Recommendations & Conclusions
22 items
1
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
Even in the sorry recent history of the Army’s attempts to procure Armoured Fighting Vehicles, MRAV—now Boxer—stands out as a stark example of how shifting priorities and indecision about requirements lead to increased costs and failure to deliver new capabilities.
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Even in the sorry recent history of the Army’s attempts to procure Armoured Fighting Vehicles, MRAV—now Boxer—stands out as a stark example of how shifting priorities and indecision about requirements lead to increased costs and failure to deliver new capabilities.
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Government response AI summary
The government provides background on past delays and outlines how many lessons from 2011 have already been implemented through new acquisition systems, the Army Operating Model, and DE&S transformation, leading to improved procurement approaches.
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Ministry of Defence
2
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
The Ministry of Defence and the Army embarked on a series of overly-ambitious procurement programmes which were too reliant on the development of nascent technologies in order to deliver viable capabilities; within these programmes; and, there was a reluctance to trade off capability requirements (such as vehicle weight) leading to …
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The Ministry of Defence and the Army embarked on a series of overly-ambitious procurement programmes which were too reliant on the development of nascent technologies in order to deliver viable capabilities; within these programmes; and, there was a reluctance to trade off capability requirements (such as vehicle weight) leading to programme cancellations and vacillation around decision-making. This was compounded by the desire to adapt requirements to concurrent operational experience. Too often the Ministry of Defence has aimed to deliver the 100 per cent solution tomorrow, rather than the 80 per cent solution today.
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Government response AI summary
The government states that Defence acquisition has improved, implementing previous observations by trading requirements and pursuing off-the-shelf solutions, and is committed to more realistic performance, cost, and time requirements. The Land Industrial Strategy will adopt a longer-term procurement approach with incremental technology insertion.
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Ministry of Defence
3
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
Procurement practices and skills were frequently found wanting; in 2011 the NAO concluded that the failure to introduce any new vehicles since 1997 indicated that, “the Department’s standard acquisition processes for armoured vehicles was not working”. Subsequently the Committee of Public Accounts concluded that “there [was] poor accountability for long-term …
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Procurement practices and skills were frequently found wanting; in 2011 the NAO concluded that the failure to introduce any new vehicles since 1997 indicated that, “the Department’s standard acquisition processes for armoured vehicles was not working”. Subsequently the Committee of Public Accounts concluded that “there [was] poor accountability for long-term equipment projects”. This process is, self- evidently, still not working a decade later.
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Government response AI summary
The government notes the committee's comments and acknowledges past challenges, stating its approach has significantly evolved over the past decade with improved management and a new three-step approvals process, which the NAO has recognized as making progress.
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Ministry of Defence
4
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We are concerned that the Ministry of Defence, and in particular Defence Equipment and Support may not have sufficient technically qualified staff and capacity to manage effectively the multiple armoured vehicle procurement and upgrade programmes that are currently underway. Given both the large amounts of taxpayer’s money at stake and …
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We are concerned that the Ministry of Defence, and in particular Defence Equipment and Support may not have sufficient technically qualified staff and capacity to manage effectively the multiple armoured vehicle procurement and upgrade programmes that are currently underway. Given both the large amounts of taxpayer’s money at stake and the importance of such programmes for our war fighting capability should deterrence fail, this appalling situation has now become completely unacceptable and must be rapidly reformed, including, if necessary, by senior management changes at DE & S Headquarters at Abbey Wood. (Paragraph 25) The UK’s armoured forces today
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Government response AI summary
The government notes the committee's concerns about staff capacity, stating that DE&S has undergone significant transformation focusing on skills, functional management, and professional qualifications, and is committed to continued growth, recruitment, and retention of optimal skills. It acknowledges headcount pressures as a challenge.
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Ministry of Defence
5
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We are astonished that between 1997 and late 2020 (with the exception of a small number of armoured engineering and Viking protected mobility vehicles) the Department had not delivered a single new armoured vehicle from the core procurement programme into operational service with the Army. It is clear that the …
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We are astonished that between 1997 and late 2020 (with the exception of a small number of armoured engineering and Viking protected mobility vehicles) the Department had not delivered a single new armoured vehicle from the core procurement programme into operational service with the Army. It is clear that the Ministry of Defence’s armoured vehicle programmes requires independent scrutiny. We ask the National Audit Office to revisit this issue to establish the costs incurred since its 2011 report, progress in delivering current programmes, current armoured capability gaps and the coherency and delivery realism of the Army’s current portfolio of armoured vehicle programmes, particularly in the context of the forthcoming Integrated Review.
