Referral of the inquiry
1.1
On 23 November 2022, the Senate referred an inquiry into adaptive sport programs for Australian Defence Force (ADF) veterans to the Foreign Affairs, Defence and Trade References Committee (the committee) for inquiry and report by 30 March 2023. The inquiry’s terms of reference are as follows:
The role of adaptive sport programs for Australian Defence Force veterans in addressing issues identified by the ongoing Royal Commission into Defence and Veteran Suicide, with particular reference to:
(a)
current evidence on the benefits adaptive sport can provide to those with physical and/or mental health impairments, particularly those who have also served or trained in national defence;
(b)
the role of sport in supporting individuals’ transition from the Australian Defence Force into civilian life, especially how sport may assist veterans who meet criteria identifying them as being most at risk of suicide;
(c)
the Australian Defence Force’s use of adaptive sport;
(d)
whether there are any gaps in services and demand for adaptive sport by the veteran community, and, if so, how these gaps can be addressed;
(e)
the equitability of current funding for adaptive sport, and how the accessibility of adaptive sport can be improved for veterans who are not a part of Invictus programs;
(f)
the potential for a centralised authority to play a role in coordination or resourcing to provide access and where appropriate, enable consistency, in the use of adaptive sport to support rehabilitation, transition or reintegration for serving members and veterans around the nation and across support services and organisations;
(g)
whether eligibility for the Australian Sports Medal, or similar recognition, should be extended to teams that participated in the Invictus Games prior to 2018 and other veterans’ teams representing Australia in international events; and
(h)
any other related matters.
Conduct of the inquiry
1.2
Details of the inquiry were published on the committee website at www.aph.gov.au/senate_fadt. The committee also contacted a number of relevant individuals and groups to notify them of the inquiry and invite submissions. The committee received 18 submissions to the inquiry, all of which are published on the committee’s website and are listed at Appendix 1.
1.3
The committee held two public hearings in Canberra on Friday, 31 March 2023 and in Newport, Sydney on Monday, 3 April 2023. A list of witnesses who gave evidence at the public hearings are available at Appendix 2.
1.4
Submissions and the Hansard transcripts may be accessed via the committee website. References to the Committee Hansard in footnotes may refer to the proof transcript. Page numbers may vary between the proof and official transcripts.
Previous inquiries and reviews
Committee inquiries
1.5
Both this committee, and the Joint Standing Committee on Foreign Affairs, Defence and Trade (JCFADT) have over the years tabled many reports to the Parliament concerning veterans’ welfare as can be seen from the numerous citations through the current Royal Commission into Defence and Veteran Suicide interim report.
1.6
On 17 March 2016, the committee tabled its report into the Mental Health of Australian Defence Force Members and Veterans. The report recognised the need for greater services to be made available to veterans during the critical time of transition out of the ADF. The committee made a significant recommendation to develop a transition mentoring program to connect veterans with mentors during this time:
Recommendation 14
The committee recommends that the Department of Defence work with
ex-service organisations to develop a transition mentoring program, which will connect every veteran with a trained mentor from the ex-service community to assist and guide them through the transition process.
1.7
The following year, on 15 August 2017, the committee tabled its report into Suicide by Veterans and Ex-service Personnel inquiry titled The Constant Battle: Suicide by Veterans. The report reiterated the recommendation of the previous report, saying that it ‘should be reconsidered in the context of promoting and maintaining social connectedness for ADF members who are transitioning.’ The committee also made recommendations that the Productivity Commission should conduct a review and examination of various aspects of veteran services:
Recommendation 6
The committee recommends that the Australian Government make a reference to the Productivity Commission to simplify the legislative framework of compensation and rehabilitation for service members and veterans. In particular, this review should examine the utilisation of Statements of Principle in the determination of compensation claims. The report of this systemic review should be completed within 18 months and tabled in the Parliament.
Recommendation 12
The committee recommends that the reference to the Productivity Commission should also include examination of the following areas in the Veterans' Affairs portfolio:
administrative processes; and
Productivity Commission review
1.8
In recognition of the findings and recommendations set out in the above Senate report and noting the numerous ‘major reviews into veterans’ legislation and programs, particularly its compensation program’, in
March 2018, the then Treasurer, the Hon Scott Morrison MP, instructed the Productivity Commission (the commission) to undertake an inquiry into the system of compensation and rehabilitation of veterans (serving and ex-serving ADF members).
1.9
The commission was asked to look at how the veteran compensation and rehabilitation system currently operates, how it should operate into the future, and whether it is ‘fit for purpose’.
1.10
The commission found that there is ‘a need to encourage veterans to build their identity and social networks beyond ADF, as their hobbies, civilian friends, family, and passions are likely to help reduce the sense of loss they experience as they make the transition’. Further, in its recommendation for a new Joint Transition Authority, the commission recommended that the new authority ‘prepare members for other aspects of civilian life, including the social and psychological aspects of transition’.
