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Select committee: Defence Committee

The Armed Forces Covenant

Closed Opened 13 Dec 2024 Closed 3 Sep 2025 5 recommendations 8 conclusions

Defence Committee Inquiry on parliament.uk ↗

Inquiry scope (the committee's words)
This inquiry will examine the Armed Forces Covenant, the UK’s commitment to ensuring that members of the Armed Forces community are supported and treated fairly. The inquiry will explore whether the Covenant is working, examine areas where serving or former personnel and their families continue to face difficulties, and consider how the Covenant might be updated or expanded in scope. The Government has indicated that changes to the Covenant could be brought in during the next Parliamentary session as part of the next Armed Forces Bill; the recommendations of this inquiry will be able to inform that legislation. The Secretary of State has granted special dispensation for Service Personnel to provide evidence to the Committee's inquiry. The MOD is content for serving personnel and civil servants to submit written evidence to the inquiry on the understanding that: it is in a personal capacity; in line with long-standing principles as Crown Servants, submissions from those employed by the MOD only comment on personal experiences and not matters of policy; and, those submitting evidence do not reveal private information about other people.

Where it stands

The inquiry is closed, opened 13 December 2024.

The committee has published 1 report, most recently 4th Report – The Armed Forces Covenant on 8 April 2025.

The government's response

Published 16 June 2025.

Summary written by Accountability Index from the government's response. It is not the government's own words.

The MOD agrees with the Committee's main conclusions on the Armed Forces Covenant and accepts the recommendations on extending the Covenant Legal Duty and on data collection, while stating that UK-wide minimum standards 'would not be appropriate'.

  • The MOD agrees with the conclusions at Paragraphs 13 and 20 and recognises that application of the Covenant principles 'varies across the UK'.
  • On a strategy for consistent application, it says the Legal Duty is 'deliberately flexible and does not mandate outcomes', and that UK-wide minimum standards would not be appropriate. It will provide training materials, webinars, downloadable resources and updated statutory guidance.
  • It accepts the recommendation to extend the Duty to all government departments and the devolved governments. Officials are 'currently developing plans' for this, and it acknowledges the extension will place 'additional strain' on departments and local authorities.
  • It accepts the recommendation on data collection, says the evidence available is 'limited', and will hold the next Covenant conference in July 2025. On departmental reporting it will 'engage with OGDs to consider how best they can report'.

Read the government's response ↗ Report an error

Recommendations and conclusions

All 13 recommendations and conclusions

Reports

All reports

Evidence

  • 3 oral evidence sessionsLatest 11 March 2025
  • 16 witnesses
All evidence

Recent activity

Recommendations and conclusions 13 shown

2: Allow time for the Select Committee to hear diverse oral evidence on the Armed Forces Bill.

Recommendation · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Recommended (the committee's words)
Assuming precedent is followed, a Select Committee will be appointed to consider the Armed Forces Bill, with the opportunity to hear oral evidence before considering the Bill line by line. We recommend that the Government allow time for that Committee to hear from a broad range of organisations with an interest in the Armed Forces Covenant, as well as on other issues that may be within the scope of the Bill. (Recommendation, Paragraph 6) The Covenant today

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3: Armed Forces Covenant inconsistently applied, failing many service personnel and veterans.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
The evidence we received shows that where the Covenant is working well it is improving outcomes for service personnel, their families and veterans and is removing some of the disadvantages people face as a result of military service. However, this was not the experience of everyone who responded to our inquiry. We heard many examples where the Covenant was not working as designed, resulting in people who have served being financially disadvantaged, unable to access medical care, or unable to find an appropriate school for their children as a result of their service. In cases like these, the Government and society are falling short of their commitment to the Armed Forces community. (Conclusion, Paragraph 13)

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4: Inconsistent implementation of the Covenant Legal Duty across the UK.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
Implementation of the Covenant Legal Duty varies considerably across the UK. In some places the Legal Duty has resulted in the creation of new policies and initiatives that have tangibly improved the lives of the forces community; in others the Duty appears to have changed very little. As a result, people’s experiences of the Covenant are very different depending on where they live, which services or organisations they interact with and which individual member of staff in an organisation they speak to. This is frustrating for people in the forces community, and gives them the impression that the Covenant is a hollow commitment. The Government wants to expand the scope of the Covenant, and we understand the reasons 26 for this. However, equal attention must be given to ensuring that the Legal Duty is consistently and appropriately applied and translates into better outcomes for people in the forces community. (Conclusion, Paragraph 20)

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5: Develop a strategy for consistent, comprehensive application of the Armed Forces Covenant Legal Duty.