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Government response AI summary
The government disputes the premise of no new armoured vehicles, listing several programs delivered, but confirms that the NAO has already acted on the committee's recommendation to conduct a study into AFV procurement, which the Department will fully support.
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Ministry of Defence
6
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We note that the Department’s recent experience of upgrading older vehicles with new weapons and turrets has been difficult, resulting in additional costs and delays 54 Obsolescent and outgunned: the British Army’s armoured vehicle capability in delivering the required capability. The Challenger 2 LEP calls for the integration of a …
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We note that the Department’s recent experience of upgrading older vehicles with new weapons and turrets has been difficult, resulting in additional costs and delays 54 Obsolescent and outgunned: the British Army’s armoured vehicle capability in delivering the required capability. The Challenger 2 LEP calls for the integration of a new digitised turret and main gun, along with other upgrades, within an existing hull. When making the decision on whether to proceed with the programme, the Department must ensure that it has reduced such risks as far as possible and fully weighed the options between upgrade and an off-the-shelf replacement. The Department should also provide us with a timetable for the programme and explain what alternatives have been considered. We also believe that the Department should examine the possibility of fitting Challenger with an automatic loader.
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Government response AI summary
The government confirms that off-the-shelf alternatives were considered and explains why the CR2 LEP was chosen as a better value solution. It provides a detailed timetable for the CR2 LEP programme up to 2031 and explains that the auto-loader option was dismissed on capability and …
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Ministry of Defence
7
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We do not want to see the Army forced to ensure a lengthy capability gap as a consequence of emergent technical and integration issues. The Department should confirm to us that the UK’s main battle tank capability is currently fit for purpose and will remain so until Challenger 2 LEP …
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We do not want to see the Army forced to ensure a lengthy capability gap as a consequence of emergent technical and integration issues. The Department should confirm to us that the UK’s main battle tank capability is currently fit for purpose and will remain so until Challenger 2 LEP reaches Full Operating Capability (assuming this project is approved later in 2021).
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Government response AI summary
The government confirms that while Challenger 2 requires modernisation, the Challenger 2 Life Extension Project (CR2 LEP) has been approved, and the Army is committed to ensuring its smooth and timely delivery. Detailed plans are now under development for the transition to Challenger 3 to …
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Ministry of Defence
9
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
The Ministry, which mandated this weapons system, should therefore now be fully transparent about the cost of this new, highly specialised ammunition and its implications for the full life-cycle costs of the vehicle (and indeed for Ajax, which utilises the same weapon system).
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The Ministry, which mandated this weapons system, should therefore now be fully transparent about the cost of this new, highly specialised ammunition and its implications for the full life-cycle costs of the vehicle (and indeed for Ajax, which utilises the same weapon system).
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Government response AI summary
The government agrees on the need for transparency and explains the higher cost of the 40mm ammunition reflects increased capability, with overall costs reduced through increased effectiveness and cooperation with France. It confirms that a Full Business Case in 2019 outlined the estimated whole life …
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Ministry of Defence
10
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We note the significant delay and expenditure on the continuation of the Warrior CSP and that, after nine years and over £400 million in sunk costs, the Department has still to decide on the placement of a production contract. We would expect the Department to assess carefully the merits of …
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We note the significant delay and expenditure on the continuation of the Warrior CSP and that, after nine years and over £400 million in sunk costs, the Department has still to decide on the placement of a production contract. We would expect the Department to assess carefully the merits of continuing with the programme against both the potential for further technical challenges and whether the upgraded vehicle is still the best option for the Army in light of the Integrated Review. The Department should set out what steps it is taking to ensure there is no capability gap
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Government response AI summary
The government has decided to no longer upgrade Warrior, instead accelerating the Boxer programme to become the primary mechanised infantry platform for the Army by 2030, as part of the 'Future Soldier' transformation.
