]

When is the Minister going to publish the defence investment plan?

[Al Carns]

We will publish the defence investment plan as soon as is feasible. The hon. Gentleman will not find anyone who wants more than me more defence spending at a faster rate, but this is a moment for serious decisions to be taken in the national interest. We need to get ourselves back on track. There has been a whole plethora of funding decisions over the last 14 years, which I lived through, and I am sure some hon. and gallant Members present lived through, that in the current environment are no longer fit for purpose.

[Dame Meg Hillier]

I am sure my hon. Friend will remember that at one point when he was serving our country the last Government put an extra £4.5 billion into defence spending. However, time after time, every witness that came in front of the Public Accounts Committee told us how it was not solving their funding problem and was overspent many times. Does my hon. Friend agree that we need rigour in spending that actually delivers the kit to our men and women on the ground, in the air and at sea who are serving our country?

[Al Carns]

I thank my hon. Friend for her contribution. We have a large defence budget, and in the past it has not been spent effectively.

I think we can collectively agree, on both sides of the House, that huge procurement mistakes have been made in the past that have resulted in either the wrong equipment or the money going the wrong way. We therefore need to take our time to get this right. As Conservative Members will know, the other reason we need to take our time to get this right is that conflict is changing; in some cases, it overtakes some of the capability that was ordered years ago.

[Dr Luke Evans (Hinckley and Bosworth) (Con)]

I thoroughly enjoyed the Minister’s interview on Times Radio, in which he talked about his role in defence and his history and was asked about his leadership. I will not ask him about his leadership ambitions, but I would like to know where the DIP is stuck. Which Minister is it stuck with? Is it stuck with the Chancellor, or does the Ministry of Defence itself have a problem? I would be grateful if the Minister could elucidate a little.

[Al Carns]

Defence is very clear about what it requires. We are working collectively across Government to come to a joint decision on where that spending portfolio will fall.

There are points in this motion that are obvious. The world is more dangerous, and we are investing more in defence, but recognising that is the easy part; the real question is whether we are prepared to make the decisions required to deal with it. Defence is not a shopping list, and it must not be treated as such. It is not about picking a number of troops, as mentioned in the motion, and it is not about shifting money around on paper. It is about building a force that works—one that is properly equipped with the correct equipment, properly supported and able to operate alongside our allies. In my time in uniform and since coming into this role, I have spent time in multiple different operational theatres, and I know that this is not about the size of the armed forces; it is about the plan. This is about the purpose, the equipment and how people will be integrated. Simply stating that we should add 20,000 extra troops to the Army, with no clear or concise understanding of how they will be used, is not the way to go about business.

[Sir Iain Duncan Smith (Chingford and Woodford Green) (Con)]

The Minister is making a powerful case. A man with his record and history coming to this place is to be congratulated, and I am enthused to see him in his place today, as I think we all are.

We have talked about the non-appearance of the defence investment plan, but there is another review that has not appeared that has even more impact: the review on China and the threat that it poses to us. That was promised again by the Government. I raise this issue because under Conservative and Labour Governments, I have gone on constantly about the growing threat, and we have not faced up to it. China is critical to this matter; if we watch the tankers going into the strait of Hormuz and out again without any problems, we begin to realise the incredible links that China has with Iran, Russia and North Korea. Is the Ministry of Defence demanding that that review is handed to it and published, or has it forgotten about it?

[Al Carns]

I thank the right hon. Member for a very balanced contribution, as always. On the specific issue, I will come back to you and write to you on where we are and how the review is moving forward.

[Madam Deputy Speaker (Ms Nusrat Ghani)]

Order. I do not require any correspondence from the Minister, although it is always welcome.

[Al Carns]

Let me go back to the point about the 20,000 troops. The motion calls for more troops, but it says nothing about how they would be recruited, trained, housed or equipped. It does not even begin to answer the most basic questions about what those troops would actually be used for. It proposes funding defence through unrelated policy changes, as if national security can be managed like a spreadsheet, and it pulls together issues that do not form a coherent strategy. That is not a defence plan—it is a list.

What is most revealing is the position of the Conservative party. One week, the Leader of the Opposition says that we should send jets “to the source” in Iran, and that we are in this war

“whether we like it or not”.

The following week, she says,

“I never said we should join”,

and when the shadow Defence Secretary, the hon. Member for South Suffolk (James Cartlidge), is asked for a clear position, he says that there are no easy answers. Those are their words, and they tell us everything. They are armchair generals rushing to judgment one week and retreating from it the next—rushing towards escalation, then stepping back from it the next. That is not leadership, it is not judgment, and it is certainly not how to make decisions about putting British service personnel in harm’s way. Those decisions demand seriousness, not commentary or hyperbole from the sidelines.

[Sir Bernard Jenkin]

I share the respect of my right hon. Friend the Member for Chingford and Woodford Green (Sir Iain Duncan Smith) for the Minister and his experience, but the two statements from the Leader of the Opposition that he read out are not incompatible. The fact is that we would not have joined in the military action that the Americans and the Israelis initiated, but it is undeniable that the war has now come to us. What does he think is happening in London? Did he not hear the deputy chief of the Metropolitan police on the radio this morning talking about the rising Iranian threat that is now domestic in our own capital? This war has come to us. As Leon Trotsky said, Madam Deputy Speaker,

“You may not be interested in war, but war is interested in you.”

[Al Carns]

I hope war is not interested in you personally, Madam Deputy Speaker.

The Iranian threat—Hezbollah, Hamas, lethal aid in Iraq and Afghanistan, and supporting terrorist organisations around the world—is not lost on me at all. However, I will be really clear: I have served in every staff college in the career structure of the British military, and I have always been taught that there are three key things. First, you have to have a legal mandate; secondly, you have to have a plan; and thirdly, you have to think to the end. If the Opposition think that we should be involved in the conflict, then by all means they should say so, but if they do not, they should be balanced.

[Several hon. Members rose—]

[Al Carns]

I will give way in two seconds. What I will say is that a vision without a plan is a dream, and I am concerned that if we had followed the Opposition’s direction, we would have ended up in a nightmare.

[James Cartlidge]

I believe that the Minister was giving way to me, and I am grateful to him for doing so.

To be clear, the Prime Minister and the Conservative party now have the same position. The Prime Minister would grant the US use of our bases—its bombers have been taking off from our bases. That was our position. The difference is that we have maintained that position from the beginning, 100% consistently, whereas the Prime Minister has U-turned repeatedly. We are the ones who have been consistent; Labour has been blowing all over the place.

[Al Carns]

The Opposition would have dragged us into this conflict quicker than we could possibly have imagined. We have made the difficult but correct decision to remain in a defensive posture. That is the right decision.

Let me deal directly with the record that we inherited. The shadow Defence Secretary himself admitted that defence spending reduced every year because, in his words, people thought we had peace. That assumption has left this country exposed. Ground-based air defence investment, which is now protecting our forces in the middle east with our allies and partners, was cut by around 70% in the Conservatives’ final year. Frigates and destroyers were reduced by a quarter, and minehunters were cut by more than a half. I was the chief of staff of our carrier strike force, which validates our minehunting capability that goes to the middle east. Interestingly, in the 2021 integrated review, the out of service date for minehunters was brought forward to 2026—good decision! Troop numbers were left at their lowest level in modern history. That is the reality, that is the legacy, and that is what we are trying to fix, and we are fixing it.

[Several hon. Members rose—]

[Al Carns]

I will continue and then give way in a minute.

We have taken more action in the past 20 months than the Conservatives managed in the 14 years before that, with more than 1,200 major defence contracts, 86% of which have been awarded to British-based businesses. The Conservatives argued that we should spend 2.5% of GDP on defence by 2030; we are delivering it by 2027.

[Sir Iain Duncan Smith]

rose—

[Al Carns]

I will give way to the right hon. Gentleman.

[Madam Deputy Speaker (Ms Nusrat Ghani)]

Order. Let me just say to the Minister: no more “yous”.

[Sir Iain Duncan Smith]

I sense that this little fracas is something of a tautological tap dance. We are at war, and I do not think Iran cares whether we made the strike on it or not, because it still sees us as a target. We accept that, and that is the danger that our troops are in.

However, I want to ask the Minister about something else. I want to ask again the question that I asked the Defence Secretary yesterday. Is it not the reality that we are at war, and that Iran is an enemy of ours and has been for a considerable time? It has been carrying out operations here. It has been stirring up Islamic extremism, and we are seeing targeted antisemitism and hate marches. That is all part of Iran’s plan. Is it not time that the Government finally said “Enough is enough”, proscribed the Islamic Revolutionary Guard Corps and arrested the hell out of these people who are causing mayhem on our streets?

[Al Carns]

I thank the right hon. Member for his comments. I will raise them with the Security Minister, and push exceptionally hard.

The motion suggests that we are failing to learn lessons from Ukraine. Let me make it absolutely clear that these are two separate issues. This Government are leading. We committed £4.5 billion in military support last year, building on £3 billion annually. We have co-led the Ukraine Defence Contact Group, which has helped to secure over $45 billion of investment, and in February alone a further $35 billion was raised. However, we have not just provided funds; we have adapted.

At this point, I want to recall my own history. I left the military in 2024. I left because the Government and the military collectively were not learning the lessons from Ukraine. That is the very reason I left to come to this place. Labour was not in government at the time, and we were already years into the conflict. Opposition Members will recognise this as being one of my hobby horses since I have been in the Ministry of Defence.

There has been a tenfold increase in drone delivery, with a target of 100,000 this year. A new cyber and electromagnetic force has been built on lessons from the battlefield in Ukraine, and £4 billion has been committed to autonomous systems over time. We have seen Project Asgard, a hybrid Navy, a defence uncrewed centre of excellence in the SDR, a cultural change within the Army, Navy and Air Force in respect of uncrewed systems, an increase in uncrewed systems training, and cultural development in phase 1 and phase 2 training. I am therefore confused as to how no lessons are being learned. We must go faster, and we are pushing as hard as we can, but I want to be very clear about this, and I will bring you back to the first point. I left the military because your Government—[Interruption.] I left the military because the Conservative Government were not learning the lessons effectively from Ukraine.

