Recommendations from the Paterson Report
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1–7 More focus on the needs of veterans 8–23 Strengthen support for families 24–30 Enhance independence support 31–39 A fairer clearer Act 40–62 Improving the system 63 Rethinking eligibility (Open) 64 Future reviewsFinal update on recommendations — October 2024
1–7 More focus on the needs of veterans
| Recommendation | Status |
|---|---|
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1. The Act is amended so Veterans’ Affairs has more flexibility to meet individual and family needs including:
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Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014. The 2020 amendment to the Veterans’ Support Act 2014 addressed priorities for veterans and provided immediate improvements in fairness and equity. A number of the provisions recognise veterans’ families and the role that they play in rehabilitation (sections 3 107 108 108A 110 118). VA now offers treatment “up front” for claimants with mental health issues to minimise harm of waiting for decisions. VA policy has been amended to allow non-standard treatment where a medical practitioner recommends this and NZ health guidelines are followed. VA has investigated and funded flexible access to accredited programmes for social rehabilitation (including art therapy and Outward Bound courses). |
| 2. Veterans’ Affairs is given funding to establish a flexible fund so that it can develop and offer programmes services and supports in addition to those provided through the Act. |
Closed VA has been able to achieve the same result by greater flexibility of practice policy and amendments to legislation. Funding for treatment is not constrained. |
| 3. The treatment and rehabilitation provisions of the Act are made consistent and flexible to ensure that early intervention and an appropriate continuum of care can be delivered. |
Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014 (sections 108A and 110). Since 2018 VA has had a rehabilitation strategy. It has also established multidisciplinary rehabilitation reviews. |
| 4. Flexible early intervention support is made available to veterans in emergency acute or otherwise serious situations before the presence of a service-related condition is confirmed. |
Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014 (sections 108A and 110). VA has developed protocols to ensure that emergency support is accessible. This has been tested with successful outcomes. Urgent entitlement decisions are made for veterans who are terminally ill. VA and veteran advocacy groups have an agreed process for managing acute cases. |
| 5. Veterans’ Affairs takes a holistic and integrated approach to meeting veterans’ needs including providing wrap-around support to the greatest extent possible. |
Closed Addressed through changes to VA policy and practice. This recommendation has been incorporated in the Rehabilitation Strategy. Further changes will be driven by measuring results and amending practice. There has been work on development and implementation of rehabilitation strategy with core partners. There is ongoing monitoring of results for veterans (return to work social rehabilitation goals) |
| 6. Veterans’ Affairs is enabled to provide integrated packages of care where a veteran has high and complex needs. |
Closed Addressed through changes to VA policy and practice. The Rehabilitation Strategy lays out how care will be integrated. |
| 7. Veterans’ Affairs is mandated and resourced to be the single point of contact for veteran-focused services and supports for those veterans with the highest and most complex needs. |
Closed This would require significant changes in the roles and responsibilities of other agencies. While VA has a high-level role of oversight of veterans’ wellbeing it has never been mandated or resourced to be a single point of contact for services and support. Veterans with high and complex needs have always received services from a wide range of specialist agencies. The Te Arataki action plan once agreed will ensure the effective engagement of partner agencies. |
8–23 Strengthen support for families
| Recommendation | Status |
|---|---|
| 8. Veterans’ Affairs consults family members about their needs and how they could best be met in preparation for service development and legislative changes. |
Closed Addressed through changes to VA policy and practice. Families are invited to clinics expos and forums. A family member was part of the Te Arataki work group that developed a Veteran Family and Whānau Mental Health and Wellbeing Policy Framework in 2022. |
| 9. New family supports are funded at least initially through the flexible fund established outside the Act (see recommendation 2 above). |
Closed VA has been able to achieve the same result by greater flexibility of practice policy and amendments to legislation. |
| 10. The Act is changed to explicitly provide for consideration of families’ needs and practical flexible support for family members (either through a new addition to the Act or amendment of existing provisions). |
Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014 which addressed priorities for veterans and provided immediate improvements in fairness and equity. A number of the provisions recognise veterans’ families and the role that they play in rehabilitation (including sections 3 and 90). |
| 11. Families are included in or offered separate needs assessments and rehabilitation/support plans. |
Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014 (sections 11 - 13 107 110 118). |
| 12. Carer relief and other support for family carers is implemented as a matter of priority. |
Closed In 2019 the Government released Mahi Aroha – Carers Strategy Action Plan. VA ensures that veterans’ carers receive the same types and levels of relief and support as mainstream carers |
| 13. Counselling is made available to veterans’ family members for needs related in any way to the veteran’s service although limits may apply. |
Closed Addressed in 2020 amendments to the Veterans’ Support Act 2014 (section 107(1A). |
14–15 Surviving Spouse or Partner Pension
| Recommendation | Status |
|---|---|
| 14. Eligibility for the surviving spouse or partner pension is simplified by extending it either to all surviving spouses or partners of Scheme One veterans or to all surviving spouses or partners of Scheme One veterans with qualifying operational service and retaining existing eligibility criteria for veterans with routine service |