Recommendation · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Recommended (the committee's words)
Alongside its plans to legislate for an expanded Covenant Legal Duty, the Government should develop a strategy for making sure the Covenant is fully and consistently applied and recognised by signatories and by those subject to the Legal Duty across the UK, including in the Devolved Administrations. Actions as part of this strategy could include establishing clear and demanding standards and mechanisms for accountability, improving guidance to those delivering services, and facilitating knowledge-sharing so that best practice can spread. (Recommendation, Paragraph 21) The future of the Covenant

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6: Extension of the Covenant Legal Duty to central government departments welcomed.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
We welcome the proposal to extend the Covenant Legal Duty to areas of central government. If this duty is properly implemented, we would expect to see Whitehall departments taking the needs of the forces community into account during policy development, so that the forces community are not unintentionally disadvantaged by new policies. (Conclusion, Paragraph 28)

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7: Extend Armed Forces Covenant duty to all government departments with clear guidance.

Recommendation · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Recommended (the committee's words)
The Government should extend the application of the Armed Forces Covenant so that all Government departments and the devolved administrations are required to give due regard to the principles of the Armed Forces Covenant. As the current duty of ‘due regard’ is inconsistently interpreted, the extended duty must be accompanied by clear guidance so that the duty is clearly understood and is not treated as a tick-box exercise. (Recommendation, Paragraph 29)

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8: Expansion of Covenant Legal Duty requires co-design and adequate resourcing.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
The Government is right to recognise that the existing Covenant Duty does not reach into many areas of life in which the service community faces disadvantage, and to consider expanding the scope of the Covenant Legal Duty. As noted in the previous chapter, extending the Legal Duty will only achieve meaningful results if it is also deliverable. The extension of the Duty must therefore be co-designed with those who will be bound by it and expected to deliver it, and they must be appropriately resourced to enable them to do so. Otherwise there is a risk that existing commitments will be diluted and that those who deliver the Covenant will only be able to provide the bare minimum of support. Such an outcome would let down the forces community. (Conclusion, Paragraph 30)

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9: Expand Covenant Legal Duty, co-designing with local authorities for effective, deliverable implementation.

Recommendation · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Recommended (the committee's words)
The Covenant Legal Duty should be expanded to cover the breadth of areas in which members of the Armed Forces community regularly experience disadvantage. The Government should work closely with local authorities and other bodies who might be required to deliver an expanded Covenant 27 Duty to co-design a Duty that meets the needs of the forces community and that can be delivered in the context of severe constraints on their resources. (Recommendation, Paragraph 31)

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10: Fragmented evidence hinders understanding of Armed Forces Covenant effectiveness and accountability.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
The evidence available to help us understand how well the Covenant is working is currently very fragmented. This makes recognising success, learning lessons and holding organisations to account difficult. The Minister told us there were ‘plans afoot’ to create structures that can improve Government’s understanding of how well the Covenant is working. (Conclusion, Paragraph 36)

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11: Provide the Committee with updates on improving data collection for Covenant delivery.

Recommendation · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Recommended (the committee's words)
The Government should provide the Committee with an update, in its response to this Report and when it gives evidence to the Committee on the Covenant Annual Report in the future, on the work it is doing to improve data collection and sharing of how the Covenant is being delivered. (Recommendation, Paragraph 37)

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12: Require Whitehall departments to provide annual updates on Covenant implementation and outcomes.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
To enable proper scrutiny of cross-government efforts to implement the Covenant, Whitehall departments should provide an annual update on actions they have taken to uphold the Covenant as part of the Covenant Annual Report, along with outcomes. Departments should–when requested to do so by the Committee–make themselves available to give evidence as supporting witnesses alongside MOD as part of the Committee’s scrutiny of the Covenant Annual Report. (Recommendation, Paragraph 38)

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13: Armed Forces Covenant not consistently implemented, falling short of its commitment.