1.11
However, key to this inquiry was the commission’s recognition that there needs to be a ‘lifetime approach’ to looking after veterans as they move through their service and transition to life after service. The Commission’s report stated:
A lifetime approach
Australians are willing to support veterans who are affected by their service, but they also want to know that the system designed to support them improves, and does not harm, their lives. The veteran support system should be about more than compensation and rehabilitation. It must take a lifetime approach to supporting veterans and their families and be more focused on wellness and ability (not illness and disability) and minimising harm from service. It needs to be more responsive to the changing needs and circumstances of veterans, which will require more flexibility in supports and the way they are provided.
Recognising that mainstream services are a complement to veteran specific services is one element of a new approach. Changes also need to be made to the way treatments and supports are commissioned and provided to veterans and their families. There needs to be more proactive engagement with rehabilitation, transition, health and mental healthcare providers (including requiring an evidence-based approach to treatment and supports) and better oversight of outcomes from treatment and support.
Independent Review of Past Defence and Veteran Suicides
1.12
On 5 February 2020, the then-Prime Minister, the Hon Scott Morrison, announced that the Australian Government would establish a new National Commissioner for Defence and Veteran Suicide Prevention (National Commissioner) to inquire into, and support the prevention of, the deaths by suicide by ADF members and veterans.
1.13
The interim National Commissioner, Dr Bernadette Boss CSC, was appointed on 16 November 2020 to begin work on an Independent Review into Past Defence and Veteran Suicides.
Royal Commission into Defence and Veteran Suicide
1.14
On 8 July 2021, the then-Prime Minister, the Hon Scott Morrison, announced the establishment of the Royal Commission into Defence and Veteran Suicide.
1.15
Subsequently, Dr Boss was provided with supplementary terms of reference asking her to conclude her work as the interim National Commissioner by
15 September 2021. The Review presented its report to the former government on 15 September 2021.
1.16
On 11 August 2022, the Royal Commission produced its interim report. A final report will be provided to government by 15 June 2023.
1.17
The committee notes that the commissioners have made some preliminary observations on a range of issues. Of particular interest to this inquiry, the commissioners noted under their preliminary observations, the ongoing issues surrounding effective transition of veterans from the ADF into civilian life as a recurring issue. This is discussed in chapter three.
1.18
The above inquiries and reviews combine to form a picture of the need for better transitioning of veterans out of the ADF and how social connection is a key need at this time. There are many different aspects to the transitioning process, including career training, individualised support, continuity of rehabilitation and integration of adaptive sports throughout veterans lives to assist all veterans, not just those who may have been injured.
Background
1.19
The following is a brief introduction to the establishment of the Invictus Games which is referred to in clause (g) of the inquiry’s terms of reference.
1.20
The Invictus Games represent one part of efforts to assist Australian veterans who are suffering injury or illness due to service and participate in competitive sports. A historical background on adaptive sport is provided in chapter two. The following provides a brief overview of the Invictus Games.
Invictus Games and the launch of Invictus Australia
1.21
The Invictus Games website recounts that in 2013, on a trip to the Warrior Games in the US (United States), The Duke of Sussex, Prince Harry, saw first-hand how sport can physically, mentally, and socially help those suffering from injuries and illness. First held in 2010, the Warrior Games are an annual event run by the US Department of Defense with an aim to celebrate the resilience and dedication of wounded, ill, and injured active duty and veteran US military service members.
1.22
The visit inspired the Duke to launch the Invictus Games in London in 2014, featuring teams from 13 nations including Australia. The Games featured both injured active and veteran service members and have subsequently been held in 2016, 2017, 2018 and 2022. According to the Invictus Games Foundation:
The word ‘invictus’ [comes from the Latin] meaning ‘unconquered’. It embodies the fighting spirit of wounded, injured and sick service personnel and personifies what these tenacious men and women can achieve post injury. The Games harness the power of sport to inspire recovery, support rehabilitation and generate a wider understanding and respect for those who serve their country.
1.23
This year, the 2023 Invictus Games will feature athletes from 20 nations and are scheduled to take place in Dusseldorf, Germany in September 2023.
Invictus Australia
1.24
Australian teams have taken part in all Invictus Games to date. After hosting the 2018 Invictus Games in Sydney, Invictus Australia commenced operations initially as Veteran Sport Australia. Following the success of the 2018 games, the Invictus Games Foundation agreed to provide Australia with the rights to become the first nation to establish an Invictus program outside the Invictus Games. On 28 October 2021, Invictus Australia was launched.
1.25
Currently, Invictus Australia is the official partner of the ADF for the delivery of Australian teams to the Invictus Games, Warrior Games and the ADF Adaptive Sport Program (ADFASP), more information on the ADFASP can be found in chapter three.
