With the Royal Navy’s two amphibious assault ships—HMS Albion and HMS Bulwark—set for probable sale to Brazil, a new feature in Britain’s World, the Council on Geostrategy’s online magazine, explores the deeper question behind the headlines: is the United Kingdom right to accept capability gaps today in pursuit of future readiness?

In this edition of The Big Ask, five leading experts tackle the question from different perspectives, offering sharp insight into what the loss of these vessels means—and what it signals about wider defence policy.

Charlotte Kleberg, Associate Fellow at the Royal Navy Strategic Studies Centre, warns that the decision to dispose of Albion and Bulwark may be short-sighted: “Unused, the ships still signal capacity. Selling them now sends the wrong message, saves little and undermines credibility.”

Tom Sharpe OBE, former Royal Navy commander, is more direct in his criticism, arguing that this is the latest in a long line of early capability sacrifices: “At some point in the next ten years, the UK is going to wish that it had one of these ships still in mothball.”

Others like William Freer, a Research Fellow at the Council on Geostrategy, note that for a relatively modest sum, the vessels could have remained in reserve, preserving both deterrence and flexibility: “The Treasury seems allergic to the idea of spending money to keep equipment in reserve.”

David Blagden of the University of Exeter raises strategic questions, suggesting these ships may still have had a role in crisis scenarios from the Arctic to the Falklands: “Two large warships with sizeable flight decks and extensive command facilities could be – and have been – turned to other valuable uses.”

Yet not all voices are critical. Dr Emma Salisbury, the Council’s Sea Power Research Fellow, cautions that such decisions are part and parcel of long-term defence planning: “Jam tomorrow is fine,” she says, “but it needs to be the right kind of jam.”

This instalment of The Big Ask reflects Britain’s World at its most thoughtful—posing hard questions at the intersection of strategy, capability and national ambition. With its mix of expert insight, policy relevance and sharp editorial focus, the magazine is, in my independent view, a trusted read for those in Parliament, Whitehall, and beyond.

Read the full feature here: Is Britain right to sacrifice capability today for ‘jam’ tomorrow?

For regular strategic insight, including The Cable, The Signal, and The Blueprint, consider subscribing to Britain’s World, the Council’s online magazine on Britain’s global role.

George Allison
George has a degree in Cyber Security from Glasgow Caledonian University and has a keen interest in naval and cyber security matters and has appeared on national radio and television to discuss current events. George is on Twitter at @geoallison

76 COMMENTS

    • Yeah !!!!! Sorry Jim, I beat you to it.

      Anyway, “Jam Tomorrow” is the way forward until we are all “Toast!”.

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    • And we are all bitter about that, but at least your not selling a from home business worth £300 dollars a day..

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        • so when in our Lifetimes do we expect to see the royal marines storming a bear ch? some on here should get a less biased perspective on the subject. we don’t need bulwark and the Albion. they’ve been used in meaningless exercises and command control duties.👍

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    • let’s buy ocean back from them. she’ll go for a good few years yet. shouldn’t have sold her in the first place.

  1. First and foremost what are the key risks at present..capabilities and mass are not something that sit in isolation they sit within a context of risk, risk realisation mitigation and purpose/use.

    Core present purpose

    1) deterrent, the overriding purpose of the peacetime military is to deter and protect the nation from the possibility of war and conflict. For this they must be able to demonstrate to any potential aggressor the three Cs communication, credibility, capability.. both in nuclear, conventional and across all domains..deterrence is about showing the ability to inflict very significant harm, not about defence ( sometimes I feel the idea of a ministry of defence has over time eroded this core tenet of deterrence..after all china has a central military commission that controls its armed forces not a ministry of defence its ministry of defence is separate and simply helps coordinate national defence as a different purpose..you fight china your fighting a military commission” ..the ability to just defend is not and never has been a deterrent..only the ability to inflict massive harm deters.

    2) combating sub kinetic conflict and engagement in political warfare. This includes, securing infrastructure against attack, as well as securing against polical warfare attacks and actively combating political warfare with its own offensive polical warfare ( modern example include offensive cyber, drone warfare against terrorists etc).

    3) ensuring UK international interests, via supporting alliances, visiting and supporting allies as well as establishing and supporting regional security and global access to markets and materials.

    risk realisation ( future purpose )

    Essentially this is what is needed if point 1 fails and we are attacked or war occurs related to either point 2 ( escalation of political warfare) or point 3 national interest.

