Al Carns
MP for Birmingham Selly Oak · Labour · United Kingdom
“As Russia becomes increasingly boxed in in Ukraine, it looks towards horizontal escalation. I welcome today’s announcement and the move to proscribe some of these groups.”
“Open-source media has highlighted that when the US and Israel struck Iran many months ago, a certain target was destroyed in Tehran. Overnight, a large proportion of Scottish independence media died, which underlines the point about division and protecting the right to self-determination and democracy in this country.”
“I echo the thoughtful and meaningful comments that Members from across the House have made today. I did not know Ann Widdecombe, but I definitely knew what she stood for: public service. She was a unique character and an amazing public servant, with many years of sacrifice.”
“This is not four or five different threats; it is one consistent threat, which is swaying the minds of large chunks of populations across the globe. Can the Home Secretary give me some detail on how we are clamping down on some of that adversarial, nefarious activity and making online activity much safer?”
“I have been clear, since several weeks ago, that I was not content with the funding for the DIP or the transformational nature of it. I have been really encouraged in the last couple of weeks by the speed at which it is moving. We need to move more, and I think the spending review in due course will round that off.”
“I could not agree more with my hon. Friend. Data is the new gunpowder. AI is absolutely critical in defence, and we should use all of our technological advantage to move faster and further than ever before. We should be bold and jump to the next generation of systems, and not wait for anyone else to lead—we should lead ourselves.”
The complete record
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“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.”
“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.”
“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.”
“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.”
“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 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.”
“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.”
“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.”
“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.”
“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.”
“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 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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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 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.”
“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 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.”
“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.”
“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 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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”
“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.”