Let me turn to the topic of Northern Ireland and morale. I do not recognise the argument advanced in the motion.

[Dr Luke Evans]

Will the Minister give way?

[Al Carns]

I will give way one more time.

[Dr Evans]

The Minister gave us an extensive list of some of the spending commitments, but will he set out the exact spending commitments, and explain about the 1.5% required by NATO, which is not included in the defence spending? It was a great big list, but I have not heard the other side of it, and I should be grateful if he could provide those categories.

[Al Carns]

There are clear NATO defence spending targets. That is written down, and will be produced in due course.

[Matt Western]

My hon. Friend is making an excellent speech. The 1.5% is, of course, about security-related initiatives, and it is important that we get to those soon. As for the wider defence investment plan, I would just say a word of caution: we must get it absolutely right. I have been trying to work with colleagues on both sides of the House since the start of the Ajax project in 2016 to find a resolution to some of these problems. We must take great care and be very clear-eyed about the procurement strategy that we follow.

[Al Carns]

I completely agree. We have to get the defence investment plan right, and we have to ensure that it balances all the different problems that we face, whether they relate to air defence in the middle east and the lessons identified there or, indeed, the lessons identified in Ukraine.

[Jamie Stone (Caithness, Sutherland and Easter Ross) (LD)]

One thing that we need to get right, and which we got wrong in the past, is this. When I was first elected in 2017, there were not Russian spy ships off the coast of my constituency, but now there are, and we detected a submarine before Christmas. I raised this issue with the Leader of the House last week and have been granted a ministerial meeting. Does the Minister agree that there is a Russian threat on our doorstep to vital strategic resources, including pipelines, interconnectors, our offshore wind, and our oil and gas? Look at what happened in the Baltic.

[Al Carns]

We often talk about not having a frontline with Russia, but the reality is that we do. It is in the north Atlantic and in maritime, where we are facing off against Russian capability on a daily basis. We have seen a 30% increase in surface and subsurface capability, which speaks to the complexity of the defence investment plan and to the requirement to balance our assets, given the crisis in the middle east and, of course, the continual and persistent threat from the Russians in the north.

[Emily Darlington (Milton Keynes Central) (Lab)]

I would like to take the gallant Minister back to his comments about when and why Britain should go to war. It is clear that the Conservatives have forgotten that the Leader of the Opposition made her comments during the offensive action, not the defensive action. Is the Minister concerned that we have a Leader of the Opposition and a leader of the Reform party who, when Donald Trump says, “Jump!”, say, “How high?”

[Al Carns]

I thank my hon. Friend for her contribution. We need three levels of understanding before ever putting someone in harm’s way: a legal mandate, a plan and think-through to the finish.

[Sir Julian Lewis]

Will the Minister give way?

[Al Carns]

I am going to make a bit of ground, and then I will come back to the right hon. Gentleman in due course.

Morale is built on leadership, clarity and trust, and the facts matter. Recruitment is up by 13%, and outflow is down by 8%. For the first time in over a decade, more people are joining the armed forces than leaving—that is the reality. Let us be clear about our responsibility to our veterans: there is no equivalence between those who served to protect life and those who sought to destroy it. This Government are putting in place proper protections for veterans following the legal uncertainty that was left behind, and we are backing that with action.

Actions talks. Op Valour is putting £50 million into our veterans programme—more than ever before. Op Ascend is helping veterans into meaningful employment, with funding to tackle veterans’ homelessness and to deliver real improvements in housing and pay. We have delivered the largest pay rise in two decades, including a 35% increase for new recruits. We have bought back 36,000 military homes and are investing £9 billion to improve them. We have funded 30 hours of free childcare for under-threes across Scotland, Wales and Northern Ireland, saving forces families up to £6,000 a year. That is the difference that practical support makes, and it is why we are seeing a change in morale. If the Conservatives want a debate about who is delivering for our service personnel, I am more than happy to stand on our record and to compare theirs with ours.

[Sir Iain Duncan Smith]

Will the Minister give way?

[Al Carns]

I am going to a make a bit of ground, and then I will come back to the right hon. Gentleman.

We come to perhaps the most revealing part of the motion: the suggestion that defence should be funded through changes to the two-child benefit cap. Let me say this plainly: you do not strengthen national security by setting it against support for working families, you do not ask the country to choose between security abroad and stability at home, and you do not build credible defence policy on that basis. It is the job of the Government to make life easier for families, not harder.

I will say something else. I grew up in a family where decisions about money took place, and I see the same pressures on the communities that I now represent. Security is not just about what happens overseas; it is about whether families feel that they can cope, whether they feel stable and whether they feel that the system is working for them. The Conservatives’ motion is not a serious way to approach defence funding, because the strength of a country rests both on armed forces that can deter and defend, and on a society at home that is stable, resilient and confident. Pitting one against the other does not strengthen either; it weakens both.

This Government are taking a different approach. We are making decisions in the national interest, and we will not be pushed into those decisions by noise or pressure—we will take them carefully and responsibly. We are increasing defence spending, strengthening our forces—whether it be recruitment or outflow, or the morale component as a whole—and ensuring that our forces are ready to face threats both now and in the future. We will publish our defence investment plan, but we will not rush it for the sake of a headline. As has been demonstrated over the past 14 years, a plan that is not properly funded or deliverable does not strengthen our security, but weakens it.

[Sir Edward Leigh (Gainsborough) (Con)]

I have listened carefully to this debate, which has been an interesting knockabout. On the question of what we are achieving, I refer the Minister back to the comments of the hon. Member for Hackney South and Shoreditch (Dame Meg Hillier), who was the Chair of the Public Accounts Committee when the Conservatives were in office, on the numerous wastage scandals in defence procurement. I was Chairman of the Public Accounts Committee during the Blair years; I go back so far that I remember Lord Levene being appointed by Michael Heseltine to get this right. We are never going to get anywhere until we stop the scandal of defence procurement. We have the sixth biggest defence budget in the world, but we do not get bang for our buck. I do not have any instant solutions, but is this not something we can all unite around? Can we not just insist that we stop these huge projects, which are not fit for modern warfare, and go back to actually being able to fight a war?

[Madam Deputy Speaker]

Order. Before the Minister responds, I note that many colleagues wish to contribute; no doubt he is coming close to his conclusion.

[Al Carns]

I thank the right hon. Gentleman for his contribution. We are moving in that direction; the national armaments director is providing professional oversight now and is looking at reviewing the system. I think we can all collectively agree on whether we have got value for money over the past 14 to 20 years. We need to make sure that we do get value for money in the future; if we had in the past, we would have a properly equipped armed forces at the present moment.

In closing, this motion asks the House to express regret about a Government who are delivering the largest increase in defence spending, leading on Ukraine, investing in our veterans and reversing the decline in recruitment and morale that we inherited. At a time when our armed forces are deployed to protect British lives, the Opposition offer a motion built on a record they would rather forget and a set of arguments that do not meet the test of seriousness. This is not a moment for point scoring but a time for leadership, and this Government are providing it. I urge the House to reject the motion.

[Madam Deputy Speaker (Ms Nusrat Ghani)]

I call the Liberal Democrat spokesperson.

--- Later in debate ---

[James MacCleary]

I was actually going to talk about something completely different, but the question is a good one. I find it very disappointing that the Conservatives have so little faith in the ingenuity and industry of this country to produce its own independent deterrent. This is a multi-decade project. We understand that the Conservatives do not grasp fiscal responsibility—we saw that from the state they left our economy in—but a multi-decade project requires a serious commitment. In the short term, we should be looking to bring servicing and maintenance of the missiles into the UK to reduce our reliance on others. [Interruption.] Hon. Members are asking where. We will develop the capability. I understand that the Conservatives do not like investing in Britain’s skills, but we can develop the skills. I have complete confidence that we can do so.

The defining challenge for our nation is how to meet the unprecedented threat posed by an imperial Kremlin and an unreliable White House. It requires thinking about defence in a new way, because to stand up for values that we cherish, we must be strong enough to defend them. That means, at its core, rearming Britain. Meeting this challenge requires more than military hardware. It means a whole-of-society approach to national resilience. It means energy security, investing in renewables so that we are not dependent on fossil fuels from the very dictators we are standing up to. The Conservatives’ plan to raid investment in renewable energy investment undermines one element of UK security for another—it is robbing Peter to pay Paul. It means food security too. Biodiversity underpins our ability to feed ourselves. Declining ecosystems mean declining food production, and that is a national security risk that we ignore at our peril.

It also means the defence readiness Bill, which is currently held up by the Government’s own delays on the defence investment plan. We cannot afford this drift; there can be no delay in beginning that work. That is why the Liberal Democrats have argued that the defence investment plan must be accompanied by an immediate cash injection to support vital capital investment in our forces. We have detailed what this programme could look like, raising £20 billion in defence bonds over two years. [Hon. Members: “Yay!”] I am pleased that Conservative Members are so excited about the bonds idea—perhaps they have come around to it at last. [Interruption.]

It would be a fixed-term issuance, legally hypothecated to capital defence spending. The programme would be a secure way for people to invest their savings while helping to strengthen Britain’s national defence.

[Al Carns]

I thank the hon. Member for allowing the intervention. I cannot describe the laughing and bickering that is going on right now, when we have troops in harm’s way. There has to be a level of seriousness, whether we are discussing the nuclear deterrent or investment opportunities and mistakes made. We have troops in harm’s way, so I ask Members to provide an element of seriousness to the debate.

[James MacCleary]

I thank the Minister for his intervention.

It would be a chance to back our armed forces, our security and Britain. We know that properly funding our nation’s security is critical to meeting the threats of this new and unprecedented era, and we also need to ensure that defence funding can generate wider growth in our economy. That is exactly what those bonds would deliver, supporting jobs and an expansion of our defence industrial base across Britain.

Do not just take my word for it; we need to listen to the voice of British industry, academics and financial institutions. In the Institute for Fiscal Studies’ September 2025 green budget, it was clear that borrowing for defence could lead to higher growth, particularly when that additional defence spending is investment heavy. We also need to recognise that the long-term regeneration of our armed forces will require even higher and sustained increases to defence spending—up to 3%. The Liberal Democrats have called on the Government to commit to cross-party talks to agree a shared approach to achieve that. I hope that the Minister will be open-minded about those talks.

