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The aim of this research is to highlight significant
elements of the ongoing debate around mental health and the Australian Defence
Force (ADF). It examines in particular, the attitudes towards service provision
and the support available to serving and ex-serving ADF personnel, highlighting
areas where improvements can be made. To do so, a qualitative methodology was
chosen to allow for the cataloguing of a range of views from working
professionals and veterans. These include senior members of the Department of
Defence (Defence), the ADF, the Department of Veterans’ Affairs (DVA), the
medical profession (both clinicians and academics), members of Ex-Service
Organisations (ESOs), politicians, allied health workers, journalists and
veterans themselves. The aim was to highlight some of the most credible and
trustworthy discourse on mental health and the ADF. The issue is currently
attracting an unprecedented amount of attention from the media, the
bureaucracy, the medical profession and parliament. There exist numerous
ongoing challenges with regard to the health of military personnel and
veterans, as evidenced by persistent and debilitating health concerns among
these populations and by the open acknowledgement of a range of professionals
working in the area.
A feature of debates about the mental health of serving and
ex-serving ADF personnel is the apparent circular argument in the public
discourse represented in the media which runs as follows: ‘the government sent
these men and women to war, they have come back broken and it is now refusing
to look after them’. These attacks make the government and the bureaucracy more
defensive and reactive, and these running battles come to dominate discussion.
The victimhood and entitlement mentality this has been seen to foster is not
what veterans groups say their members ultimately want, nor is it compatible
with long-term positive health outcomes post-military service. A circuit
breaker is required to turn these circular debates (those that begin with
personal narratives told through the media to parliament which engages experts
and the bureaucracy, and back again) into a linear model of independent
research leading to the development of evidence-based and best practice policy
and service provision. The current system is failing a minority of veterans,
and the manner in which this issue is being addressed in public debates is
proving ultimately unhelpful, with some proposed solutions actually being
counterproductive. Space must be made for a discussion on strategies not beholden
to entrenched bureaucratic models that do not adequately consider what help
these target groups need, nor how to get it to them.
A minority of veterans has been (psychologically) injured
during their time in the military, experienced difficulties during their
transition to the civilian workforce and encountered problems with their DVA
claims. It is important to note that the system has not failed the majority of
serving and ex-serving military personnel. The focus of this research is on
ways in which the needs of a minority of disaffected serving and ex-serving ADF
personnel can be better met. This is informed by both a case study approach
with a small number of such disaffected veterans, while contextualising these
case studies with the views of professionals with subject matter expertise
working in military (mental) health and related fields. While the sample size
is very small, and caution is required in interpreting the findings, the
accounts of the veterans interviewed do complement the views of experts
consulted.
An independently planned research strategy, with input from
practitioners and academics is a vital but missing part of what is occurring at
present (comment by an interviewee for this research who chose to remain
anonymous). This needs to be made a priority for government (same source). This
would include an ongoing commitment to both qualitative and quantitative
research designed to assess the needs of veterans in a way that genuinely
engages the unique aspects of the culture of this population, informing the
design of strategies for prevention, early intervention and treatment. At
present, an independent research agenda does not exist separate from
bureaucratic control. This must be informed by subject matter experts, open to
external scrutiny where experts are encouraged to be critical of poor practices
when they are identified.
An umbrella framework is required to ensure the numerous
diverse groups working in this environment can make a meaningful contribution
to a whole, to ensure a commonality of effort, to foster collaboration,
innovation and development, and eliminate redundancy.[1] A starting
point for the development of end-user focused solutions is the experience of
serving military personnel and veterans. An appreciation of the experience of
these populations, combined with the application of a rigorous research
methodology is useful to better understanding the needs of veterans and the
best ways of implementing treatment models. Much of the current debate
prominently features highly emotive accounts of disaffected veterans, but
without a framework through which to understand these personal narratives,
combative and reactive cultures flourish. What is required is to recognise and
do justice to the experiences of veterans—constituting a form of unrefined
truth is the application of a methodological framework to transform these
experiences from personal tragedies to starting points for the development of
meaningful solutions.[2]
A key feature of the service model as it currently exists is
the range of Ex-Service Organisations (ESOs) that have grown to fill the
(perceived) void between services and support provided by Defence and those
provided by DVA. While committed and capable people are working for the benefit
of veterans, some of the activities in this space feed into the above circular
narrative of entitlement and victimhood where veterans find themselves in
groups that see DVA as the enemy with whom they must battle for benefits. A
system-wide approach to these groups that plays a coordinating function and
offers guidance and support is an essential but missing element of the current
system.
Both the respective leaderships of Defence and DVA recognise
the complexity of the issue. Since the early 2000s, both departments have
released a series of strategies, plans and reports and have been the subject of
numerous inquiries. Likewise, the parliament has taken an interest in the
health and wellbeing of serving military personnel and veterans. While much
progress has been made, a disconnect continues to exist between some of the
services available and the intended recipient communities. A consequence of the
outsourcing and divestment of health assets and services by both Defence and
DVA over the last decade is that there is a perceived lack of internal
accountability regarding gaps in service provision. While the states and
private sector are the providers of care, no systematic approach exists to
understand and meet the complex needs of (particularly contemporary) veterans.
The gamut of issues around mental health and Defence is
complex, poorly understood and easily misrepresented. It is not the aim of this
research to review and summarise these issues but to highlight some of the
recurring themes identified by a broad range of stakeholders, 76 of whom are
acknowledged on the following pages. Unique features of the military include it
being the only profession that requires its workforce to train for and carry
out the killing of people and the destruction of property as part of its core
business. This is thought to carry with it unique challenges to the
non-physical elements of the wellbeing of the men and women who choose this
profession.[3]
Recurrent issues highlighted by those who agreed to participate in this
research include the persistent issue of stigma that surrounds reduced mental
fitness, and the challenges of the transition period between a career in
Defence and one in the civilian workforce, and the corresponding impacts on
(mental) fitness.
An encouraging note is the work being done by the 2nd
Commando Regiment and the approach it has taken to the mental fitness of its
workforce. There are elements of this that provide an example of what is
possible, albeit with a small and highly specialised workforce of elite
soldiers. This Regiment has been successful at substantially reducing the
stigma around reduced mental fitness and offered meaningful support to
transitioning members in a culturally relevant way. Among the strategies
adopted by this group is the provision of services and support by
beret-qualified members of their own unit who have had first-hand experience of
service-related non-physical injuries. Following the example of this unit, an
opportunity exists for the broader ADF to invest more resources and research
into prevention including mental health first aid and mental health literacy.
The ideas presented in this monograph are suggestions and
provocations, and as such, it seeks to make a useful contribution to this
ongoing debate. It proposes a number of interventions to address the issues
highlighted, as well as corresponding research and policy formulation. A space
needs to exist that privileges the best ideas, where credible research can lead
to the development of evidence-based policy and best practice solutions. The
community’s appetite for sensational media reporting (leading to reactive
institutional responses and back again), and the fragmented nature of the
current state of responses to this issue is not serving the best interests of
Australia’s military and veteran communities.
[2]. Kendall, T. (2005) Ways of seeing
China—Yellow Peril to Shangrila, Curtin University Books, Fremantle.
[3]. Frame, T. (2015) Moral injury, UNSW
Press, Sydney.