House of Commons Defence Committee The Defence Implications of Possible Scottish Independence Sixth Report of Session 2013–14 Volume I Volume I: Report, together with an Appendix, formal minutes and oral evidence Additional written evidence is contained in Volume II, available on the Committee website at www.parliament.uk/defcom Ordered by the House of Commons to be printed 11 September 2013 HC 198 [Incorporating HC 483-I, Session 2012-13] Published on 27 September 2013 by authority of the House of Commons London: The Stationery Office Limited £15.50 The Defence Committee The Defence Committee is appointed by the House of Commons to examine the expenditure, administration, and policy of the Ministry of Defence and its associated public bodies. Current membership Rt Hon James Arbuthnot MP (Conservative, North East Hampshire) (Chair) Mr Julian Brazier MP (Conservative, Canterbury) Thomas Docherty MP (Labour, Dunfermline and West Fife) Rt Hon Jeffrey M. Donaldson MP (Democratic Unionist, Lagan Valley) Mr Dai Havard MP (Labour, Merthyr Tydfil and Rhymney) Adam Holloway MP (Conservative, Gravesham) Mrs Madeleine Moon MP (Labour, Bridgend) Penny Mordaunt MP (Conservative, Portsmouth North) Sir Bob Russell MP (Liberal Democrat, Colchester) Bob Stewart MP (Conservative, Beckenham) Ms Gisela Stuart MP (Labour, Birmingham, Edgbaston) Derek Twigg MP (Labour, Halton) The following Member was also a member of the Committee during this inquiry. Sandra Osborne MP (Labour, Ayr, Carrick and Cumnock) Powers The Committee is one of the departmental select committees, the powers of which are set out in House of Commons Standing Orders, principally in SO No 152. These are available on the internet via www.parliament.uk. Publications The Reports and evidence of the Committee are published by The Stationery Office by Order of the House. All publications of the Committee (including press notices) are on the internet at www.parliament.uk/parliament.uk/defcom. The Reports of the Committee, the formal minutes relating to that report, oral evidence taken and some or all written evidence are available in a printed volume. Additional written evidence may be published on the internet only. Committee staff The current staff of the Committee are Alda Barry (Clerk), Dougie Wands (Second Clerk), Karen Jackson (Audit Adviser), Ian Thomson (Committee Specialist), Christine Randall (Senior Committee Assistant), Rowena Macdonald and Carolyn Bowes (Committee Assistants), and Sumati Sowamber (Committee Support Assistant). Contacts All correspondence should be addressed to the Clerk of the Defence Committee, House of Commons, London SW1A 0AA. The telephone number for general enquiries is 020 7219 5745; the Committee’s email address is [email protected]. Media inquiries should be addressed to Alex Paterson on 020 7219 1589. The Defence Implications of Possible Scottish Independence 1 Contents Report Page Conclusions and Recommendations 3 1 Introduction 11 Scope of the inquiry 11 Background 12 Terminology 12 2 Foreign, security and defence policy 13 SNP Foreign, Security and Defence policy update 13 Possible threats 14 Foreign policy 14 Scottish Government policy position 15 The Scottish Government White Paper 15 3 A Scottish defence force 17 SNP policy 17 The role of a Scottish defence force 17 A Scottish navy 19 Surface ships 19 Submarines 20 Naval bases 21 A Scottish army 22 A Scottish air force 24 Air defence 24 Maritime patrol 26 Air bases 26 Associated costs 27 Division of assets 28 Training 29 Conclusion on a Scottish defence force 30 4 Scotland, the nuclear deterrent and NATO membership 31 Faslane and the nuclear deterrent 32 Costs and timescale for relocation 32 Implications 34 NATO membership 35 Background 35 Application process 35 5 The implications for the defence industry in Scotland 39 Background 39 An industry perspective 39 European Union procurement law 40 Article 346 TFEU 40 2 The Defence Implications of Possible Scottish Independence Shipbuilding and maintenance 41 Sovereign capability 42 Security clearance 43 6 Implications for the United Kingdom 45 Government planning for Scottish independence 45 Defence interests as part of independence negotiations 46 Implications for the security of the remainder of the United Kingdom 46 Future co-operation 47 Intelligence sharing 47 Shared facilities 48 Joint procurement 48 Interests of serving UK military personnel 49 Future recruitment 50 Participation in the referendum 50 The nuclear deterrent 51 7 Conclusion 52 Appendix 53 Resolution to SNP Conference: Foreign, Security and Defence Policy Update 53 Formal Minutes 55 Witnesses 56 List of additional written evidence 56 List of Reports from the Committee in Sessions 2012–13 and 2013–14 57 The Defence Implications of Possible Scottish Independence 