We must look to secure and expand the UK’s involvement with financial instruments that offer cheap, new access to defence finance. That is why the Government must re-examine the negotiations to enter the Security Action for Europe fund. I hope that the Prime Minister will take a direct role in getting British access to that. Will the Minister update us on negotiations for access to that fund?

Oral Answers to Questions

Al Carns Excerpts

Monday 16th March 2026 Commons Chamber

[Patrick Hurley (Southport) (Lab)]

4. What steps he is taking to increase air defence support to Ukraine.

[The Minister for the Armed Forces (Al Carns)]

Alongside the conflict in the middle east, the war in Ukraine continues to rage. Russia is taking more than 1,000 casualties a day, and has launched more than 55,000 missile and drone attacks against Ukraine in just the last year. At the latest meeting of the Ukraine defence contact group, the Defence Secretary announced a new air defence package, worth more than £500 million, of missiles and systems to protect Ukraine from Russian attacks. In the coming months, the UK will deliver an additional 1,200 air defence missiles and 200,000 rounds of artillery through the air defence consortium.

[Patrick Hurley]

The Prime Minister’s leadership on Ukraine has been exemplary. Does the Minister agree that that leadership has helped to secure US commitments on security for Ukraine, and that this demonstrates the importance of the US-UK defence relationship to international security?

[Al Carns]

The UK-US relationship remains stalwart. Our collective leadership on Ukraine has been second to none; the Defence Secretary’s leadership of the Ukraine defence contact group has stimulated billions of pounds of investment; and through what we are doing in Ukraine, we are delivering in support of not just UK security, but European security.

[Sir Iain Duncan Smith (Chingford and Woodford Green) (Con)]

In the last few weeks, the Prime Minister has been very clear about what he considers our role to be, under international law, if we believe that allies are being attacked. Does he see Ukraine as having exactly the same status as an ally? Does he believe that we are, of necessity, directly involved, given that it is under attack?

[Al Carns]

As the right hon. Member will know, we continue to support Ukraine with almost as much capability as we can. Through leadership of the Ukraine defence contact group, through capability and through industrial working groups backed by the United Kingdom and across Europe, we will continue to support Ukraine, and do everything possible to ensure the sanctity of Ukrainian sovereignty.

[Luke Murphy (Basingstoke) (Lab)]

5. What steps he is taking to increase pay for military personnel.

--- Later in debate ---

[The Minister for the Armed Forces (Al Carns)]

Let me be really clear: the UK’s priority is supporting British nationals and our partners in accordance with international law. The Prime Minister has made clear that any UK action must always have a legal basis. On 7 March, the UK notified the UN Security Council of the relevant actions, including our defensive counter-air operations, taken under article 51 of the United Nations charter. Military credibility and legal credibility go hand inusb hand.

[Ayoub Khan]

When nations commit war crimes, the UN charter makes it plain that other nations must not provide any support or assistance. Trump and Netanyahu started this illegal war and, in welcoming US aircraft on British bases so that they can be loaded with 2,000 lb bombs, the UK is clearly aiding and abetting that, in breach of international law. Right now, we are helping to escalate this conflict, which is bringing us to the brink of global recession. That is why the British public do not support our involvement in this war. Would the Defence Secretary like to explain why they are wrong?

[Al Carns]

Let me talk a little bit about crimes: support to Hamas; support to Hezbollah; support to the Houthis; support to various armed groups with lethal aid that has been killing British forces for 20 years. Are we going to apologise for protecting UK nationals? Absolutely not.

[Yuan Yang (Earley and Woodley) (Lab)]

Last month, satellite imagery of the Gaza war cemetery showed that Israeli forces had destroyed more than 100 allied graves using heavy machinery. This is a Commonwealth War Graves Commission site, and these are graves of British and allied personnel who served in the first and second world wars and made the ultimate sacrifice. Has my hon. Friend raised concerns with his Israeli counterpart? What steps will he take to prevent future destruction of Commonwealth war graves?

[Al Carns]

I thank my hon. Friend for her really important question. I am absolutely dismayed by the reports of damage to the cemetery by both Israeli operations and Hamas fighters. Brave servicemen laid to rest overseas should not in any way, shape or form have their graves defiled; neither should the courageous men and women who tend to the graves have to experience that. Together with our international partners, we have raised our concerns with Israeli authorities. We will continue to support the commission as it looks to assess and repair the damage when it is safe to do so.

[Monica Harding (Esher and Walton) (LD)]

11. What assessment he has made of the potential implications for his policies of the US plan for sustainable peace in Iran.

[The Minister for the Armed Forces (Al Carns)]

We are studying developments very carefully and remain in close contact with the United States and other allies. The UK’s position is clear: the best way forward for the region and the world is a negotiated settlement with Iran when it has given up its nuclear ambitions. Recent events have also underlined the importance of resilience, strong alliances and credible military capability in a world where regional crisis can develop quickly. A sustainable peace must reduce the risk of conflict, not simply pause it.

[Monica Harding]

My constituents are deeply concerned about further escalation in the middle east and the UK being pulled further into a conflict with no clear objective. They are also concerned about the impact on their energy bills, inflation and interest rates. President Trump is attempting to pull us into his war of choice, urging UK deployments to the strait of Hormuz and asserting that NATO’s future depends on allies committing to deploying assets. Will the Minister rule out the deployment of military assets to the strait of Hormuz, and will he do so as strongly as our German and Spanish allies have done? Does he agree that de-escalation is key, as any further military action threatens a sustainable peace? Does he also agree that a better way forward would be for the UK, as penholder on the UN Security Council, to present an emergency resolution to get the strait of Hormuz open through UN channels?

[Al Carns]

I have attended every staff college in the military—initial staff college, advanced command staff college and higher command staff college—and they all say two things: “First, you must have a legal mandate before putting people in harm’s way; secondly, you must think through to the end.” We will continue to work in a comprehensive and calm manner with our allies and partners to ensure that we can come up with a solution to the strait of Hormuz, and we will not rule anything out, because we cannot guarantee where this war is going to go.

[Chris Vince (Harlow) (Lab/Co-op)]

Residents in my constituency are rightly worried about the ongoing events in the middle east, so will the Minister reaffirm for the avoidance of any doubt that this Government’s first priority is to keep their citizens safe, and that our decisions thus far and moving forward have been and will continue to be based on the collective self-defence of long-standing allies and on protecting British lives?

[Al Carns]

As we speak, there will most likely be fast jets flying in the middle east or around Cyprus, tracking, identifying and engaging with drones that pose a direct threat to our British interests, our allies and partners and, potentially, British citizens. I take my hat off to them, and I fully support them. We will maintain that defensive posture for as long as this conflict continues.

[Kim Johnson (Liverpool Riverside) (Lab)]

12. What steps he is taking to improve recruitment and retention of merchant seafarers in the Royal Fleet Auxiliary.

--- Later in debate ---

[The Minister for the Armed Forces (Al Carns)]

Strengthening defence relationships with our allies is a central priority for the Government. We do that through joint operations, exercises, intelligence co-operation, deeper industrial partnerships and close planning with NATO and joint expeditionary force allies and other key partners. We have recently signed landmark defence agreements with Norway, Germany and France and have forged closer capability partnerships, including with Norway on Type 26 frigates and Turkey with Typhoon. The upcoming defence diplomacy strategy will help further enhance our international relationships.

[Gordon McKee]

The war in Ukraine has shown that rapid innovation cycles are critical to success. Minister Fedorov and others in Ukraine have helped to build a defence technology ecosystem that connects start-ups, engineers and units on the frontline, even allowing some of those units to operate quasi-independently to test out new technologies. Given that the strategic defence review recommended that the UK learn from its allies, how is the Minister using the defence relationship with Ukraine not just to support the Ukrainians in their fight but to learn from them so that we can strengthen the UK’s armed forces?

[Al Carns]

Since arriving in this House, I have been droning on about drones—it is one of the reasons I came into politics. There are three key lessons that we need to learn. The first is to adapt a process to give us a high-low mix of fifth-generation capability supported by cheap mass. That mass must be dumb hardware with sophisticated software. Finally, the software must be integrated across all domains and be driven by data and artificial intelligence. We will be able to achieve that only with a closer public-private partnership as we move forward.

[Michelle Scrogham]

The Government understand that “made in Britain” means good quality jobs for British people. Exporting those goods to international allies not only equips our allies with the best of British workmanship but puts billions of pounds into the UK economy. Barrow-in-Furness will build our AUKUS submarines, but what work is the Minister doing to ensure that UK small and medium-sized enterprises are well placed to benefit from AUKUS pillar 2 projects?

[Al Carns]

The first hundred pages or so of the SDR are about better industrial collaboration between the MOD and our industries. Work on AUKUS will create over 7,000 additional jobs at UK sites and across the supply chain, with over 21,000 working on the programme at its peak. We must do more to work with SMEs. The annual innovation challenge, for example, sees suppliers receive support for developing novel capabilities to demonstration phase. The UK winners in 2024 include two SMEs, one large supplier and one academic group.

[Mike Martin (Tunbridge Wells) (LD)]

TEK Military Seating in Tunbridge Wells designs and exports military seating. It risks losing a £400,000 order to a customer in the United Arab Emirates because it lacks the permissions in the export licence, and my understanding is that the Department for Business and Trade is waiting for an answer from the MOD. Will the Minister please investigate?

[Al Carns]

I do not have the details of that specific case, but I am sure that the Minister for Defence Readiness and Industry would love to do so.

[Dr Al Pinkerton (Surrey Heath) (LD)]

Following the drone attack at RAF Akrotiri earlier this month, there has been growing disquiet within Cyprus and the Cypriot community about the continuing existence of the sovereign base areas. Given the absolute necessity of this defence relationship between the United Kingdom and Cyprus, will the Minister update the House on the Secretary of State’s visit to Cyprus earlier this month? Could he also say what reassurance the Cypriot Government need from us to ensure not only that the base is safe but that the future security of Cyprus is ensured?

