Source · Select Committees · Scottish Affairs Committee

Fourth Report - Defence in Scotland: military shipbuilding

Scottish Affairs Committee HC 1096 Published 27 January 2023
Report Status
Government responded
Conclusions & Recommendations
98 items (28 recs)
Government Response
AI assessment · 98 of 98 classified
Accepted 36
Accepted in Part 3
Acknowledged 49
Not Addressed 4
Rejected 6
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Recommendations

13 results
3 Accepted
Para 19

In its response to this report, the UK Government should set out what work it...

Recommendation
In its response to this report, the UK Government should set out what work it did, in preparing the National Shipbuilding Strategy Refresh, to estimate and measure the benefits of procuring ships domestically for the Scottish economy and the wider … Read more
Government Response Summary
The Government stated they seek to account for the wider benefits from shipbuilding procurement programmes through the application of the Social Value model. The National Shipbuilding Office (NSO) and the MOD have undertaken a series of regional assessments to better understand the economic footprint of the UK shipbuilding industry.
Scotland Office
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11 Accepted
Para 38

The UK Government should carry out and lay before Parliament a formal evaluation of the...

Recommendation
The UK Government should carry out and lay before Parliament a formal evaluation of the contribution of the National Shipbuilding Office after two years, and again after five and ten years, to assess whether it has succeeded in driving better … Read more
Government Response Summary
The NSO is gathering the required data to monitor and assure the delivery of the Refresh and is suitably empowered to provide strategic oversight of all Government activity across the shipbuilding enterprise and is committed to demonstrating accountability and value publicly where possible.
Scotland Office
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13 Accepted

To enhance its relationships with the Scottish shipbuilding sector, the National Shipbuilding Office should, by...

Recommendation
To enhance its relationships with the Scottish shipbuilding sector, the National Shipbuilding Office should, by the end of 2023, establish a permanent staff presence in its Edinburgh hub, as the MoD and NSO have indicated. (Paragraph 40) The shipbuilding pipeline Read more
Government Response Summary
The Department stated that they have already signed a lease for a base in Queen Elizabeth House in Edinburgh, which will be used by the NSO to host its staff and support visits. The NSO is advertising jobs based in Edinburgh.
Scotland Office
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23 Accepted
Para 70

The Ministry of Defence should, in line with its commitments in the National Shipbuilding Strategy...

Recommendation
The Ministry of Defence should, in line with its commitments in the National Shipbuilding Strategy and the UK Government’s commitments in Maritime 2050, work specifically to develop shipbuilding clusters in Scotland. In responding to this report, the UK Government should … Read more
Government Response Summary
The MOD referenced its SME Action Plan and engagement with the Scottish Supplier Development Programme as actions already in place to support shipbuilding clusters and address barriers to Scottish SMEs.
Scotland Office
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24 Accepted
Para 71

The Ministry of Defence should report back to us at the end of the financial...

Recommendation
The Ministry of Defence should report back to us at the end of the financial year to confirm whether it met its target of spending 25 per cent of its procurement spend with SMEs. In addition, it should provide an … Read more
Government Response Summary
The MOD stated that they had a target of 25% SME procurement spend by the end of 2022, with Scottish SMEs playing a significant role, and that figures are being gathered and will be published. They also stated that regional statistics for FY21/22 have been published and confirm £67M went directly to Scottish SMEs, representing 7% of direct SME spend.
Scotland Office
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26 Accepted
Para 75

The MOD should set out how it evaluates social value in competitions, how it measures...

Recommendation
The MOD should set out how it evaluates social value in competitions, how it measures the delivery of social value in the contracts it negotiates, and how it holds contractors accountable to ensure they meet those targets. It should also, … Read more
Government Response Summary
The MOD uses the Cabinet Office Social Value Model, measures delivery through standard reporting metrics, contract-specific metrics, and a Social Value Key Performance Indicator, and manages performance through reporting obligations, performance management terms, and a formal framework for managing relationships with its largest suppliers.
Scotland Office
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30 Accepted

Building on the work of the UK Shipbuilding Skills Taskforce, the Ministry of Defence should...