3 Conclusions and recommendations SNP Foreign, Security and Defence policy update 1. Our scrutiny of the SNP’s updated Foreign, Defence and Security policy has revealed a large number of questions which remain to be answered by the Scottish Government in advance of the referendum in 2014. Much of the detail has still to be produced and we will await the Scottish Government’s forthcoming White Paper with keen interest. This document, once published, needs to provide answers to the unanswered questions for Scottish voters. They will wish to understand better how the defence of an independent Scotland would be configured should there be a “Yes” vote in September 2014. It will be for the Scottish Government to make its case that an independent Scotland can sustain an appropriate level of defence and security. (Paragraph 22) The role of a Scottish defence force 2. The SNP appears to envisage an independent Scotland which is outward looking, with a strong maritime focus given its geographic position. It would be keen to collaborate closely with northern European neighbours and expects to work with and through the UN, EU and NATO. Beyond that, however, we have found it very difficult to establish how the foreign and security policy of the SNP has informed its vision for a Scottish defence force. We have seen little evidence that the Scottish Government has reached any understanding with Northern European nations regarding military co-operation. Claims by the Scottish Government that its policy development has been hampered by a lack of co-operation from the UK Government seem to us to be somewhat overplayed. (Paragraph 29) 3. We will look to the Scottish Government’s forthcoming White Paper to provide additional information about its foreign and security policy and the role a Scottish defence force would be expected to fulfil. (Paragraph 30) A Scottish navy 4. In light of the evidence of the experience of other countries, we have serious doubts about the SNP’s stated intention to acquire conventional submarines. This could only be achieved by procurement from abroad at considerable cost and risk. (Paragraph 38) 5. As yet, the Scottish Government has given only a preliminary indication of its plans for a Scottish navy. When it publishes more detailed requirements, it will be important to know the following: (Paragraph 45) • What would be the size and configuration of its surface fleet and associated rotary wing force? • What personnel, vessels and helicopters would it hope to inherit from the Royal Navy? 4 The Defence Implications of Possible Scottish Independence • What additional vessels would it procure? • How many submarines would it procure, and from where would they and the necessary qualified personnel be sourced? • What role, size and configuration would any Marine Infantry capability take? and • How many naval bases would a Scottish navy operate from, where would they be, and how many personnel would be expected to be based at each? • Finally, the Scottish Government should make clear in its White Paper the anticipated cost of acquiring, staffing, operating and maintaining these assets. A Scottish army 6. The proposed retention and reinstatement of historic Scottish Regiments clearly has implications for the size and structure of a Scottish army. It is not apparent from the SNP’s published plans which Scottish regiments “previously abolished” it intends to restore or how that could be achieved within the overall numbers of personnel proposed. (Paragraph 51) 7. In light of the new British Army structures envisaged in the Army 2020 proposals, the Scottish Government should consider publishing a new plan for a Scottish army. (Paragraph 52) 8. Questions which it might wish to address include: (Paragraph 53) • What would be the size and structure of a Scottish army, including the envisaged balance of regular and reserve troops? • What would be the balance between combat (infantry and armoured), combat support (artillery, aviation and engineers), combat service support (logistics) and command support (communications) troops? • Which historic Scottish regiments would be reinstated? • Where would Scottish army units be based? • What equipment and infrastructure would a Scottish army expect to inherit from the British Army? • What would be the cost of recruitment, training and retention measures? and • How would a Scottish army attract and train the necessary specialist troops such as engineers, signallers and logistic personnel? A Scottish air force 9. We look forward to reading in the forthcoming White Paper the detailed proposals the Scottish Government has for the procurement and operation of a maritime The Defence Implications of Possible Scottish Independence 5 patrol squadron and how this will be financed within