[Al Carns]

Our sovereign base in Cyprus is not in question. When the Secretary of State for Defence visited Cyprus, the Cypriot national guard reaffirmed that our relationship is closer now than ever before. We must always remember the complexity of dealing with air defence. When it involves high and fast ballistic missiles combined with slow and low drones, it is a very complex problem for anyone to deal with, but we are trying to ensure that we come as close to 100% as we can.

[Derek Twigg (Widnes and Halewood) (Lab)]

Given the present focus on the war in the middle east, there is concern that we should not lose focus on what is going on in Ukraine. On developing and strengthening our relationships with our allies, what are the Minister and his fellow Ministers doing to ensure that Putin does not take advantage of the current situation in the middle east, and that we ensure that Ukraine continues to get the full support, weapons and assets that it needs?

[Al Carns]

We continue to lead, both in the coalition of the willing and in the Ukraine defence contact group, which the Secretary of State attended recently, raising billions of pounds-worth of equipment support in weapons, air defence systems and everything through to female body armour. Ukraine absolutely remains a focus. This is not just about UK security; it is about European security, and that will not change.

[Sir Julian Lewis (New Forest East) (Con)]

May I build on the excellent supplementary question asked by the hon. Member for Glasgow South (Gordon McKee) about Ukraine and counter-drone warfare? Thanks to the support given by this Government and the previous Government to Ukraine, it has become a world leader in inventing and deploying cheap responses to cheap drones. As a result, there is now an opportunity for it to assist our allies that are under threat from drone attacks in the middle east and in particular in the Persian gulf. Will the Government do everything they can to facilitate that, and thus show that Ukraine does indeed have some cards to play?

[Al Carns]

The Secretary of State has been in discussions with the National Security Agency and with key individuals in Ukraine. I am a firm believer that the Ukrainians need the west now and that in the future we will need them, given some of the technological advances they have made. It is also worth doubling down on some of the capabilities and initiatives moving forward, ranging from the hybrid Navy to the Army 20-40-40 programme, the Defence uncrewed centre of excellence, the NMITE drone degree to enhance and increase education, industry and the military forces’ move towards uncrewed systems and, finally, the £4 billion on uncrewed systems within the SDR.

[Bill Esterson (Sefton Central) (Lab)]

T1. If he will make a statement on his departmental responsibilities.

--- Later in debate ---

[Mr Mark Francois (Rayleigh and Wickford) (Con)]

There are growing rumours that the Government plan to bring back their ill-fated Northern Ireland Troubles Bill to the Commons next week. If that is true, it will give us the perfect opportunity to debate the Prime Minister’s links with Phil Shiner, the disgraced lawyer who was convicted of fraud and struck off for making multiple false allegations against British soldiers. The Northern Ireland Secretary has told the House repeatedly that there is no such thing as a vexatious prosecution. Do MOD Ministers now agree that that is not just naive but simply untrue, especially after the case of Phil Shiner —a man universally hated across the British Army?

[The Minister for the Armed Forces (Al Carns)]

There are two key roles that the Ministry of Defence plays within this legislation. The first is to ensure that we protect veterans throughout any legal process to do with Northern Ireland, and the second is to ensure that no one corrupts the system to try to rewrite history with a different narrative. There is a third role, which is to ensure that those families who have lost loved ones who were in the armed forces or the security services get the truth, reconciliation and justice they deserve.

[Mr Francois]

I was asking about the current Prime Minister, not the next one. After previously denying that the Prime Minister was instructed to act in a case against veterans by Phil Shiner, on 24 February the Veterans Minister had to come to the House and correct the record because the Prime Minister did, in fact, act for Phil Shiner in the al-Jedda case before the Appellate Committee of the House of Lords. That case effectively opened the floodgates for prosecutions against British Army veterans, which the troubles Bill now threatens to do all over again. To save the Veterans Minister having to come back here again and correct the record twice, can she or this Minister simply tell us why Labour is led by a man who partly made a living out of helping to put British Army soldiers and even their commanders in the dock?

[Al Carns]

I thank the hon. Member for the field promotion—he, obviously, has not had one. We have two roles: protecting veterans and ensuring that no one can rewrite history through the courts. We will push hard on that and deliver it for the veterans who deserve it.

[Dan Carden (Liverpool Walton) (Lab)]

T2. Our history is as a naval power, and immediate threats to the UK include threats to undersea cables, the activities of illegal Russian shadow tankers and the closure of the strait of Hormuz. For the shipbuilding industry to thrive on our shores, it needs consistent contracts throughout the year to ensure that we have the skills and workforce in place. What is the Minister doing to ensure that we get to that position?

--- Later in debate ---

[Ian Roome (North Devon) (LD)]

T8. Last week, HMS Dragon left Portsmouth bound for Cyprus, having been prepared for deployment inside six days. The Royal Navy says that preparation would normally have taken six weeks. What can the Government do to ensure that more of our surface fleet is available when urgently needed?

[Al Carns]

The hon. Member is absolutely correct. We took a six-week programme of deep refit and rearmed in six days—a remarkable effort from both the industry and the Royal Navy. I doff my cap to what they have done. That ship is now sailing to the middle east. At times of crisis, we can move things faster. We made a decision as quickly as possible, and if we need to, we will do the same again. [Interruption.] Opposition Members will recognise that an air defence destroyer is designed to protect a moving aircraft carrier. We may want to look into the investment in ground-based air defence over the last five to 15 years, and the lack of capability that we were left with. [Interruption.]

[Mr Speaker]

Order. I need to hear the next question. I will not be able to if there is chuntering across the Chamber.

Commonwealth Troops: First World War

Al Carns Excerpts

Thursday 5th March 2026 Commons Chamber

[Mr Mark Francois (Rayleigh and Wickford) (Con)]

As the son of a man who fought in the second world war, I am privileged to be able to sum up on behalf of His Majesty’s loyal Opposition in this debate about those who fell in the first world war and the vital contribution made by Commonwealth troops during that epic conflict.

The first world war turned out to be a manpower-intensive conflict in which the contribution of Commonwealth troops was invaluable. The National Army Museum at Chelsea estimates that over 3 million soldiers and labourers from across what was then the British empire, today the Commonwealth, served alongside the British Army in multiple theatres of operations. We have heard a number of erudite and touching tributes from hon. Members to that effect this afternoon, and I will refer to a few of them, but before I do there is one other important point I want to make.

Where is Reform? We are here to debate the contribution of people from all nations, of all colours, of all cultures, made 100 years or more ago, to defending the freedom of what was then the empire and is now the Commonwealth. Why is Reform’s Bench yet again empty when we debate defence-related matters? If those plastic patriots who love to wrap themselves in the flag aspire to be a party of government, let them at least come to this House and behave like it.

Turning to the contributions of Members, I commend the hon. Member for Ilford South (Jas Athwal) for securing this debate and, if I may say so, for introducing it so brilliantly. He spoke memorably about the extraordinary contribution of the Indian Army—Hindus, Muslims and Sikhs all joined together as one army fighting for freedom against tyranny. He said that honour transcends borders. He was right.

My hon. Friend the Member for South West Devon (Rebecca Smith) spoke very knowledgably about the vital work of the Commonwealth War Graves Commission, not least because she worked for it. She highlighted the commission’s marvellous endeavours to commemorate the sacrifices that were made in defence of freedom. On behalf of my party, I would like to commend the Commonwealth War Graves Commission for everything that it does.

The hon. Member for Bolton South and Walkden (Yasmin Qureshi) spoke powerfully about the contribution of the Indian Army, and especially its Muslim regiments. The hon. Member for Leicester South (Shockat Adam) followed her in a similar vein and spoke in particular about the Sikh regiments who have a proud martial tradition in British service, not least in the first world war.

The hon. Member for Alloa and Grangemouth (Brian Leishman) made, if I might say, a very socialist contribution, but he also paid tribute to those who served. The hon. Member for Glasgow North (Martin Rhodes) paid a fulsome tribute to Commonwealth troops. The Liberal Democrat spokesman, the hon. Member for Esher and Walton (Monica Harding), reminded us that after the largely regular British Expeditionary Force was wiped out while holding the line in 1914, it was eventually citizens’ armies, including from the Commonwealth, who replaced it to win the war.

As there were multiple contributions from across the empire and the Commonwealth during the First World War, it would be invidious to attempt to highlight any one as more important than the others. It might be better to attempt to summarise briefly—in the few minutes that I have to cover a war that lasted four years—some of the national contributions to the wider war effort.

I begin with the Canadians. Following the outbreak of the war, Canada established the Canadian Expeditionary Force, principally for service on the western front. The Canadians fought in many of the major battles in that theatre, including the second Ypres, the Somme, Vimy Ridge and Passchendaele. In so doing, they were supported by troops from Newfoundland, although that did not formally become part of Canada until after the second world war. The Newfoundland regiment also fought at Gallipoli and then on the western front, including in the so-called last hundred days when the allied armies—the British Army in particular, but with Commonwealth support—broke the back of the German army in the field.

That victory, fully utilising the principle of combined operations including infantry, artillery, tanks and aircraft working in concert, should not be underestimated. It is often highlighted by military historians as a significant feat of arms, completely contrary to what might be called the “Blackadder” version of the history of the first world war.

[The Minister for the Armed Forces (Al Carns)]

indicated assent.

[Mr Francois]

I see that the Minister is nodding in assent.

The Australians also made a major contribution to the first world war. Over 400,000 served in what was known as the Australian Imperial Force. Over half of them became casualties, either killed or wounded.

Perhaps the most famous Australian contribution, combined with their comrades from New Zealand, was in the ill-fated campaign at Gallipoli in 1915 when the Australian and New Zealand army corps, now forever known as the Anzacs, suffered heavy casualties attempting to overcome the extremely well dug-in Turkish defences on the peninsula. Nevertheless, it is important to record that Anzac troops also served bravely in other theatres of war, not least in the middle east and on the western front.

India, which many hon. Members referred to, made the largest contribution from the Commonwealth, particularly if we include those from what is now modern day Bangladesh and Pakistan. I think it contributed more than a million troops in total over the course of the first world war.