    In these cases who are our potential enemies.. well Russian in Europe as an existential threat, Argentina in the south Atlantic as an existential threat to our south Atlantic and Antarctic territory, china in access to the western pacific sea lanes and markets, Iran and its proxies in regards.

    So do we have the forces to A deter all these enemies. B undertake political warfare on the high seas, C protect our interest and finally when the chips are down and its all gone wrong, fight a war with one of these enemies, where it matters to us ( hint we will never be fighting a naval war with china in the china seas..but we may have a dispute say in the south Atlantic with them..if we had a war with Russia we may need to crack its bastion and kill its SSNs. Etc etc.

    • Of course we don’t have the ability to do that. If we had enough military to deter our enemies, Russia would not have invaded Ukraine when we asked them not to. Admittedly we sent Liz Truss to do the asking, so communication and credibility also weren’t of the highest order. But we kept pushing and they are still not deterred.
      We are supposed to be part of an alliance, but the fact that we can do nothing without US help makes us irrelevant until we can step up alongside other allied countries. Until then, it’s not an alliance. It’s a crutch.

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  2. The UK gaping things, that is state normal. We do it all the time as we are not first world power etc but small poor island with no money and you cannot have every thing. Sooner some wake up to that the better. Time face up to it and be good as most things not all things after all we are in NATO for a reason.

    • NATO is always weaker & less credible when we cut & gap forces & basic capabilities, whatever spin is put on it. Our enemies note it & are emboldened. We need these or their direct replacements to project & retrive forces deployed. It is our own throat we are cutting.

    • no we arent poor, we used to spend 5% on defence, our goverment have just prioritised other things to win votes
      UK is one of the richest countries in the world and a G7 member, stop running the country down

        • The trouble with the Cornish is they didn’t invent the Devonshire Cream Tea…. (clue’s in the name) that’s why they have got it wrong. It always makes me cringe seeing how they spread Marmalade on the Toast first then try to add the butter on top at breakfast too.

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  3. Gapping capabilities is down to poor planning and decision making, it isn’t necessary and shouldn’t need to be discussed, but it’s a reality that seems to be becoming the norm now.

    The expectation always seems to be that conflict is only for a future that will never arrive, it’ll never happen today for any sitting government, it’ll be someone else’s problem. There’s no problem looking to the future if you are in a good position today, but that isn’t the case and they have been aware of issues and potential for capability gaps and chose not to address them and continue to do so.
    It’s hard to see how you can claim that capabilities are needed whilst seeing it as acceptable to choose to gap them, it’s just negligence.

  4. It is part of a thought process that bring parsimonious is a ‘good thing’ and an end in itself.

    Whereas outputs are the ‘good thing’

    Tom Sharpe alluded to this in a Telegraph article a few months ago.

  5. We have never really been in a position to buy whatever we need without getting into serious debt ! We still managed for a number of years to run a competitive navy. We probably did so at the expense of having a larger army. We are still today capable of building a new navy for the 21st century, the next Dreadnought will probably be a non crewed remote ship or something like it ! We must do what we always have done and innovate to push other countries into greater expenditures to keep up.

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    • “We have never really been in a position to buy whatever we need without getting into serious debt !”

      False. The people “educated” by the political-journalist-cultural complex do not care for defence. UK is a very rich country, it just choose to spend its vast sums of money in other things.

        • Andy, PIP is awarded to those with serious health issues. To get PIP, you have to go through many stages, questions, medical history to back it up and some rather impersonal scrutiny.
          Please understand that some people are actually too poorly and maybe try picking on another subject ?
          PIP is not a living wage, It’s a helping hand for vulnerable people.

  6. Clearly a decision driven by chronic shortages of manpower, particularly in key areas like engineering. It’s an issue which needs to be gripped first and foremost otherwise going back up to 13 frigates and bringing MRSS into the fleet will all be for nothing.

    I’m all for operating carriers, but I increasingly think this situation of trying to keep both QE & PoW in active service simultaneously when we haven’t got the escorts or aircraft to put together a second CSG is of dubious worth, especially when it’s stretching manpower pressures to breaking point.

    I’d rather see one active with the other at low readiness if it meant keeping Bulwark crewed, and in turn Albion in reserve ready to replace her one final time to take them out to the mid 2030’s.