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Ministry of Defence
15
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We welcome the decision to procure the Boxer armoured vehicle for the British Army, albeit more than ten years later than would have been the case had the UK stayed in the original multi-national consortium. As part of the Integrated Review and associated funding decisions, the Department should seek to …
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We welcome the decision to procure the Boxer armoured vehicle for the British Army, albeit more than ten years later than would have been the case had the UK stayed in the original multi-national consortium. As part of the Integrated Review and associated funding decisions, the Department should seek to accelerate the procurement of Boxer to ensure the Army receives this new capability as soon as possible. In particular we are astonished that the current contract only provides for production of one vehicle a week. In parallel, the British Army, while exploring the range of options Boxer may offer, should learn the lessons of previous failures and avoid adding additional requirements while it is being delivered. Once the vehicle is in-service options to incrementally add upgrades or extra capability may be pursued.
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Government response AI summary
The government agrees on the desirability of accelerating Boxer procurement, stating the MOD intends to accelerate and enhance the programme to deliver full operational capability by 2030. It confirms the programme will learn lessons from previous failures and plans for iterative upgrades throughout Boxer's life, …
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Ministry of Defence
16
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We believe that commonality of platforms and modularity of capability such as sensors and weapon systems will be an essential element in maintaining an effective and capable Army. The Department should ensure that future decisions around procuring new vehicles give greater weight to the undoubted benefits offered by both commonality …
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We believe that commonality of platforms and modularity of capability such as sensors and weapon systems will be an essential element in maintaining an effective and capable Army. The Department should ensure that future decisions around procuring new vehicles give greater weight to the undoubted benefits offered by both commonality of vehicle hulls and the modularity of equipment and weapons systems. 56 Obsolescent and outgunned: the British Army’s armoured vehicle capability It should be a matter of course that weapon systems and, for example, refrigeration units for vaccines, can be moved easily between platforms, even if produced by different manufacturers.
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Government response AI summary
The government fully supports commonality and modularity, outlining that the Land Equipment Platform Strategy will reduce platform types and the Army has adopted LOSA and Generic Vehicle Architecture. It details how modularity will be achieved through 'Through Life Capability Management Plans,' Installation Provision Made in …
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Ministry of Defence
18
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
While we welcome the ongoing efforts to modernise the fleet, new vehicles will only trickle into service over the next four years, and it seems unlikely that they will do so in sufficient numbers to make a material difference by 2025. For example, the Ministry of Defence does not expect …
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While we welcome the ongoing efforts to modernise the fleet, new vehicles will only trickle into service over the next four years, and it seems unlikely that they will do so in sufficient numbers to make a material difference by 2025. For example, the Ministry of Defence does not expect to contract for the upgrade of Challenger 2 until later this year (assuming the Integrated Review concludes that heavy armour should be retained). Given the recent history of UK armoured vehicle programmes, it seems unlikely that enough upgraded vehicles will have been completed, tested and brought into service within four years.
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Government response AI summary
The government acknowledges the concern about delivery timelines and states that with the CR2 LEP approved, a joint effort is investigating ways to accelerate its delivery and that work is ongoing to accelerate Boxer. Findings are due to the Secretary of State by the end …
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Ministry of Defence
19
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
An “artillery duel” between a modern British and Russian division would now only be likely to end one way—and not necessarily to the British Army’s advantage.
Government response AI summary
The government dismisses the premise of a direct divisional artillery duel with Russia. However, it details significant investments including £800 million for the Mobile Fires Platform, upgrades to the MLRS, and collaborative development of extended-range missiles to enhance artillery capabilities.
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Ministry of Defence
20
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We share our witnesses’ concern that, considering recent experience in Ukraine and elsewhere, UK armoured forces may find themselves at a serious disadvantage in terms of artillery capability and air defence when facing a peer adversary. The Ministry of Defence must urgently pursue options to address shortfalls in artillery, air …
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We share our witnesses’ concern that, considering recent experience in Ukraine and elsewhere, UK armoured forces may find themselves at a serious disadvantage in terms of artillery capability and air defence when facing a peer adversary. The Ministry of Defence must urgently pursue options to address shortfalls in artillery, air defence and anti-drone capabilities.