I should declare an interest here as my great-grandfather-in-law Colonel William Sanders served as part of the Indian Army, and at one time commanded a battery of artillery towed by elephants. [Interruption.] He did. He then transferred to the Royal Garrison Artillery on the western front, winning a Distinguished Service Order at the battle of St Quentin, about which the family are obviously proud. The Indian Army of today, and its Bangladeshi and Pakistani counterparts, maintain proud regimental histories that date back to their actions in the first world war.

South African regiments also made an important contribution to the allied war effort, including the 1st South African Brigade, who famously fought at Delville Wood, which the troops nicknamed “Devil’s Wood”, on the Somme. Given what they went through, that was probably appropriate. The South Africans fought not just on the western front but against German troops on the African continent itself, including in both east and south-west Africa. It is also important to record the contribution of some 60,000 black South Africans who served mainly in support and logistical roles rather than as frontline infantry but nevertheless made an important contribution to the allied war effort, as indeed was recognised by General Jan Smuts.

--- Later in debate ---

[The Minister for the Armed Forces (Al Carns)]

I am grateful to my hon. Friend the Member for Ilford South (Jas Athwal) for securing this very important debate at a very important time, to all the hon. and right hon. Members for their thoughtful contributions, and to the spirit of the House.

The role played by Commonwealth forces in the first world war is pivotal; indeed, it is legendary—an all too often overlooked chapter of our nation’s history. I am grateful that this debate will help us tell that story to this generation. The contribution of those forces is etched in stone at the heart of London, on the memorial gates on Constitution Hill, on which are inscribed:

“In memory of the five million volunteers from the Indian sub-continent, Africa and the Caribbean who fought with Britain in two world wars.”

It is a fitting memorial that honours around 3 million people from the Commonwealth who volunteered and fought in world war one, from the Indian subcontinent, Canada, Australia, New Zealand, Africa and as far as the Caribbean.

[Liam Conlon (Beckenham and Penge) (Lab)]

The Minister mentions commemoration in London. In my part of south-east London, I had the pleasure of going, with representatives of the Commonwealth War Graves Commission, to look at the graves that it maintains. Does he agree that the commission plays a vital role, not only in commemorating those who have fallen, but in educating children and young people today about the contributions that were made?

[Al Carns]

I completely agree. The commission maintains and looks after thousands of memorials all over the world, which helps us continue to educate and to communicate an important lesson.

The memorial in London commemorates the campaigns fought: on the western front, in Gallipoli, Russia, the middle east and Africa—indeed, in every major theatre of the conflict. It is also a memorial that rightly immortalises Commonwealth recipients of the Victoria Cross during the great war. They include brave men like Khudadad Khan, who was mentioned earlier: a courageous soldier in the British Indian Army who single-handedly held back the enemy to enable reinforcements to arrive. He was the first non-British recipient of our highest military honour during the first world war.

Of the 1 million people under British command killed during the first world war, nearly a quarter came from the Commonwealth nations. Having served in multiple theatres of conflict to protect the country that I am really proud to call home, and having lost good colleagues and friends, I have some ideas of the sacrifice they loyally made, but not—in any way, shape or form—of the scale. Over 74,000 people came from India, 65,000 from Canada, more than 62,000 from Australia, 18,000 from New Zealand and nearly 12,000 from South Africa. Their names are recorded by the Commonwealth War Graves Commission across cemeteries and memorials on every continent, with dedicated memorials inaugurated or under construction in Cape Town, Nairobi, and Freetown in Sierra Leone. Commonwealth forces are honoured prominently during remembrance, with Commonwealth high commissioners playing a high-profile role in commemorations at the Cenotaph—but we must do more. Today we remember their service and their sacrifice, and I am delighted that their legacy lives on in our armed forces.

Let me turn to some of the comments made during the debate. My hon. Friend the Member for Ilford South made some poignant remarks; different languages, different cultures and different faiths came together to fight for a common good, demonstrating incredible honour, unbelievable duty and outstanding courage. The key lesson from that is that it did not matter where someone came from, their religion or their race; they were united in a common cause.

The hon. Member for South West Devon (Rebecca Smith) was right to point out the outstanding work done by the Commonwealth War Graves Commission, and I commend her for her past and ongoing support for it. The commission commemorates 1.7 million casualties across the globe, and even now, we have 5,000 Commonwealth personnel serving in the British military. My hon. Friend the Member for Bolton South and Walkden (Yasmin Qureshi) told us a truly remarkable story about a wireless operator deployed behind enemy lines and covertly inserted into France, describing how Commonwealth forces, or individuals from further afield, played every part in the operational tapestry of both the first and second world wars.

The hon. Member for Leicester South (Shockat Adam) highlighted how our histories are entwined, but said that in some cases we fail to educate and to communicate that, in particular to the youth of the nation. He said that if we are to push in the same direction, we must understand our shared history and the common cause of democracy, the rule of law, the right to self-determination and equal rights.

My hon. Friend the Member for Alloa and Grangemouth (Brian Leishman) made some interesting comments and said that war is easy to talk about. Well, I can tell him now that war, if you have been engaged in it, is not easy to talk about. The best way to avoid conflict is to deter it, and I support the comments of the right hon. Member for Rayleigh and Wickford (Mr Francois) that we do not deter it by not preparing for it. I try to keep politics out of this debate, because this is not about a lack of realism; it is about remembrance.

My hon. Friend the Member for Glasgow North (Martin Rhodes) mentioned the importance of education and communication to bind us together, to build bridges and to remove the division that people are sowing. He said that we must deal in unity, hope and ambition to drive the country forward, and I completely commend that narrative. The hon. Member for Esher and Walton (Monica Harding) pointed to the staggering contributions from across the Commonwealth, as we have heard from many people—such a poignant thing to dwell on.

The right hon. Member for Rayleigh and Wickford highlighted the lack of individuals from certain parties in this House today. Well, I will tell him where they are. They are probably out on social media, painting the sky grey and then selling the country umbrellas. It is an absolute travesty that they are not here to hear about the joint history that every Member has mentioned, and to talk about the shared sacrifice and what unity can indeed overcome.

I commend points made about the early stages of combined arms manoeuvre—something we see in Ukraine with the use of uncrewed systems, which is changing how we fight. Unfortunately, conflict tends to be the mother of invention.

My final point is this. When individuals from the Commonwealth came to fight, it was a huge unifying factor. Bombs, bullets and battlefields do not discriminate. They served together, they died together, and now we must focus on how we tell their story to ensure that we live together.

I again express my gratitude to my hon. Friend the Member for Ilford South for securing this debate. I am pleased that we have had the chance to mark the loyalty, courage and sacrifice of Commonwealth soldiers during the first world war. More than a century later, their legacy still inspires many young men and women. We must do more to honour their sacrifice and increase our ability to collectively recruit people into the British armed forces from all walks of life. As our debate has shown, their legacy continues to inspire us all.

Somalia: Operating Base SHAND Gifting

Al Carns Excerpts

Thursday 5th February 2026 Written Statements

[The Minister for the Armed Forces (Al Carns)]

It is the normal practice when a Government Department propose to make a gift of a value exceeding £300,000, for the Department concerned to present to the House of Commons a minute giving particulars of the gift and explaining the circumstances; and to refrain from making the gift until 14 parliamentary sitting days after the issue of the minute, except in cases of special urgency.

I have today laid before the House a departmental minute describing the gifting of a UK compound within the Mogadishu international airport in Somalia, previously known as Operating Base SHAND, to the African Union support and stabilisation mission in Somalia.

AUSSOM is a multidimensional African Union-led peace support mission approved by the United Nations. Its focus is stabilisation, security and state-building, aiming to transfer full security responsibilities to Somali security forces by December 2029. Since 2021, the UK has contributed nearly $140 million (£102.5 million) to AUSSOM and its predecessor mission, which reflects the UK’s broader commitment to African-led peace initiatives, working in partnership with the Federal Government of Somalia, the African Union, and the United Nations to tackle shared security challenges.

Operating Base SHAND—a UK compound within Mogadishu international airport—was originally commissioned in 2017 to house a three-year deployment to the United Nations support office in Somalia, announced by the then Prime Minister in 2015. That deployment, Operation CATAN, ended as planned in March 2019. Since then, the compound has remained the primary base for UK operations in Somalia. Having served its intended purpose, the base now exceeds the UK’s accommodation requirements in Somalia.

The UK remains committed to working with the Federal Government of Somalia in supporting Somalia’s security, alongside our international partners.

The Treasury has approved the proposal in principle. If, during the period of 14 parliamentary sitting days beginning on the date on which this minute was laid before the House of Commons, a Member signifies an objection by giving notice of a parliamentary question or a motion relating to the minute, or by otherwise raising the matter in the House, final approval of the gift will be withheld pending an examination of the objection.

[HCWS1308]

Armed Forces Bill

Al Carns Excerpts

2nd reading
Monday 26th January 2026 Commons Chamber

[The Minister for the Armed Forces (Al Carns)]

It is a true honour to close the debate. I thank hon. Members across the House who have spoken well in support of our brave servicemen and women, upholding Parliament’s proud cross-party tradition of expressing our profound gratitude to those serving in the UK’s armed forces. It is not lost on me who is not here today.

I appreciate that some in this Chamber have raised questions about the measures in the Bill or about defence in general, so let me address some of the questions. The hon. Members for South Suffolk (James Cartlidge) and for Taunton and Wellington (Gideon Amos) and the right hon. Member for Rayleigh and Wickford (Mr Francois) rightly mentioned our service in Afghanistan, as did many others in the House. It is not lost on me that when 9/11 took place, it is the only time when article 5 has been called. The US relied on us collectively not just for a military response, but for an inter-agency response to build the functions and capability to deal with terrorism, which is so successfully dealt with today. It is also not lost on me that per capita, the Georgians, the Danish and the Estonians lost a significant amount of souls in that conflict. I often say that those who do not read history are doomed to repeat it, and I think we saw an example of that.