International bodies
1.26
In addition to the Invictus Games and Invictus Australia, there are other adaptive sport bodies and events across the US and UK (United Kingdom), including the Warrior Games. Canada is also preparing to host its first Valour Games in 2023.
Wounded Warrior and the Warrior Games - US
1.27
The Department of Defense Warrior Games is an annual event first held in 2010 that celebrates the resiliency of wounded and injured active duty and
ex-service US military veterans. The Warrior Games enhance the recovery and rehabilitation of wounded veterans by providing them exposure to adaptive sports. Participation in the Warrior Games represents the culmination of a service member's involvement in an adaptive sports program. Teams are formed representing the US Army, Marine Corps, Navy, Air Force, Space Force, US Special Operations Command, and international teams. The 2013 iteration of the Warrior Games was the original inspiration to establish the Invictus Games the following year.
1.28
The Warrior Games are the elite level of the Wounded Warrior Project (WWP). The WWP began in 2003 as a small, grassroots effort to provide services to veterans returning from conflict in Iraq and Afghanistan. Today, they offer programs in mental health, career counselling, and long-term rehabilitative care.
1.29
The WPP adaptive sports program allows veterans to participate in modified athletic opportunities designed for their individual abilities. The program consists of single-day and multi-day clinics in which veterans are introduced to seasoned athletes, taught to use adaptive sports equipment, and are connected with local and national adaptive sports providers.
1.30
Each service branch also offers their own wounded warrior program:
Army Recovery Care Program
Marine Corps Wounded Warrior Regiment
Air Force Wounded Warrior Program
Special Operations Command Warrior Care Program (Care Coalition)
Help for Heroes – UK
1.31
Help for Heroes was established in 2007 by Bryn and Emma Parry to establish vital support and sporting facilities for veterans returning from conflicts in Iraq and Afghanistan. The organisation relies heavily on fundraising efforts by members to fund their offering and programs.
1.32
Beyond funding sporting equipment and facilities, Help for Heroes also offers programs and guidance personalised to each individual veteran. They link veterans to local sports organisations, provide wellbeing support, and provide counselling. Programs offered by Help for Heroes include:
Mental health therapy service called Hidden Wounds, for veterans, their families, and those who have worked with the UK Armed Forces;
Provision of self-help guides on topics including diet, sleep, daily routines, and managing anxiety; and
Links to organisations providing cost of living support.
Valour Games – Canada
1.33
Canada’s inaugural Valour Games were established after Toronto hosted the 2017 Invictus Games and was set to launch in Ottawa in November 2022 but was postponed due to the COVID-19 pandemic. The games are to be held every two years in select Canadian cities. The inaugural games will now take place in 2023 in Ottawa-Gatineau.
Terminology
1.34
Although the inquiry’s terms of reference use the term ‘adaptive sport’, there is conjecture over whether that is the right terminology for the purposes of sport as a wellbeing tool for veterans. While adaptive sport refers to those who compete with modifications due to injury and disability, calling them ‘veterans sports’ would better capture the use of sport for all veterans in transition out of service and integrating into the community. Mr Scott Seccombe, Operation Fair Recognition, articulated the importance of having a catch-all term for all veterans:
I believe it shouldn't just be adaptive sports, it should be sports in general. Within the veteran community, not all veterans deploy, not all veterans do this, not all veterans do that, but the one thing they do do is get out of the Defence Force, and probably one of the hardest things they will do in their life is transition from Defence to being a civilian. So, to say 'adaptive sports'—as soon as you do that, people who haven't got an injury or aren't in that category tend to not even look at it, and it's disregarded.
1.35
Similarly, Mr Scott Reynolds, co-founder of Saltwater Veterans, noted that:
In addition to adaptive sport, it is important to look at the role inclusive sport plays in supporting transition of those veterans who may not consider themselves in need of adaptive options. There is a large segment of the veteran population that is also at risk from mental health impairments. The term adaptive sports often are associated with modifying equipment and rules of an activity. The term inclusive sports associates with integrating participants with the widest community possible thus reducing social isolation.
1.36
This report will use ‘adaptive sport’ as a catch-all term for veterans’ engagement in sport whether or not it requires adaptation to equipment or rules.
Acknowledgement
1.37
The committee thanks all individuals and organisations who assisted with the inquiry, especially those who made written submissions and participated at the public hearings.
Structure of this report
1.38
The report is structured as follows:
Chapter 2 discusses the history of adaptive sports; their benefits; international studies; and some of the gaps related to their delivery in Australia;
Chapter 3 considers the role of adaptive sport in veterans transitioning from the ADF to civilian life; continuity of care throughout transition; and the potential for an adaptive sport pathways program;
Chapter 4 examines the equitability of funding and the potential for vouchers to be used to subsidise adaptive sport programs. It also considers the potential for a centralised authority to facilitate and coordinate adaptive sports for veterans; and
Chapter 5 assesses the awarding of the Australian Sports Medal to past veteran sports teams.