Recommendation
Building on the work of the UK Shipbuilding Skills Taskforce, the Ministry of Defence should commission regular research to develop and keep up to date its understanding of the current and future skills profile of the shipbuilding workforce, and the … Read more
Government Response Summary
The government states that the UK Shipbuilding Skills Taskforce (UKSST) is already addressing this challenge and includes representatives from Skills Development Scotland and Scottish industry.
Scotland Office
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38 Accepted

The UK Government should carry out and lay before Parliament a formal evaluation of the...

Recommendation
The UK Government should carry out and lay before Parliament a formal evaluation of the contribution of the National Shipbuilding Office after two years, and again after five and ten years, to assess whether it has succeeded in driving better … Read more
Government Response Summary
The government states that the NSO is gathering the required data to monitor and assure the delivery of the Refresh, and reports to the Secretary of State for Defence who has the ability to hold other Ministers to account. They believe the NSO is suitably empowered to provide strategic oversight and is committed to demonstrating accountability and value publicly, including the publication of the NSO Corporate Plan (2022–25).
Scotland Office
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40 Accepted

To enhance its relationships with the Scottish shipbuilding sector, the National Shipbuilding Office should, by...

Recommendation
To enhance its relationships with the Scottish shipbuilding sector, the National Shipbuilding Office should, by the end of 2023, establish a permanent staff presence in its Edinburgh hub, as the MOD and NSO have indicated. Defence in Scotland: military shipbuilding … Read more
Government Response Summary
The NSO has signed a lease for a base in Queen Elizabeth House in Edinburgh to host its staff and support engagement. The NSO advertises all its job vacancies to be based from either its Edinburgh or London offices.
Scotland Office
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54 Accepted

In its response to this report, and in its annual shipbuilding update to the Defence...

Recommendation
In its response to this report, and in its annual shipbuilding update to the Defence Select Committee, the UK Government should provide an update on the current status of the military shipbuilding pipeline for Scottish naval yards. In particular, it … Read more
Government Response Summary
The government confirms the Royal Navy intends to procure more frigates and destroyers, states the T32 program is in the concept phase, and the suspension of the National Flagship has not created a gap in the pipeline as the MROS ships are being brought forward.
Scotland Office
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75 Accepted

The MOD should set out how it evaluates social value in competitions, how it measures...

Recommendation
The MOD should set out how it evaluates social value in competitions, how it measures the delivery of social value in the contracts it negotiates, and how it holds contractors accountable to ensure they meet those targets. It should also, … Read more
Government Response Summary
The MOD uses the Cabinet Office Social Value Model as the framework, measures social value delivery using standard metrics, contract-specific metrics, and a Social Value Key Performance Indicator, and manages performance like any other contractual obligation with appropriate reporting and performance management terms.
Scotland Office
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79 Accepted

The Ministry of Defence should publish data on the composition of shipbuilding supply chains, to...

Recommendation
The Ministry of Defence should publish data on the composition of shipbuilding supply chains, to assist understanding of how the UK shipbuilding industry is structured. This should include regional breakdowns so that the extent of local supply chains and industry … Read more
Government Response Summary
The MOD states it already has initiatives to improve understanding of supply chains, including a Supply Chain Resilience Programme and a new Defence Condition (DEFCON) requiring supply chain maps.
Scotland Office
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88 Accepted

Building on the work of the UK Shipbuilding Skills Taskforce, the Ministry of Defence should...