The hon. Member for Mid Dorset and North Poole (Vikki Slade) highlighted issues with the covenant, but also highlighted accommodation and the move towards the next phases of any review. The single living accommodation strategy is well under way. On that note, I pay tribute to Natalie Elphicke and the whole team, who put an in amazing effort on the defence housing strategy, which has resulted in some of the findings, in particular the creation of the Defence Housing Service, which will alleviate for the Defence Infrastructure Organisation some of the pressure of looking after housing and professionalise the service as we move forward. I also support the hon. Member in her support for Toby Gutteridge, an individual I know well and who needs our support as he continues with his standard of life.

I welcome Opposition Members’ comments on Ukraine. This is a bipartisan issue—it is an idea bigger than ourselves. We welcome and thank them for their support on Ukraine in the early days, which we took on and have continued after the change in Government.

My hon. Friends the Members for Slough (Mr Dhesi), for Portsmouth North (Amanda Martin), for Barrow and Furness (Michelle Scrogham) and for Edinburgh South West (Dr Arthur) all highlighted issues with the covenant, as did many others. The reality is that it is moving from three areas of Government all the way to 14. It will be significant, but it will take time to put it in place. We have to accept that at the moment, the execution of the covenant results in a postcode lottery across the United Kingdom, but there is a requirement of adherence to the legal duty. There will be a communication and education plan to ensure that everyone knows the standards we need to live by. There will be statutory guidance, training and briefings. Indeed, some of the other projects like Operation Valour that we are rolling out will help us police the delivery of the covenant across those councils.

I have been a long-standing fan of the reserves, and I have to admit that I have a conflict of interest: I am a reservist. The Army, Navy and Air Force always respond to crisis, but the reality is that economies, industries and societies win conflicts. We can all learn the lesson from Ukraine that reservists often fill the ranks more the longer a conflict goes on. I will come later to comments about how reservists are being funded and how we will improve that process to ensure that the nation is ready should a crisis befall us.

I turn to the fitness application. I have met individuals who have destroyed a hundred tanks and individuals who have killed hundreds of Russians who could not pass a fitness test in their life. The reality is the changing character of conflict requires different skills. That is why things like cyber direct entry and different skills are just as applicable as being able to run or do pull-ups and push-ups. We have already got rid of 100 outdated medical requirements on the medical test. There is a long way to go on that, and I would like to see us open it up as we move forward, and we will see some of that in the Bill as it progresses.

I welcome the support from the hon. Member for Lewes (James MacCleary) on housing. The scrutiny and governance of that will absolutely be controlled by our Secretary of State. Within the covenant, the ability for us to produce an annual report to ensure that we are reporting to Government on the standards of adherence to the covenant and legal duty will be pushed every year. He mentioned a cultural change in the service justice system, which is far broader than what is in the Bill and is required. It is worth noting that Raising our Standards, the violence against women and girls taskforce, the zero tolerance policy and our tri-service complaints process are just some of the things that we are progressing outside legislation. The Bill goes further within legislation. Individually and collectively, the measures will be significant.

The right hon. and gallant Member for Tonbridge (Tom Tugendhat) mentioned several speeches in Davos. There are two quotes that I think it worth repeating here:

“A world of fortresses will be poorer, more fragile and less sustainable”,

and we must not

monetise…relationships. Allies will diversify to hedge against uncertainty.”

Those two quotes from Davos are worth remembering. We have an idea far bigger than the dollar sign, the euro or the pound, which is a moral obligation towards decency, transparency, the right to self-determination and, of course, democracy.

I thank my hon. Friend the Member for Ipswich (Jack Abbott) for his tribute to the armed forces and in particular for mentioning Combat2Coffee and its indomitable member Terry Butcher, who pushes so hard to support the armed forces. More importantly, I would like the Combat2Coffee shop in the Ministry of Defence to be replicated in all Government Departments—perhaps we can take that on as a separate little task.

I thank the hon. Member for North Devon (Ian Roome) for his support for the Defence Housing Service. The House will be delighted to know that family satisfaction with defence housing has gone up to the highest level since 2021. There is a long way to go, but we are heading in the right direction. Similarly, recruitment is up 13%, and outflow is down 8%.

I thank my hon. Friend the Member for Birmingham Edgbaston (Preet Kaur Gill) for her constant support for all varieties of veterans across her constituency, and for being the MP of a constituency neighbouring mine. When people question whether we were on the frontline in Afghanistan or in any other conflict, I suggest one visit: to Birmingham’s Selly Oak hospital. The nurses, doctors and carers are second to none, and they have seen stuff that would shock us all. If there were any need for better validation of who has been on the frontline and who has not, Selly Oak hospital is the place to go.

The right hon. Member for North East Cambridgeshire (Steve Barclay) highlighted that the rhetoric is not matched by the record on reservists. I would say that, in some cases, his narrative is not matched with his experience. All the facts are useful, but unless he connects them together, he does not necessarily have the understanding. Some of his comments were absolutely on the money, but one of the biggest problems with the reserves is to do not with finances but with the complete and utter mess of bureaucracy when trying to join the reserves.

[Steve Barclay]

Does the Minister not accept that the number of reservists and the number of training days have both fallen on his watch, and that the sums of money to significantly increase them is modest relative to the £60 billion-plus that the MOD spends?

[Al Carns]

In the strategic defence review, we have committed to an increase of 20%. First, reserve spending went up in 2023-24 from £189.9 million to £202.4 million, so what the right hon. Gentleman says is factually incorrect. Secondly, on personnel statistics, in the last quarter our trained strength in the reserves has risen from 28,000 to 29,000. I think we need collectively to check our statistics.

The right hon. Gentleman will know that to stand here and tell the world about our ability to respond to article 3 would be slightly misguided. He mentioned the creation of quangos, but if he had read the Bill fully he would recognise that the reserve forces and cadets associations are going from 13 to one so-called quangos, with an increase of one in the Defence Housing Service, which is absolutely required to deliver an effective housing service. He will also know that Op Valour means more money for veterans than ever before. Tranche 1 of the funding has now been closed, and recruitment is fully under way. If he would like to talk through why the recruitment has been paused in the past, I am more than happy to talk about that offline, but I want to ensure that the right person is in the right job, so that the programme is a success.

I thank my hon. Friend the Member for Aldershot (Alex Baker) for her passionate and unrelenting support, which is not lost on me—it is second to none and super impressive. My hon. Friend the Member for North Durham (Luke Akehurst) has such a resounding history in the armed forces—it really is impressive. I know that supporting everyone in that constituency is a passion of his.

Will the hon. Member for Eastbourne (Josh Babarinde) please write to me about the issue with Pauline? I would like to look at it in detail, as I know would my hon. Friend the Minister for Veterans and People. My hon. Friend the Member for North Warwickshire and Bedworth (Rachel Taylor) welcomed the support for Op Valour. Her support for the Bill as it progresses is useful, and she always champions our armed forces constituents.

The hon. Member for Strangford (Jim Shannon) was, as always, articulate and to the point. I have spoken to Ministers in Northern Ireland and to the armed forces Veterans’ Commissioner, and while the covenant is applicable to the whole United Kingdom, we must consider how it is executed within the devolved Administrations. I am willing to work with the hon. Gentleman and a collective group of Northern Ireland MPs to ensure that we implement it as best as we possibly can, while accepting that there are nuances with security and how it needs to be implemented as a whole.

[Jim Shannon]

I thank the Minister—that is a superb response. The hon. and learned Member for North Antrim (Jim Allister), my right hon. Friend the Member for Belfast East (Gavin Robinson), David Johnstone, and the hon. Member for South Antrim (Robin Swann) are the people with whom, if possible, we would have that meeting, and constructively work together to do better for our veterans in Northern Ireland.

[Al Carns]

The hon. Member has my word that I will continue to engage with him and move that forward.

I say to my hon. Friend the Member for Truro and Falmouth (Jayne Kirkham) that there is no Navy without the Royal Fleet Auxiliary—it is as simple as that—so well done for pushing that ten-minute rule Bill and including in it delivering support to the RFA that is truly needed. I thank my hon. Friend the Member for Morecambe and Lunesdale (Lizzi Collinge) for her support for the armed forces. It is consistent and super powerful, and I appreciate it. I thank my hon. Friend the Member for Hartlepool (Mr Brash) for his kind words and, importantly, his impressive support for veterans and the roll-out of Op Valour.

My hon. Friend the Member for Leyton and Wanstead (Mr Bailey) has continually supported the covenant and the armed forces as a whole, and the impact on immigration is something we need to look forward to as the covenant rolls out more broadly. I agree that the removal of the C-130 was a bad thing. The continual support of my hon. Friend the Member for Bracknell (Peter Swallow) for the cadet forces and the armed forces community is second to none and really impressive.

I thank my hon. Friend the Member for Uxbridge and South Ruislip (Danny Beales) for his support for the armed forces community and, in particular, for housing, which has been impressive throughout. Indeed, we saw the first few houses in the roll-out of 1,000 houses getting renewed—the Secretary of State and I were there to see the good, the bad and the ugly, and it was great to see that we had landed on the good with so many houses for armed forces personnel in his constituency. Finally, the support of my hon. Friend the Member for Colchester (Pam Cox) for parachute battalion 16 Air Assault Brigade, and in representing serving families and veterans, is second to none.

From my perspective, it is quite simple: the Armed Forces Bill is moving forward in four key areas. First, for defence housing, we are creating the Defence Housing Service, moving it away from the Defence Infrastructure Organisation, increasing capacity and upskilling professionalism as we look at defence housing as a whole. For the reserves, it is about extending service from 55 to 65 for those individuals in specific roles who can still add value to the military up to that age. It is also about making the transfer more seamless, and standardising the recall from six years to 18 years consistently across the Army, Navy and Air Force.

The Bill is about better support, with the covenant moving from three to 14 Departments and policy areas. It is about us renewing the contract with those who serve. Finally, the Bill is about better protections. It is about sexual risk orders, domestic abuse protections and orders, and stalking protection orders. Indeed, it boils down to the ability of victims to have choice. Since the Lyons review in 2018-19, we have changed defence significantly when it comes to how we look at serious crime. We created the serious crime unit under the previous Government, and it has gone from a fledgling organisation to one with a fully upskilled and up-gunned ability to deal with the most serious crimes. It is deeply impressive, so if anybody has any concerns about how we are dealing with the most serious issues across defence, they should please come and see me, the Secretary of State or the Minister for Veterans and People, and organise a visit. We will happily deliver that to ensure that hon. Members can go and visit it.