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Government response AI summary
The government agrees this is a top priority and outlines specific programmes to address shortfalls, including the Land Ground-Based Air Defence Programme for air and anti-drone capabilities, with the Counter-Small-UAS project adding mass from 2023. For artillery, it details the Mobile Fires Platform and Tracked …
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Ministry of Defence
22
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We share Brigadier Barry’s concern about the message that any reductions in the Army’s ability to conduct high-intensity warfighting in defence of NATO may send to both our allies and adversaries. Whatever the specific conclusions that emerge from the Integrated Review, the Army must retain (or perhaps regain) its credibility. …
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We share Brigadier Barry’s concern about the message that any reductions in the Army’s ability to conduct high-intensity warfighting in defence of NATO may send to both our allies and adversaries. Whatever the specific conclusions that emerge from the Integrated Review, the Army must retain (or perhaps regain) its credibility. From the evidence provided we doubt whether, currently, the Army has sufficient armoured capability to make an effective contribution to NATO deterrence. We have agreed this report before publication of the Integrated Review: in its response, the Department should set out what effect any reduction in the Army’s headcount as a result of the Review will have on delivery of armoured vehicles and on the Army’s ability to deploy them. (Paragraph 89) Obsolescent and outgunned: the British Army’s armoured vehicle capability 57
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Government response AI summary
The government states that the Integrated Review will radically transform the Army, committing to significant investments including c£1.3 billion for Challenger 3 upgrades, accelerated Boxer procurement, a new ground-based air defence system, and substantial funding for GMLRS, Mobile Fires Platform, and electronic warfare.
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Ministry of Defence
23
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
The lack of a credible short-range air defence system for our land forces, especially in light of the rapidly increasing threat from unmanned aerial vehicles, is of particular concern. We have already noted in Chapter 3 that the Army is also overmatched in terms the artillery firepower available to our …
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The lack of a credible short-range air defence system for our land forces, especially in light of the rapidly increasing threat from unmanned aerial vehicles, is of particular concern. We have already noted in Chapter 3 that the Army is also overmatched in terms the artillery firepower available to our likeliest peer adversary and lacks the ability to fire anti-tank missiles from under armour. The Ministry of Defence must ensure that these capability gaps are filled as a matter of urgency.
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Government response AI summary
The government acknowledged the need for Ground Based Air Defence (GBAD) and outlined programmes to deliver SHORAD/MRAD capabilities from 2026, a Counter-small UAS capability by 2023, and anti-tank missile capability through the Battle Group Organic Anti-Armour (BGOAA) programme.
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Ministry of Defence
24
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We share the concerns of our witnesses and our predecessors. It appears that, as part of the Integrated Review, there is a risk that the Army’s current armoured capabilities (albeit in need of modernisation) are at risk of being denuded on the basis of promises of technically advanced ‘jam tomorrow’. …
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We share the concerns of our witnesses and our predecessors. It appears that, as part of the Integrated Review, there is a risk that the Army’s current armoured capabilities (albeit in need of modernisation) are at risk of being denuded on the basis of promises of technically advanced ‘jam tomorrow’. Experience has shown that these technologies have a long gestation period and may not be realised within useful timescales (for example the ‘electric armour’ concepts proposed in the late 1990s). It would be unacceptable for the Army to give up its heavy armoured forces only to be faced with a repeat of the FRES fiasco, followed by the need to urgently procure a new batch of vehicles to meet a sudden crisis. The Department should not place its faith in a ‘big bang’ type development of its armoured capabilities, but rather should focus on the incremental development and experimentation approach aligned with our NATO allies.
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Government response AI summary
The government states its current modernisation programme aims to create an advanced fleet that will adapt to emerging threats through iterative enhancements and upgrades, aligning with the committee's recommendation. It emphasizes focused R&D with allies and the Land Industrial Strategy's goal of iteratively upgrading capabilities …
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Ministry of Defence
25
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
The Department must ensure that Project Morpheus is adequately resourced with technically qualified staff to facilitate coordination and integration with its current and planned armoured vehicle programmes. Based on the Department’s track record in the Land sector we are concerned that the programmes necessary to deliver the capability described above …
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The Department must ensure that Project Morpheus is adequately resourced with technically qualified staff to facilitate coordination and integration with its current and planned armoured vehicle programmes. Based on the Department’s track record in the Land sector we are concerned that the programmes necessary to deliver the capability described above will not be delivered in a timely manner and, given the pace of technology development in this field, may be obsolete before it is delivered. In order to retain a shred of credibility the Army must set out the programmes that comprise the capability described above along with a statement on whether each will be delivered in time to provide the capability described and how obsolescence will be avoided. Based on the Department’s track record in the Land sector we are concerned that the programmes necessary to deliver the capability described above will not be delivered in a timely manner and, given the pace of technology development in this field, may be obsolete before it is delivered
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Government response AI summary
The government describes the ongoing LETacCIS program as the digital backbone, detailing recently achieved milestones and future competitions. It outlines the "Evolutionary Capability Delivery" principle to rapidly field new technology and respond to threats, aiming to avoid obsolescence through modular upgrades and optimized approval processes.