Conclusion · 4th Report – The Armed Forces Covenant · Addressed to Ministry of Defence

Concluded (the committee's words)
The Armed Forces Covenant is a solemn commitment by our whole society to recognise the courage and dedication of our Armed Forces. While progress has been made since the Covenant was introduced, it is still not consistently implemented and as a result our society is falling short of that commitment far too often. The upcoming Armed Forces Bill is an opportunity to renew and reinforce the nation’s promise to those who serve, but this is only part of the change that needs to occur. Understanding of the Covenant needs to be deeply embedded in our institutions and in wider society so that those who have served can be in no doubt that the Covenant is there to support them. The Covenant gives us all a duty to our service men and women; we must take it as seriously as they have taken their duty to us. (Conclusion, Paragraph 39) 28

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Reports

1 report

Oral evidence sessions

3 sessions

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Date Session and witnesses Source
11 Mar 2025
Oral Evidence Session
Alistair Carns DSO OBE MC MP · Ministry of Defence, James Greenrod · Ministry of Defence, Sarah Houghton · Ministry of Defence, Vice Admiral Phillip Hally CB MBE · Ministry of Defence 		View ↗
25 Feb 2025
Oral Evidence Session; Panel 2
Cllr Gillian Ford · Local Government Association (LGA), Col. James Phillips · Office of the Veterans Commissioner for Wales, Councillor Lis Burnett · Welsh Local Government Association (WLGA), David Johnstone · Office of the Northern Ireland Veterans Commissioner, Kate Davies · Ofcom, Lt Cdr (Retd) Susie Hamilton · Office of the Scottish Veterans Commissioner, Mike Callaghan · Convention of Scottish Local Authorities (COSLA) 		View ↗
4 Feb 2025
Panel 1; Panel 2
Collette Musgrave · Army Families Federation, Lieutenant General Sir Nick Pope KCB CBE · Cobseo, Mark Atkinson · The Royal British Legion, Rebecca Lovell · Naval Families Federation, Vanessa Plumley · RAF Families Federation 		View ↗

Who gave evidence

16 witnesses

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WitnessOrganisationSessions
Alistair Carns DSO OBE MC MP · Parliamentary Under-Secretary of State (Minister for Veterans and People) Ministry of Defence 1
Cllr Gillian Ford · Deputy Chair of the Wellbeing Board Local Government Association (LGA) 1
Col. James Phillips · Veterans Commissioner for Wales Office of the Veterans Commissioner for Wales 1
Collette Musgrave · Chief Executive Army Families Federation 1
Councillor Lis Burnett · Presiding Member Welsh Local Government Association (WLGA) 1
David Johnstone · Northern Ireland Veterans Commissioner Office of the Northern Ireland Veterans Commissioner 1
James Greenrod · Head of Armed Forces People Support Ministry of Defence 1
Kate Davies · Public Policy Director Ofcom 1
Lieutenant General Sir Nick Pope KCB CBE · Chair Cobseo 1
Lt Cdr (Retd) Susie Hamilton · Scottish Veterans Commissioner Office of the Scottish Veterans Commissioner 1
Mark Atkinson · Director General The Royal British Legion 1
Mike Callaghan · Policy Manager Convention of Scottish Local Authorities (COSLA) 1
Rebecca Lovell · Head of Policy Naval Families Federation 1
Sarah Houghton · Director of Armed Forces People Policy Ministry of Defence 1
Vanessa Plumley · Acting Director RAF Families Federation 1
Vice Admiral Phillip Hally CB MBE · Chief of Defence People Ministry of Defence 1

Correspondence

2 letters

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PublishedDirectionLetter
8 Jul 2025 Not recorded Letter dated 30th June from MinVP to the Chair regarding the Covenant Legal Duty.pdf
9 Jan 2025 Not recorded Letter dated 23rd December from Secretary of State to Chair regarding dispensation to Service Personnel to contribute to inquiry on the Armed Forces Covenant