In summary, this Bill garners support from Members from all parts of the House. There are some issues that we will debate repeatedly over the next several months, but I think that we will get to a really good place that supports our serving armed forces across the Navy, the Army and the Air Force, our reservists, our service families, our veterans and our whole armed forces community, including all the charities that support them as well.

Question put and agreed to.

Bill accordingly read a Second time.

Armed Forces Bill: Programme

Motion made, and Question put forthwith (Standing Order No. 83A(7)),

That the following provisions shall apply to the Armed Forces Bill:

Select Committee

(1) The Bill shall be committed to a Select Committee.

(2) The Select Committee shall report the Bill to the House on or before 30 April 2026.

Committee of the whole House, Consideration and Third reading

(3) On report from the Select Committee, the Bill shall be re-committed to a Committee of the whole House.

(4) Proceedings in Committee of the whole House on recommittal, any proceedings on Consideration and proceedings on Third Reading shall be taken in accordance with the following provisions of this Order.

(5) Proceedings in Committee of the whole House and any proceedings on Consideration shall (so far as not previously concluded) be brought to a conclusion one hour before the moment of interruption on the day on which proceedings in Committee of the whole House are commenced.

(6) Proceedings on Third Reading shall (so far as not previously concluded) be brought to a conclusion at the moment of interruption on that day.

Programming committee

(7) Standing Order No. 83B (Programming committees) shall not apply to proceedings in Committee of the whole House, to any proceedings on Consideration or to proceedings on Third Reading.

Other proceedings

(8) Any other proceedings on the Bill may be programmed.—(Stephen Morgan.)

Question agreed to.

Armed Forces Bill: Money

King’s recommendation signified.

Motion made, and Question put forthwith (Standing Order No. 52(1)(a)),

That, for the purposes of any Act resulting from the Armed Forces Bill, it is expedient to authorise the payment out of money provided by Parliament of:

(a) any expenditure incurred under or by virtue of the Act by a Minister of the Crown or the Defence Council, and

(b) any increase attributable to the Act in the sums payable under or by virtue of any other Act out of money so provided.—(Stephen Morgan.)

Question agreed to.

Ajax Programme

Al Carns Excerpts

Wednesday 14th January 2026 Westminster Hall

[The Minister for the Armed Forces (Al Carns)]

It is a pleasure to serve under your chairmanship, Mr Stuart. I am grateful to the hon. and gallant Member for Huntingdon (Ben Obese-Jecty) for securing this debate.

It will not be lost on the audience that I am not the Minister of State for Defence Readiness and Industry, but I am a former Royal Marine with 24 years of service and now also the Minister responsible for the armed forces. I can assure hon. Members of this Government’s commitment to the safety of our service personnel. That is absolutely paramount. It underpins a bond of trust between all MOD activity and the Government, and it is a vital strand of our responsibility to ensure that our service personnel are provided with the correct equipment that is safe, but also reliable and effective.

That is why Ministers were so alarmed by the symptoms reported by 35 soldiers who operated Ajax vehicles during November’s exercise Titan Storm. I can update Members that of those 35 people, nine are now back to normal duties, two were found to be suffering from symptoms unrelated to Ajax and the remaining 24 continue to be monitored by our medical services, primarily for hearing and vibration. We will ensure that they receive all necessary support as they progress. I can also confirm that the Minister for Defence Readiness and Industry, my hon. Friend the Member for Plymouth Sutton and Devonport (Luke Pollard), alongside the Chief of the General Staff, will visit affected units and speak to affected soldiers later this week, having written to them at the end of the year.

Exercise Titan Storm represented the latest chapter in a programme that has been well documented by parliamentary Committees and independent MOD reports. Ajax was approved in 2014 with a date for initial operating capability of 2020. Today, after significant delays, just over 180 vehicles have been delivered. The symptoms reported by some of our soldiers operating Ajax during Exercise Titan Storm have led to four separate, rigorous investigations. The Minister for Defence Readiness and Industry plans to further update the House on this matter next week, so hon. Members will understand that I may leave some of the specific questions—including the 37 from the hon. Member for Huntingdon; on average, one a minute—for that Minister to answer in detail.

Along with the investigations into the vehicles by the Defence Accident Investigation Branch and the Army safety investigation team, which were set out to Parliament by the Minister for Defence Readiness and Industry on 8 December, a ministerial-led review into the implementation of previous recommendations has also been commissioned. It focuses on the basis of written assurances given to Ministers ahead of the announcement of initial operating capability in November. As set out in his written ministerial statement on 18 December, the Minister for Defence Readiness and Industry subsequently also directed a pause on all Ajax trials to allow for an investigation into a second safety incident reported during a trial at Bovington on 12 December.

Each of the 23 affected vehicles have now undergone 45-point inspections, with further instrumental testing, including for noise and vibration, taking place literally as we speak. In that incident, the affected soldier received medical support and did not require hospitalisation. The vehicle involved was not one of the 23 from Exercise Titan Storm; it was a separate vehicle being used to establish a safety baseline for comparison. I can confirm that that soldier has now returned to duty with no issues whatsoever, and that discussions are ongoing between the Minister for Defence Readiness and Industry and officials within the Department on appropriate next steps regarding the potential restart of those trials.

As many of my Welsh colleagues have pointed out, the Ajax vehicles are built in Merthyr Tydfil to support a UK-wide supply chain of more than 230 companies and over 4,100 jobs. Because of the importance of the programme to south Wales, Ministers have been in close contact with the Welsh Government; the Minister for Defence Readiness and Industry met the Welsh Economy Minister, Rebecca Evans on 15 December.

As I mentioned earlier, because previous investigations and adjustments should have fixed the recent challenges to the programme, the Minister for Defence Readiness and Industry has put in place a ministerial-led review that will assess how the Department has implemented the recommendations of previous reviews, and suggest improvements to the process of providing timely and accurate information to Ministers. To ensure the independence and rigour of that process, that review is conducted by experts who are not part of the Ajax programme. Ministers, the Chief of the General Staff and officials are also working closely with General Dynamics to resolve the issues, and will continue to do so. Most recently, at ministerial level, the Minister for Defence Readiness and Industry met senior managers from General Dynamics on 9 December. He plans to meet them again next week, and has future plans that are in train to meet the workforce again.

It is important that each of the investigation teams are given the time and space required to get to the bottom of the recent incidents, and past failures, so that we can take the most appropriate and accountable next steps. I want to be clear that there is no predetermined outcome. Ministers will be led by the facts and all options are absolutely on the table. As the Defence Secretary has said of this programme, we must either back it or indeed scrap it.

[Stuart Anderson]

When or if trials resume, what assurances will we get that no future British troops will be put in harm’s way by testing Ajax?

[Al Carns]

I can assure the hon. Member—and I note his background—that the safety of our armed forces will be the No. 1 priority when we commence those trials. That has to be the baseline common denominator as we move forward. I reiterate that the Defence Secretary said that we must back it or scrap it; the evidence will allow us to make that decision.

I will cover off some of the 37 questions that were asked earlier. When we talk about initial operating capability, there is a slight dichotomy. We mentioned a perceived rush to IOC for Ajax on the one hand; on the other hand, collectively hon. Members are asking why Boxer’s IOC is moving. It cannot be one or t’other. We have got to allow the teams and experts to ensure that IOC is met in the safest possible manner and that any lessons from Ajax are pulled across into the Boxer programme and other big capability programmes, as has been mentioned by some hon. Members, so that we can understand and learn from them.

We are also, in some cases, our own worst enemy—we have had over 1,000 capability requirement changes throughout the programme. As we change the capability, the platform changes, the cost changes and the time-trialling system changes, and we need to reduce that as we move forward with major capabilities. The Minister for Defence Readiness and Industry will update the House in due course, covering things such as capability changes and requirements and how many noise vibration issues there were in Titan Storm, and he will answer the rest of the multitude of very detailed questions that were asked earlier today.

On British military doctrine, it is really important to recognise that Ukraine is changing the whole character of conflict and how we fight. Terms such as armoured recce, ranges of gun systems and the reason why we built the tank in the first place—to carry a gun and to deliver firepower at pace—are changing because of the development of technology. We are wrestling with a whole set of capability changes, which are changing the character of conflict. We must not learn false lessons from Ukraine but pull the most effective ones and draw them into our capability programmes that in some cases were set in place 10 to 15 years ago. It is a very complex system of moving forward, but I can assure Members that we are learning those lessons from Ukraine and trying to incorporate them as best we can into the current programmes. What I would say is that Ajax started in 2014, and we have had 10 years of progress, but also a huge amount of mistakes. Those lessons will be pulled across into Boxer.

My hon. Friend the Member for Merthyr Tydfil and Aberdare (Gerald Jones) outlined the invaluable skills and capability of the staff that have actually created these systems, and some of the capabilities that they have brough to bear are absolutely second to none. The Minister for Defence Readiness and Industry will report next week, and he is more than happy to meet both union and industry visitors in due course.

The hon. Member for Weald of Kent (Katie Lam) highlighted some issues with the direct threat to our armed forces that the capability may present. What I would say is: allow the facts to do the talking, allow the review to come out next week, allow the report to be presented to the House, and then let us work out whether this capability can actually add value, whether it is in the armoured recce space or armoured infantry roles and so on. From my perspective, it is important to allow the facts and the honesty of the review to pull through.

I express my gratitude once again to the hon. and gallant Member for Huntingdon for introducing the debate and to all Members for their continued attention to Ajax programme. I trust that we have collectively been clear about where we stand on this. Multiple investigations are under way. All Ajax activity—training, exercise and trials—has been paused until these investigations are complete. Ministers will receive findings in the coming weeks, and all options remain on the table.

