AFC0020

Written evidence submitted by Lieutenant Commander (retired) Susanna Hamilton, Scottish Veterans Commissioner.

The Scottish Veterans Commissioner works to improve outcomes and opportunities for veterans and their families in Scotland. This involves championing the challenges they face and influencing policymakers to address any changes required in devolved public services so that their needs are met.

The Commissioner’s role, as laid down by the terms of their appointment by Scottish Ministers, is to:

•                   be open and accessible to the real life experiences of individual veterans and use information about them to shape priorities and drive improvement in public services;
•                   raise the profile of veterans within Scotland, promoting wider recognition of their skills, experience and potential and further promoting their value as assets to communities and employers;
•                   enhance focus on delivery of shared outcomes for veterans through collaboration, building on and complementing the work of partners and stakeholders;
•                   improve communication, co-ordination and integration, joining up services where appropriate;
•                   chair the Scottish Veterans Fund Panel to ensure that robust recommendations and appropriate applications for the Fund are presented to the Minister for Veterans, and
•                   improve outcomes for Armed Forces and Veterans’ Families, recognising that they too require support, including during periods of transition.

Preamble

The submission below highlights areas of strength and lack of progress in the provision of services and support for the veteran community, with specific references to Scotland where appropriate. It is important to note that the driver for progress has not been solely the Armed Forces Covenant. The Covenant legislation has contributed to some measures; however, it is considered that the UK and Scottish Government’s Veterans Strategies and the recommendations of the Scottish Veterans Commissioners have had more impact on public services for the veteran community in Scotland. The points below cover general progress for the veteran community in Scotland, the Covenant is specifically mentioned where it is felt that it has driven change.

Where is the Armed Forces Covenant working well?

Recognition: The existence of the Covenant has, to some extent, increased the general awareness across statutory services of the needs and support that some veterans may require, due to their service.

Healthcare: The Covenant has facilitated access to priority healthcare for veterans with service-related conditions. NHS Scotland offers priority treatment for veterans with service-related conditions. Initiatives such as the Veterans First Point network provide tailored mental health and wellbeing support in some health board areas.

Housing: Some local authorities have implemented effective housing policies for veterans, including close collaboration with social landlords and third sector housing and housing advice providers.

Employment Support: Scotland’s skills agency, Skills Development Scotland (SDS) has an MOU with the MOD and has delivered the Skills Discovery Tool in collaboration with SCQF. The tool maps MOD qualifications to the Scottish framework, with the added benefit of meta skills discovery matched to each military role.

The Defence Employer Recognition Scheme (ERS) and wider corporate pledges under the Covenant have encouraged businesses to create Armed Forces-friendly policies, benefitting Reservists, service leavers and their families. Public bodies and charities are increasingly signing up to ERS.

Education Support: Local authorities and schools are increasingly aware of the needs of Armed Forces children, with some schools creating specific support to support pupils dealing with frequent relocations or parental deployments. The Scottish Government has committed to improving support for Armed Forces children in schools, including professional support and resources for teachers to understand the unique challenges faced by these pupils. Specific efforts are ongoing to support children who have additional support needs, in particular when moving within the UK.

2. Where is the Armed Forces Covenant failing the Armed Forces Community?

Public Perception: A significant disadvantage for the community is the negative public perception of veterans. More should be done to support a positive and more representative image of the ex-Service community.

Geographic Disparities: The implementation of the Covenant varies significantly by country of the UK (and by region within that), leading to unequal access to services such as healthcare, housing, and education.

Housing Access: Despite progress, veterans still face challenges in securing affordable and appropriate housing, particularly in areas of high demand. Scotland has robust homelessness legislation, but more could be done in the prevention space for veterans. Awareness is low in housing departments and homeless units, including the needs veterans may have and the specialist services they may be referred to.

Health Services: While mental health initiatives exist, waiting times remain excessive in many areas, and access to veteran-specific services is inconsistent. This is also apparent for veterans with musculoskeletal health needs, with health boards developing different approaches to care for Service-related conditions. Good practice is not routinely shared or replicated. Veterans in rural and remote areas can face travel barriers to accessing specialist health services.

Support for Families: Families of serving personnel, including spouses and children, often face barriers in employment, education, and access to childcare, which are not sufficiently addressed under the Covenant.

Awareness Gap: Many members of the Armed Forces community are unaware of their rights under the Covenant or how to access services, reducing its practical impact. Public bodies often lack adequate understanding of their obligations.