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    • How many eggs, it is related to size of uk economy we are a middling western economy. Military expectations should be in line with that. We should get best value out of what we spend absolutely. Gaps occur when there’s too much expectation and not enough resources. Secondly we are probably very good at some stuff and mediocre at other stuff. We don’t have to do it all, we can’t.

      • In fairness to Frank he has a valid point. Really it’s been bad planning and management. You avoid capability gaps by financing and developing the new generation of weapons and platforms before you get a crisis. The T23 issue was entirely avoidable; the LPD situation was probably inevitable once we had committed to the QE carriers and SSBN replacement. With hindsight maybe 3 x America class LHDs would have been a smarter move.

        • No thats basically what we had before but with the America class you get 2/3 the cost for 1/4 of the capability.

          • Well, I’ll bow to your superior knowledge. Interesting though that Argus is going with CSG2025 – another flat top.

    • In the particular instance of the cancellation of T45 7 & 8, it was nothing whatsoever to do with gapping. It was a bit of a Political Shell game, engineered by G Browne and executed by Bob Ainsworth. In 2008 UORs and supporting the forces in Afghanistan was really stretching the defence budget and at the same time the 2 new carriers were in build at Rosyth (next constituency to G Browne’s). The latter were sacrosanct and the SNP vote was increasing so the cancellation was spun as defending the Scottish Shipbuilding industry by protecting the QE build and cancelling the 2 T45’s so that the building of 13 T26 Frigates on the Clyde could be “accelerated”.

      Please resit the temptation to roll on the floor laughing about the latter bit ! The worst bit was that the T45 build was going extremely well, BAecand their block par tenders were on a real roll with the production schedule and costs per hull were falling. Other than the 5 River B2s shipbuilding pretty well stopped on the Clyde.

      • That was one of the really tragic cuts.. it should have been 10 T45s…but losing 7-8 was a real kick to the surface fleet.

  7. Capability gapping has become a gamble that UK has become used to making – MARPAT, Alarm, air launched anti ship missile, nearly heavyweight ASuW, AEW, GBAD – one day it’ll cost us dearly! It’s penny pinching negligence and ineptitude

  8. The UK signed an agreement to sell Albion and Bulwark to Brazil on 2 April for a reported price price £10 million. I suppose that given the Chagos Islands fiasco, we should be thankful that the government has not agreed to pay Brazil a few £billion to take the ships of our hands. More relevantly, I believe that a principle of economics (which the the Treasury certainly subscribes to) is never consider already sunk costs, only the future costs still be incurred. Retaining the two LPD’s in extended reserve for another decade would probably when all costs are considered (amortisation, skeleton crew, essential maintenance, occasional docking and recertification, mooring and dockyard costs …) amount to over £100M each. That’s about enough to buy two F-35B’s, or a battery of 155mm guns, or 100’s of missiles, or operate RFA Fort Victoria (if the personnel can be found!). Nevertheless, given the current world situation I’m shocked (but not surprised given the Chagos deal) that the UK government has decided to immediately end the UK’s ability to undertake serious amphibious warfare operations. The Commandant of the US Marine Corps said when we sold HMS Ocean to Brazil that unfortunately he could no longer consider the Royal Marines as being a strong partner, presumably we now don’t even make the grade of a very junior partner.

    • “the UK government has decided to immediately end the UK’s ability to undertake serious amphibious warfare operations”. ( where serious means opposed beach landings). This is the nub of the matter. This decision has ben taken either because we can’t afford it, and/or because the assessment of risk is that it is very unlikely we will need to do it, and/or because circumstances or technology have enabled an alternative way of handling the risk with or without partners. We are still waiting for the MRSS design, so presumably the powers that be are still figuring out what capability we will need !

      • The pretence that there is some serious military assessment behind scrapping the LPDs would be more credible if Bulwark wasn’t 80% through a refit with £70m plus spent when the decision was made. The obvious question is what great military event caused the rethink?
        The truth is we have insufficient sailors to crew one LPD and some of the recently discarded Type 23s have gone for the same reason. These plus the Waves, Pumas etc are just a cost cutting measure.
        I have heard nothing in the MRSS discussions that suggests we will be getting anything more than a lean manned LPD with a hangar and some self defence capabilities. Therefore the premature loss of Albion/Bulwark is nothing more than another capability gap to save in defence terms peanuts.

        • Tragically, all true: for the moment decisions are based on balancing the books while minimising the defence risk. It’s a mess we shouldn’t have got ourselves into ( actually as a nation) but we have so it’s a case of best endeavours, rolling up sleeves, necessity is the mother of invention, thinking out of the box……pick your favourite saying.

