The Shrinking Shield: The Royal Navy's Frigate Fleet in Decline Over Five Decades

The Royal Navy, once the undisputed master of the seas, faces a stark reality in 2026. The announcement that HMS Richmond, a Type 23 frigate commissioned in 1995, will be decommissioned this year marks another blow to the fleet. This decision reduces the number of active frigates to just six, following the recent retirement of HMS Lancaster in late 2025. With delays plaguing the Type 26, Type 31, and Type 32 programmes, the Navy's surface combatant force risks further erosion at a time of rising global threats.

In the 1970s, the Royal Navy's escort fleet - comprising destroyers and frigates - stood as a formidable deterrent during the height of the Cold War. In 1970, the Navy operated around 60 escorts, including Leander-class frigates and early Type 21s. These vessels were essential for anti-submarine warfare, convoy protection, and power projection. By 1980, despite some reductions, the fleet maintained over 50 major surface combatants, bolstered by the Falklands War experience which underscored the need for versatile frigates. The Type 22 and emerging Type 23 classes represented technological advancements, with the latter's towed array sonars setting new standards.

The post-Cold War era accelerated the decline. The 1990s "peace dividend" led to significant cuts under successive governments. By 1997, the combined destroyer and frigate count had fallen to approximately 35 vessels. The 1998 Strategic Defence Review aimed to modernise but prioritised fewer, more capable ships. This philosophy continued into the 2000s, with the Type 23 fleet peaking at 16 frigates by the early 2010s, alongside 16 destroyers, for a total of 32 escorts. However, budget constraints from the 2008 financial crisis prompted further reductions. The 2010 Strategic Defence and Security Review slashed the surface fleet, decommissioning four Type 22 frigates without replacement and reducing the overall escort force to 19 by 2015 - 13 frigates and six destroyers.

By the 2020s, the frigate fleet had shrunk alarmingly. In 2016, all remaining 13 Type 23s were operational, but retirements began in earnest. HMS Monmouth left service in 2021, followed by HMS Montrose in 2023, HMS Westminster and HMS Argyll in 2024, and HMS Northumberland in late 2024 due to uneconomical repairs. HMS Lancaster's decommissioning in December 2025 brought the count to seven. Now, with HMS Richmond's impending exit, only six remain: HMS Iron Duke, HMS Somerset, HMS Sutherland, HMS Kent, HMS Portland, and HMS St Albans. Reports suggest HMS Iron Duke may not return from maintenance due to personnel shortages, potentially dropping the figure to five. This represents a 60% reduction from the 13 frigates of a decade ago and a far cry from the 50-plus escorts of the 1970s.

Several factors underpin this decline. Budgetary pressures have been relentless. Defence spending as a percentage of GDP fell from over 4% in the 1980s to around 2% today, limiting fleet sustainment and renewal. Manpower shortages exacerbate the issue; the Navy struggles to crew existing ships, leading to early retirements to redistribute personnel. Operational demands, including commitments to NATO, the Indo-Pacific, and Red Sea operations, have strained ageing hulls designed for only 18 years’ service, accelerating wear and tear.

Delays in replacement programmes compound the problem. The Type 26 City-class frigates, designed for anti-submarine warfare, were intended to replace the Type 23s starting in the early 2020s. However, procurement setbacks, including design revisions and supply chain issues, have pushed the first vessel, HMS Glasgow, to late 2027 or early 2028. Only eight are planned, down from initial ambitions for more, with the programme costing over £8 billion. The Type 31 Inspiration-class, a general-purpose frigate, faces similar hurdles. Originally slated for 2023 entry, the first ship, HMS Venturer, is now expected in 2026 or 2027. Five are under construction, but capability insertion periods post-acceptance will delay full operational readiness.

The Type 32 programme, announced in 2020 to boost numbers to 24 escorts, remains mired in uncertainty. Intended as a multi-role platform for the 2030s, it lingers in the concept phase with no commissioning timeline. The Ministry of Defence has deferred decisions pending the Defence Investment Plan review, amid competing priorities like submarines and cyber capabilities. This "frigate gap" could persist until the mid-2030s, with projections indicating a return to 13 frigates only if Type 23s endure and new builds accelerate.

The implications are profound. Frigates form the backbone of naval operations, providing anti-submarine protection for carrier groups, maritime interdiction, and humanitarian aid. With just six active, the Royal Navy's ability to meet commitments is strained, as evidenced by the recent withdrawal from Middle East patrols. Geopolitical tensions, from Russian submarine activity in the Atlantic to Houthi threats in the Red Sea, demand a robust fleet. Export successes, such as Norway's intent to acquire Type 26 variants and Poland's Type 31 deal, highlight British design prowess but may divert domestic production capacity.

Reversing the decline requires bold action. Increasing defence spending to 2.5% of GDP, as pledged, could fund additional Type 26 or Type 31 hulls. Streamlining procurement, investing in shipyards, and addressing recruitment shortfalls are essential. The Royal Navy's heritage demands a fleet fit for the future, not one diminished by decades of underinvestment. As HMS Richmond sails into retirement, it symbolises not just the end of an era but a call for renewal.