Importantly—it has been mentioned multiple times, and I have been at the bottom of the food chain in the military as well—I thank Alfie and Fill Your Boots; I thank the men and the officers for highlighting these concerns and speaking truth to power; and I thank the armed forces collectively for working collaboratively with us to come to an amenable solution that gives them the capability that they deserve.

Arctic and High North

Al Carns Excerpts

Tuesday 13th January 2026 Westminster Hall

[The Minister for the Armed Forces (Al Carns)]

It is a delight to speak under your chairmanship, Ms Vaz. I thank my hon. Friend the Member for Dunfermline and Dollar (Graeme Downie) for securing this debate and for all his work as chair of the Labour back-bench defence committee. In an article published last week, he stressed the critical importance, in these volatile times, of strengthening the UK’s armed forces, preparing for the possibility of war and showing that although we do not want conflict, we are ready to fight to defend our freedoms and indeed our prosperity. He is absolutely correct and is speaking about an area with which he is all too familiar.

Geography really matters. Some members of the SNP may not be interested in defence, but, given Scotland’s geographical position, our adversaries are interested in Scotland because of what it offers to the UK, Europe and NATO defence.

[Mr Angus MacDonald]

Given that one of the UK’s core NATO responsibilities is securing freedom of operation in the GIUK gap, can the Minister reflect on what an SNP-led independent Scotland would mean for that task? At a time when hostile states exploit political fragmentation, does he agree that a party that opposes the nuclear deterrent, has turned away defence-related industrial investment in the Clyde and has even restricted medical aid to Ukrainian soldiers by classifying it as military support would weaken rather than strengthen our collective resilience in the High North?

[Al Carns]

The reality is that this is not about politics. This is about sincerity around our national security decisions. An independent Scotland would weaken not just the security of the UK—of Scotland, England, Wales and Northern Ireland—but the whole European security architecture and NATO as a whole. At this point in time, a worse decision could not possibly even be fathomed.

Some comments were made earlier about whether we have a frontline with Russia. The reality is that we do. As my hon. Friend the Member for Dunfermline and Dollar mentioned, it sits in the north Atlantic. When it comes to being scared of Russia, last time I checked the military dictionary, that word definitely did not exist. If someone from industry sees a Russian frigate or submarine near the CNI, I can guarantee that there will be a Royal Navy, NATO or European submarine or frigate very close by.

Although much of the current attention is focused on Ukraine, being ready to fight means being alert to every danger. We must continue working ever more closely with our allies to address emerging threats wherever they may arise. Today’s debate is a welcome opportunity to discuss a part of the world that is becoming increasingly contested by the major powers.

Having been largely inaccessible to navies in the past, the High North and Arctic are changing at an unprecedented and accelerating rate. Global warming is transforming the Arctic from frozen expanses to a 21st-century geopolitical hotspot. As melting ice opens up new sea routes, the established security balance across the top of the world will be fundamentally reshaped forever. Routes between the Atlantic and Pacific will become increasingly navigable for more of the year, bringing the continents of Asia, Europe and North America closer than ever before.

Competition to exploit the region’s valuable natural resources is growing, too. China is extending its activity in the Arctic, having recently sent more icebreakers and research vessels to probe its expanses and declaring itself a near-Arctic state. We are under no illusion about how the changing Arctic environment poses new challenges, both commercially and militarily.

Russia remains the most acute danger to the security of the northern near Atlantic, and its operations within a more navigable Arctic are an increasing part of that threat. It is sobering to realise that Vladimir Putin controls more than half of the entire Arctic’s coastline. The increased militarisation of Russia’s Arctic territory, including investment in bases and air and coastal defence capabilities, is of increasing concern. For example, Russia has established a new northern joint strategic command, reopening cold war-era bases above the Arctic circle, including a fully operational base on Franz Josef island and another on Kotelny island.

In the north Atlantic, Russian submarine activity is nearing the highest levels since the cold war. Changes in the region directly impact us and our security here in the UK, as one of the Arctic’s nearest neighbours—whether it is from increasing threats or damage to subsea electricity or telecommunication cables in the Baltic sea or from the increase in Russian activity in the key Greenland-Iceland-UK gap involving surface and sub-surface vessels and aircraft.

[Anna Gelderd (South East Cornwall) (Lab)]

As climate change opens new routes and access to resources, and as we are one of the Arctic’s closest neighbours, how are the Government working with allies to strengthen our collective security in the region in the face of climate change to ensure that the UK is able to protect our long-term interests alongside other partners from non-Arctic states?

[Al Carns]

As my hon. Friend will know, we have various multilateral treaties, including working with the JEF and NATO to ensure that any implications from global warming are carefully considered and that security recommendations are put in place to deal with them should they arise.

NATO has made it clear that defence of the High North is a key strategic imperative. The addition of Sweden and Finland to the alliance has significantly strengthened NATO’s hand in the region. Indeed, Nordic countries have spent decades managing Moscow’s interests in the High North, and they bring valuable experience to help counter the threat that Putin’s forces present today. As part of the UK-led joint expeditionary force, we are working alongside them to enhance collective security across Northern Europe.

We have assets across all three main services and interoperability with our allies that can project force deep into the High North. For example, a recent agreement between Britain and Norway will see our commando forces, led by the Royal Marines, operating in Norway all year round to defend NATO’s northern flank. They will take part in Exercise Cold Response, the largest military exercise in Norway this year, with a 40% increase in Royal Marine activity. I know the exercise well: in 2022, I took part in it as the chief of staff of the UK strike force, operating a multinational fleet, dozens of ships, aircraft and thousands of forces across the Arctic. I spent time during my 24 years—many of it unhappy, in a snowhole—in the Arctic as part of the Royal Marines, as a mountain leader.

We train hard for those operations in the Arctic. We have some of the best troops in the world, and we work exceptionally hard with Norway and Sweden and with Finnish forces. What is more, we have established the littoral maritime response force, with dedicated personnel, ships and helicopters operating in the High North. We have bought new generation anti-submarine frigates, have just completed a huge deal with the Norwegians to ensure interoperability across the Type 26 fleet, and have launched the groundbreaking Atlantic Bastion programme to protect the UK from Russian undersea threats. It is all part of widespread and regular operations involving our armed forces to maintain operational readiness across northern Europe.

The MOD keeps Russia’s military posture in the region under continuous review and conducts wider strategic monitoring with our allies. Of course, we recognise that Russia is an Arctic state with a legitimate presence, but we have to be clear that we will protect, and if necessary assert, our rights to safeguard security and international law. That includes honouring the integrity—

[John Slinger (Rugby) (Lab)]

I too was at the meeting of the APPG for Greenland, in a room nearby where we heard from Greenland’s Minister for business, mineral resources, energy, justice and gender equality. In addition to my hon. Friend’s important points about the military strength and prowess of this country and others, and about our alliances, does he agree that we need to send a very strong message about international law and the international rules-based system? That would give reassurance to the High North and Arctic countries, particularly Greenland, at this moment.

[Al Carns]

I completely agree. I think our Prime Minister has done exactly that, but the only people to decide the future of Greenland are those in Greenland, and NATO as a whole provides a collective security agreement for Greenland and other countries in the High North.

We cannot be naive about the challenges that we face. For example, the threat of damage to subsea electricity and telecommunications cables is an ongoing concern and underlines the importance of really close collaboration and interoperability with our European partners. Very simply, there can be no global security without security across the Arctic and northern Europe.

Let me move on to the points about Greenland. The past few weeks have seen an increasing focus on Greenland in the context of Arctic security, but the UK has been absolutely and utterly clear: the future of Greenland is a matter for the Greenlanders and the Danes, and no one else. Greenland, Denmark and the United States have worked closely since the second world war to ensure that this key territory is protected from various aggressors. That will always continue. Security in the Arctic must therefore be achieved collectively with NATO allies, including the United States, by upholding the principles of the UN charter—

[Valerie Vaz (in the Chair)]

Order.

--- Later in debate ---

On resuming—

[Al Carns]

Security in the Arctic must be achieved collectively, with NATO allies including the United States, by upholding the principles of the UN charter on sovereignty, territorial integrity and the inviolability of borders. These are universal principles and we will always defend them.

It is worth noting that we completed Exercise Tarassis, one of the biggest exercises in the High North, late last year. The next set of exercises in the High North is known as Lion Protector. We have a JEF chiefs of defence meeting coming up at the end of this week. Cold Response will take place, and is already under way, with a 40% increase in the Royal Marines deployed in the High North. They will be there all year round.

The RAF continues to patrol in the High North with various types of aircraft. Some bilateral outstanding agreements, such as the Lunna House agreement, have established interoperability like never before across our naval forces, particularly with Norway.

[Dr Al Pinkerton (Surrey Heath) (LD)]

Prior to our brief interruption, the Minister described a part of the world that is undergoing considerable change and turbulence, not least from climate change. Will he reflect on how UK procurement and military doctrine might have to go to a similar scale and rapidity of change in order to respond to, and reflect, the challenges of an increasingly liquified Arctic that is no longer in a frozen state?

[Al Carns]

For a long time during the cold war, a large proportion of our time was predisposed to looking to the high north-east and north-west in the Atlantic and the High North. It is a case of relearning some of our old lessons, and ensuring that our capability and technological mix is adapted into our doctrine, training tactics and procedures. For example, some of the work now going on in Exercise Cold Response is not necessarily about training; it is about actual mission set planning to prepare for the worst-case scenario, and that is how we are seeing it evolve through time. That will continue through the Lunna House agreement and various agreements we have with Sweden and Finland as part of the NATO alliance, so it will continue to get stronger. Importantly, we will never forget the JEF either, which is a super-important geopolitical alliance.

Politically and environmentally, the Arctic is in absolute flux. Rising temperatures are remoulding landscapes and turning centuries of certainty on their head. As the region grows increasingly contested, it is more important than ever for Britain to collaborate with like-minded states to uphold international law and strengthen our collective security. That is precisely what we are doing. We are working intensely with our partners to monitor threats, bolster our forces and stand up for our interests. As we boost defence spending to 5% of GDP over the next decade, protecting the stability and security of the High North and Arctic will be integral to our plans. That is how we will keep Britain secure at home and strong abroad.

Question put and agreed to.