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    • Whilst many people in the U.K. find it difficult to take the criticism from the Trump team it is fair to say strong partners do require more than 140 MBTs, 7 Fast jet squadrons, 14 Escorts and 5 SSNs. They also need to be able to train all their own fighter pilots (you don’t actually need that many) and have an AEW capability.
      Gapping important capabilities whilst simultaneously reducing your entire military to a very small number of high quality platforms with matching personnel numbers means you loss the ability to significantly effect matters in any domain ; air, sea or land for any sustained period if at all. The incoherent cuts in the 2010 SDR sealed our fate in the matter and it would tale at least the same timescale to reverse the decline even if sufficient funds were made available.
      I am doubtful if the U.K. has the political will or understanding to recognise the damage done to our credibility as a strong ally and to rectify the problem in full. If that’s the case then we need to agree what we need to do and shape a defence policy that reflects it rather than continuing the pretence we can deliver a full spectrum of capabilities, which we haven’t been able to do for at least 15 years.
      For me that means we focus first on increasing the mass of our air and maritime assets whilst modernising the Army without any increase in its size until the RAF/RAF are of sufficient size to provide a credible deterrent with the ability to strike an enemy hard.
      I fear SDR 2025 will continue the mantra of silly phrases such as ‘punching above our weight’, which is the mindset that has got us into this mess in the first place.

    • Gapping is almost always down to the fact that the services don’t have the money to pay for the equipment they want
      The RN budget is only enough to build one T26 frigate per 18 months or so, the T31 probably.one per 9-12 months. There is no money to fund a chunk of the RN’s wishlist, including the second MROS, anything beyond 3 or possibly 4 new Stirling Castle MCMVs and probably some part of the MRSS order.

      Ship building is slowed down to fit within the budget and everything that can be retired early or sold off is promptly removed from active service. This is done to create some operating and manpower savings, in order to channel some money into the budget.

      All the services face the same problem, that the money available for procurement is, on 2% of GDP, insufficient to even replace what’s in service. Hence the premature retirement of the Typhoon F2, the Hercules fleet, Stormer, AS-90 etc, etc. There is no interest in storing reserve and retired equipment, the sole focus at MOD is turning the kit into money, even if it’s only scrap value. We would need to be spending 3% or 3.5% of GDP just to, at best, stop the number of equipments reducing a little more every year.

      That is why talk of laahing out on a class of T32 frigates or whatever, is pie in the sky. If the RN evet gets them, they will be at the expense of some other class of ships, aircraft or army AFVs being discarded and flogged off or melted down.

      This has been a common bind for three or 4 decades now. Things will not improve until a lot more money is pumped into the procurement budget.

      .

      • I honestly think the T32 has already been sacrificed so the RN can have 6 MRSS that will be reasonable littoral combatants.

          • Rosyth is emblematic of govt UK industrial strategy and Scottish labour votes. Orders will happen, preferably export; if not expect Brazil or New Zealand to be offered bargain one owner from new frigates.

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      • • The Hercules fleet was old and knackered.
        • The AS-90s were donated to Ukraine to destroy the Russian military. 116 RCH-155s to be delivered by 2030, with possibly more ordered.

        Labour will tell you they are increasing % of GDP to 2.5% and then 3%. Plus they are going to grow the GDP so that those %s are bigger wedges of cash. I’m not convinced the latter will happen…

        • Hi Spock.
          “The Hercules fleet was old and knackered.”
          Maybe so, but still irritating when it is reported the Turks are buying them for use anyway.
          116 RCH 155. This figure comes from the original, and regularly copied, number the Army was looking at with FMF. That was when 1 RHA, 19RA, 3 RHA, and possibly 4 RA could have been so equipped.
          3 RHA is now equipped with MLRS, and 4 RA supports 7 Light Mech Bde, so unsure if a RCH155 type SPG fits that?
          I still expect somewhere from 60 to 80 guns, given the Regiments and Batteries that remain that could use it.
          116, or even more, would be fab though.

  9. Not having Albion and Bulwark means that the number of replacement vessels is far more likely to be 3 or 4 rather than 6.

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    • Tend to agree; Argus + 3 Bays = 4 support ships ( LPD / LSD hybrid?). That said, opinions suggest 6 MRSS now that SS = strike ship…hybrid frigate / LPD?

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