Recommendation
Building on the work of the UK Shipbuilding Skills Taskforce, the Ministry of Defence should commission regular research to develop and keep up to date its understanding of the current and future skills profile of the shipbuilding workforce, and the … Read more
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) is collaborating across Government, the Devolved Administrations, industry and training providers to develop and implement a future-focussed skills strategy and intends to publish a report of recommended actions in autumn 2023.
Scotland Office
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Conclusions (23)

Observations and findings
2 Conclusion Accepted
Para 18
If bids from Scottish yards are to be fairly compared with those of their international competitors, this process should be based on a full analysis of their respective benefits, including the benefits to the local economy and in additional tax revenue collected in the UK. However, it is not clear …
Government Response Summary
The Government seeks to account for the wider benefits from shipbuilding procurement programmes through the application of the Social Value model and regional assessments. The NSO also works with MOD procurement teams to ensure economic benefits are considered.
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4 Conclusion Accepted
Para 24
The decision to award the Fleet Solid Support (FSS) ships to the international consortium Team Resolute is an example of a shift in the UK Government’s approach to warship procurement. We note that the UK Government chose the Team Resolute bid over a Team UK bid that would reportedly have …
Government Response Summary
The MOD states that the decision to award the Fleet Solid Support ship contract to Team Resolute did not prioritise short-term savings and that the decision was the result of a fair and open competition, supporting the objectives of the National Shipbuilding Strategy.
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22 Conclusion Accepted
We note that the MOD did not agree with the concerns expressed by Scottish SMEs during our Defence in Scotland: military landscape inquiry about the difficulties they experienced engaging with the Ministry. The steps the UK Government outlined in its response to our report are encouraging; however, we believe the …
Government Response Summary
The MOD published the SME Action Plan in 2022 which outlines the commitments being made to increasing and supporting opportunities for Small and Medium Enterprises (SMEs). The Department for Transport is the lead Government Department for the Regional Maritime Cluster Development Programme.
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25 Conclusion Accepted
Para 74
We heard that including a social value component in shipbuilding contracts can help deliver benefits for the wider economy and in shipbuilding communities. However, there are challenges in measuring how effectively those commitments are being delivered on.
Government Response Summary
The NSO and the MOD are committed to ensuring that social value commitments through Government shipbuilding procurements and investments are delivered. Under the Cabinet Office Social Value Model, the contracting authority is also mandated to assess the supplier’s performance.
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41 Conclusion Accepted
A theme we heard repeatedly emphasised during our inquiry was the importance of a regular ‘drumbeat’ of orders to provide a consistent workload that could help industry plan for the future. Stakeholders from all parts of the sector stressed that shipbuilding is an industry that operates on long timescales and …
Government Response Summary
The MOD recognizes the importance of maintaining a regular drumbeat of orders across the Shipbuilding industry and the NSbS aims to provide a more sustainable demand signal from Government through a 30-year cross-Government Shipbuilding Pipeline. The NSO has committed to updating the shipbuilding pipeline at each multi-year Spending Review.
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46 Conclusion Accepted
Other elements of the pipeline face questions, including the Type 32 frigates, which under the pipeline suggested above would be built by Babcock at Rosyth from 2028 into the late 2030s. A National Audit Office report in November noted that, in July 2022, Navy Command withdrew its initial plans for …
Government Response Summary
The MOD recognizes the importance of maintaining a regular drumbeat of orders across the Shipbuilding industry and the NSbS aims to provide a more sustainable demand signal from Government through a 30-year cross-Government Shipbuilding Pipeline. The NSO has committed to updating the shipbuilding pipeline at each multi-year Spending Review. The Type 32 Frigate programme remains a key part of the future fleet and will be UK-built, but the procurement route has yet to be determined.
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65 Conclusion Accepted
The UK defence sector, and the shipbuilding industry in particular, is dominated by a relatively small number of major companies. This is partly as a result of significant rationalisation and consolidation over the years, the highly specialised nature of its work and its limited customer base. In 2021/22, 42 per …
Government Response Summary
The MOD published the SME Action Plan in 2022, outlining commitments to increasing opportunities for SMEs and supporting the defence supply chain through initiatives such as the Defence Suppliers Portal and digital outreach.