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Ministry of Defence
26
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We support the Ministry of Defence’s initiative to develop a Land Industrial Strategy. The LIS should place the land sector on an equal footing with the Air and Maritime sectors, providing industry with certainty for the coming decades and ensuring the Army has access to the technical and manufacturing base …
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We support the Ministry of Defence’s initiative to develop a Land Industrial Strategy. The LIS should place the land sector on an equal footing with the Air and Maritime sectors, providing industry with certainty for the coming decades and ensuring the Army has access to the technical and manufacturing base that will facilitate the development of new technologies as armoured warfare capabilities evolve. The Strategy should also make clear sustaining capability relies on co-operation with allies.
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Government response AI summary
The government commits to developing and introducing a Land Industrial Strategy, acknowledging its importance and stating it will envision an innovative, globally competitive segment. It confirms that co-operation with allies in the Land Domain will be a central theme of the strategy.
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Ministry of Defence
28
Recommendation
Fifth report: Obsolescent and outgunned…
Accepted
We trust the creation of and adherence to the proposed Land Industrial Strategy will improve the UK’s competitiveness in this sector. The Ministry of Defence, the British Army and their Industry counterparts must work together to map out the coming decades for the armoured vehicle sector. (Paragraph 107) Conclusion
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We trust the creation of and adherence to the proposed Land Industrial Strategy will improve the UK’s competitiveness in this sector. The Ministry of Defence, the British Army and their Industry counterparts must work together to map out the coming decades for the armoured vehicle sector. (Paragraph 107) Conclusion
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Government response AI summary
The government welcomes and agrees with the recommendation, explaining that the Land Industrial Strategy will foster a greater partnership with industry and provide a sustainable work pipeline. A Land Capability Campaigns Office has also been established under UK Defence and Security Exports to coordinate export …
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Ministry of Defence
29
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
This report reveals a woeful story of bureaucratic procrastination, military indecision, financial mismanagement and general ineptitude, which have continually bedevilled attempts to properly re-equip the British Army over the last two decades. Even on the MoD’s own current plans (but subject to the Integrated Review), we are still some four …
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This report reveals a woeful story of bureaucratic procrastination, military indecision, financial mismanagement and general ineptitude, which have continually bedevilled attempts to properly re-equip the British Army over the last two decades. Even on the MoD’s own current plans (but subject to the Integrated Review), we are still some four years away from even being able to field a “warfighting division”, which, itself, would now be hopelessly under-equipped and denuded of even a third combat brigade.
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Government response AI summary
The government acknowledges past issues but highlights a focus on urgent operational requirements. It states the Integrated Review and 'Future Soldier' plan will radically transform the Army, committing to equipping two Heavy Brigade Combat Teams with Ajax, Challenger 3, and Boxer vehicles, accelerating the Boxer …
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Ministry of Defence
30
Conclusion
Fifth report: Obsolescent and outgunned…
Accepted
Were the British Army to have to fight a peer adversary—a euphemism for Russia— in Eastern Europe in the next few years, whilst our soldiers would undoubtedly remain amongst the finest in the world, they would, disgracefully, be forced to go into battle in a combination of obsolescent or even …
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Were the British Army to have to fight a peer adversary—a euphemism for Russia— in Eastern Europe in the next few years, whilst our soldiers would undoubtedly remain amongst the finest in the world, they would, disgracefully, be forced to go into battle in a combination of obsolescent or even obsolete armoured vehicles, most of them at least 30 years old or more, with poor mechanical reliability, very heavily outgunned by more modern missile and artillery systems and chronically lacking in adequate air defence. They would have only a handful of long-delayed, new generation vehicles, gradually trickling into the inventory, to replace them. (Paragraph 109) Obsolescent and outgunned: the British Army’s armoured vehicle capability 59
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Government response AI summary
The government agrees that the UK's technical advantage has diminished and acknowledges the need for evolution, stating the current AFV fleet remains fit for purpose against the most likely threats. It describes ongoing modernization programs and investment in R&D to counter long-range fires and develop …
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Ministry of Defence