Armed Forces and Veterans Champions: these have been introduced in a range of organisations and sectors, including local authorities, government departments and agencies, NHS organisations and the private sector. While these are welcome and have the potential to add significant value and support to veterans and their families as well as to the organisations themselves, there are a number of challenges. 

Veterans in the Justice System: Inadequate identification of veterans within the Scottish justice system, including limited recognition of services that may help veterans address offending behaviour and increase desistance.

The bereaved community:  Despite being specifically named in the Covenant text, the bereaved community are often overlooked in the design and delivery of services and support.

Employment:  Despite progress, many SMEs in Scotland lack awareness of the benefits of employing veterans and ability to connect their vacancies with Service Leavers and veterans. ERS Gold Award holding businesses are not necessarily fulfilling the requirement to “advocate support to defence people issues to partner organisations, suppliers and customers with tangible positive results”

3. What are the main causes for these failings?

Lack of Enforceability: The Covenant, while enshrined in law under the Armed Forces Act 2021, places only limited legal duties on public bodies, focusing narrowly on healthcare, education, and housing.

Funding Constraints: Public bodies often lack the dedicated funding required to implement Covenant commitments effectively. This is particularly evident in the current fiscal climate where existing services for veterans are at risk due to savings measures. As these tend not to be categorised as ‘essential’ services it is challenging to ensure they are protected.

Confusion with ERS: A number of Local Authorities have taken the approach that gaining an ERS Gold Award will meet their Covenant responsibilities.  Only a few have sought to factor the Covenant routinely in their policy making and service delivery processes.

Inconsistent Training and Awareness: Insufficient training and awareness among public sector employees and service providers lead to gaps in delivery and understanding of Covenant responsibilities. Members of the AF community are similarly ill informed of their rights and responsibilities under the Covenants.

Armed Forces and Veterans Champions: there is often a lack of clarity about the role, including no terms of reference  or job specification. The role is not always supported adequately within the organisation and often does not have the required resource (dedicated time and / or budget) to be effective. In some areas the roles are not embedded, so time limited depending on budgets or other priorities. There is a lack of consistency, leading to confusion and disappointment for those who tried to access support.

Complex Needs: The diversity of the Armed Forces community, including service members, veterans, families and the bereaved means that standardised approaches often fail to meet specific and complex needs.

4. Are there areas which the Armed Forces Covenant ought to be extended to, and why?

The Covenant could be extended to include the following areas:

Employment for Families: Military spouses and partners face significant employment challenges due to frequent relocations. A focused approach to supporting portable careers or remote work opportunities would reduce this disadvantage.

Financial Services: Military families can experience disadvantage in accessing mortgages, loans, or credit due to mobility and gaps in credit history. Including financial institutions under Covenant would address this disparity.

Justice System: Veterans in the criminal justice system could be better identified and connected with existing support mechanisms. The support that does exist could be better coordinated.

Transition Support: Expanding the Covenant to mandate holistic support for service leavers, including financial advice, housing, and healthcare continuity, would reduce the challenges of transitioning to civilian life.

5. What legislative changes should be made, and why?

Extend Legal Duty: The legal duty under the Armed Forces Act 2021 could be expanded to include organisations delivering essential services, such as justice, employment and financial institutions.

Mandatory Reporting: Require public bodies to publish annual reports detailing their Covenant-related actions and outcomes, ensuring accountability and transparency.

National Standards: Establish national standards for Covenant delivery to address regional disparities and ensure consistency across the UK.

6. What impact would the extension of the Armed Forces Covenant legal duty to central government and devolved administrations?

Improved Consistency: Extending the legal duty to central government and to the devolved governments of Scotland, Wales and Northern Ireland would standardise Covenant delivery across the UK, reducing regional disparities in support.

Enhanced Accountability: Governments would be required to consider the Armed Forces community in their policymaking, ensuring that national policies and guidance align with Covenant commitments.

Increased Resources: A legal obligation at the central level could drive increased funding and resource allocation to meet Covenant obligations.

Holistic Support: By embedding Covenant principles into all areas of governance, the Armed Forces community would benefit from a more comprehensive and integrated approach to addressing their needs.

Challenges: Implementation would require significant collaboration between the Scottish and UK Governments, as well as local authorities, health authorities, other statutory providers, and third-sector organisations.

17th January 2025