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66 Conclusion Accepted
Only a small proportion of MOD spending with SMEs goes to Scottish SMEs, however. During our previous defence inquiry into Scotland’s military landscape, the MOD told us that Scottish SMEs accounted for just over £25 million of the MOD’s total spend. This is around 2.5 per cent of the approximate …
Government Response Summary
The MOD had a target of 25% of procurement spend going to SMEs by the end of 2022 and expects Scottish SMEs played a significant role in this. Figures for FY21/22 show £67M went directly to Scottish SMEs, representing 7% of total direct SME spend.
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68 Conclusion Accepted
We heard that geographically targeted measures could be an effective way of involving SMEs in defence supply chains, such as fostering the growth of industry clusters. Hans Pung of RAND Europe, when asked what the UK Government could do to promote SME involvement, suggested that “the MOD working-with-industry group should …
Government Response Summary
The MOD outlines the SME Action Plan and initiatives to support SMEs, including the Defence Suppliers Portal, SME champions, and digital outreach. They also note the Department for Transport is the lead for the Regional Maritime Cluster Development Programme.
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69 Conclusion Accepted
We note that the MOD did not agree with the concerns expressed by Scottish SMEs during our Defence in Scotland: military landscape inquiry about the difficulties they experienced engaging with the Ministry. The steps the UK Government outlined in its response to our report are encouraging; however, we believe the …
Government Response Summary
The MOD published the SME Action Plan in 2022 which outlines the commitments being made to increasing and supporting opportunities for Small and Medium Enterprises (SMEs), including easier procurement models, recognition of the role of the MOD and its suppliers in supporting the supply chain, and support for innovation and exports. The MOD also supports the Defence Suppliers Portal and digital outreach, and aims to achieve 25% of Defence spend with SMEs this year. The Department for Transport is the lead for the Regional Maritime Cluster Development Programme.
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72 Conclusion Accepted
Another tool the MOD uses to attempt to deliver benefits for local economies and communities is through using social value criteria to evaluate contracts. The MOD has a minimum 20 per cent weighting for social value. which will be applied to shipbuilding competitions.113 We heard that the three areas the …
Government Response Summary
The NSO and the MOD are committed to ensuring that social value commitments through Government shipbuilding procurements and investments are delivered. Under the Cabinet Office Social Value Model, the contracting authority is also mandated to assess the supplier’s performance.
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74 Conclusion Accepted
We heard that including a social value component in shipbuilding contracts can help deliver benefits for the wider economy and in shipbuilding communities. However, there are challenges in measuring how effectively those commitments are being delivered on.
Government Response Summary
The NSO and the MOD are committed to ensuring that social value commitments through Government shipbuilding procurements and investments are delivered. Under the Cabinet Office Social Value Model, the contracting authority is also mandated to assess the supplier’s performance.
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76 Conclusion Accepted
Professor Keith Hartley of the University of York told us that there was a limited understanding of shipbuilding supply chains: The problem we face in the Scottish shipbuilding industry is that, although we know the major primes like BAE and have a limited amount of information on their supply chains …
Government Response Summary
The MOD operates initiatives to improve understanding of supply chains, including the Supply Chain Resilience Programme and a new Defence Condition (DEFCON) requiring contractors to provide supply chain maps.
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77 Conclusion Accepted
The Defence Secretary acknowledged that the MOD’s understanding of supply chains had been “one of our vulnerabilities” in the past, but said that since then “there has been a real drive across Government, and certainly in our department, to map and understand your supply chain right the way through the …
Government Response Summary
The MOD operates a series of initiatives to improve understanding of supply chains and address vulnerabilities, including a Supply Chain Resilience Programme and the introduction of a new Defence Condition (DEFCON) in contracts to map supply chains.
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78 Conclusion Accepted
We heard that historically the Ministry of Defence’s understanding of shipbuilding supply chains had been a vulnerability. The Secretary of State told us this had subsequently improved. The new Defence Supply Chain Strategy’s emphasis on building resilience in supply chains is welcome, and improving understanding of supply chains further will …
Government Response Summary
The MOD states that it already operates several initiatives to improve the understanding of supply chains, including a Supply Chain Resilience Programme and a new Defence Condition (DEFCON) in contracts.
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80 Conclusion Accepted
A number of contributors to our inquiry highlighted that shipbuilding is an industry that requires a highly trained and specialised workforce.127 This is particularly true in the warship industry because warships are built to more demanding specifications: they must be built to withstand combat, and they incorporate a number of …
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) seeks to address this challenge by collaborating across Government, the Devolved Administrations, industry and training providers to develop and implement a future-focussed skills strategy, with a report of recommended actions expected in autumn 2023.
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81 Conclusion Accepted
As well as employing large numbers of skilled workers in its shipyards, Scotland also trains highly specialised workers at its higher and further education institutions, many of which go on to work for BAE and Babcock. Among the institutions which provide shipbuilding qualifications in Scotland are City of Glasgow College, …
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) seeks to address this challenge by collaborating across Government, the Devolved Administrations, industry and training providers to develop and implement a future-focussed skills strategy, with a report of recommended actions expected in autumn 2023.
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82 Conclusion Accepted
The Confederation of Shipbuilding and Engineering Unions said workforce recruitment, skills and retention were “the biggest challenge for the industry and the enterprise collectively.”129 City of Glasgow College, one of the biggest trainers of Scottish shipbuilders, agreed that “Scottish shipbuilding cannot succeed without addressing chronic shortages in labour and skills.”130 …
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) is collaborating across Government, the Devolved Administrations, industry and training providers to develop and implement a future-focussed skills strategy and intends to publish a report of recommended actions in autumn 2023.
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83 Conclusion Accepted
A further challenge relates to retaining existing staff. Witnesses told us that uncertainty about future workloads could lead to staff leaving their roles. John Howie of Babcock said: “There are inherent inefficiencies in ordering a batch of ships and then not ordering anything for four, five or six years. It …
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) seeks to address the challenge of retaining existing staff by developing and implementing a future-focussed skills strategy. The UKSST includes representatives from Skills Development Scotland and Scottish industry and intends to publish a report of recommended actions in autumn 2023.
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84 Conclusion Accepted
Witnesses emphasised the importance of a reliable drumbeat of work to help them recruit and retain staff. City of Glasgow College called for “a clearer demand signal to trigger both the public and private sector investment needed to expand the shipbuilding workforce.”138 Hans Pung of RAND Europe agreed that “the …
Government Response Summary
The government is addressing this challenge through the UK Shipbuilding Skills Taskforce (UKSST), which aims to develop and implement a future-focused skills strategy and publish a report of recommended actions in autumn 2023.
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85 Conclusion Accepted
Another challenge identified by contributors related to retraining and lifelong learning for the existing workforce. City of Glasgow College told us “a skilled workforce which is regularly upskilled and reskilled across a lifetime is vital to sustaining a world-class shipbuilding industry in Scotland and the UK.” The College drew attention, …
Government Response Summary
The UK Shipbuilding Skills Taskforce (UKSST) is collaborating across Government, the Devolved Administrations, industry and training providers to develop and implement a future-focussed skills strategy and intends to publish a report of recommended actions in autumn 2023.
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87 Conclusion Accepted
We heard evidence that the MOD and the Scottish Government could both have a better understanding of the skills profile of the shipbuilding workforce. This makes workforce planning for a highly advanced sector like military shipbuilding more challenging.
Government Response Summary
The government is addressing this challenge through the UK Shipbuilding Skills Taskforce (UKSST), which aims to develop and implement a future-focused skills strategy and publish a report of recommended actions in autumn 2023.
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96 Conclusion Accepted
The UK Shipbuilding Skills Taskforce’s report should identify the skills demands of the warship industry specifically, as well as steps that can be taken to meet those needs.
Government Response Summary
The scope of the UKSST aligns with the NSbS Refresh and it will therefore consider the skills requirements and know-how for the entirety of the shipbuilding enterprise, including the warship, commercial, workboat and leisure market sectors, both in the short and long term.
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