Closed Addressed in the 2020 amendments to the Veterans’ Support Act 2014 (section 66). |
| 15. The surviving spouse or partner pension is available to the surviving spouse or partner for the remainder of his or her life (it currently ends two years after remarriage/repartnering). |
Closed A decision was taken not to proceed. |
16–19 Children and dependants
| Recommendation | Status |
|---|---|
| 16. The definition of “child” in Part 1 of the Act is amended to better reflect the contemporary family unit in New Zealand either by an expanded definition or by adding a sub-clause to the existing definition to include any other dependent child who is being maintained including financially as part of a veteran’s family. |
Closed The 2020 amendment to the Veterans’ Support Act 2014 extended the definition of “child” to recognise cases where a dependent child is being maintained as part of the veterans’ family and the veteran is acting as guardian (Section 7). |
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17. The children’s bursary is extended to:
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Closed The 2020 amendment to the Veterans’ Support Act 2014 extended the bursary to cover vocational training and the children of veterans overseas (section 81(1)). |
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18. a. Consideration is given to extending the children’s bursary to primary school children. b. Consideration is given to allowing postponing use of the bursary in order to take a short break from studying or alternatively extending the bursary to people up to 25. |
Part a — Closed A decision was taken not to proceed given that primary education in New Zealand is provided free of charge. Part b — Closed A more flexible policy has been adopted to ensure that students do not lose the bursary where they take a short break from studying. |
| 19. Childcare payments under Scheme Two are available until a child turns 14. |
Closed The 2020 amendment to the Veterans’ Support Act 2014 extended to make childcare payments available until a child turns 14 (Section 209). |
20–23 Entitlements on death
| Recommendation | Status |
|---|---|
| 20. Eligibility for the funeral grant is aligned with simplified criteria for accessing the surviving spouse or partner pension (see recommendation 14 above). |
Closed The 2020 amendment to the Veterans’ Support Act 2014 provided simplified criteria for a surviving spouse and partner to access the funeral expenses (sections 152 - 154). |
| 21. The funeral grant for veterans is increased so it is at least equal to ACC’s funeral grant for death from a covered injury and that its value is maintained over time including through CPI-adjusted increases. |
Closed Consideration was given to increasing the rate of the Funeral Expense in 2020 but this was not deemed a sufficient priority in the prevailing economic climate. |
| 22. The Act is amended to make it clear that periodic entitlements continue for 28 days after a recipient’s death in those sections of the Act where there is currently no such provision. |
Closed Section 101(A) of the Act relating to Weekly Compensation was amended in 2020. |
| 23. Veterans’ Affairs considers whether the Act should explicitly allow estates to progress to determination a claim or review lodged by a now deceased applicant. |
Closed A decision was taken that it would not be appropriate to progress claims or reviews once the veteran who could benefit from an accepted claim has died. However applications for terminal lump sums are currently progressed to determination and payment following death of the applicant. |
24–30 Enhance independence support
| Recommendation | Status |
|---|---|
| 24. The Act is amended so partners and spouses are eligible to access Veteran’s Independence Programme services after a veteran dies or goes into rest home or hospital care. |
Closed Addressed in the 2020 amendments to the Veterans’ Support Act 2014 (sections 143 143A). |
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25. Veterans’ Affairs:
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Closed Addressed in the 2020 amendments to the Veterans’ Support Act 2014 and by changes to policy and practice. A new section 143(A) was introduced enabling Veterans’ Independence Programme assistance to a spouse or partner being available to the same extent as the veteran was entitled for 12 months after the veteran goes into long-term residential care. The veteran’s spouse or partner continues to be entitled to these services and support if the veteran dies within 12 months of going into long-term residential care. |
| 26. The purpose of the Veterans’ Independence Programme is expanded so veterans can receive help to “live independently in their own home and participate in their community”. |
Closed Addressed through changes to VA policy and practice. Where it has not been possible to arrange satisfactory services through nationwide Master Service Agreements the Programme accommodates individual local arrangements. |
| 27. The definition of “home” in the Act is updated to allow for a wider range of living arrangements. |
Closed Addressed in the 2020 amendments to the Veterans’ Support Act 2014 (section 7). |
| 28. Veterans’ Affairs consults veterans and their families about the range of services that would most help them maintain their independence and participation in the community in order to determine the areas of greatest need. |
Closed Addressed through changes to VA policy and practice. |
| 29. Veterans’ Affairs expands the range of support services to enable independent living and ensures a flexible individually tailored approach to providing these services. |
Closed Addressed through changes to VA policy and practice. |
| 30. The travel allowance and travel concession are combined into a single grant covering travel for both errands and social activities. |
Closed Changes to VA delivery practices have lessened the priority for this recommendation by reducing processing time for the travel concession. A review of travel support provisions would be a complex exercise that might be considered as part of the next major review of the VSA 2014. |
31–39 A fairer clearer Act
| Recommendation | Status |
|---|---|
| 31. Veterans’ Affairs writes a plain English guide to the Act for veterans. |
Closed A decision was made that it would be more effective to revise and simplify information presented through VA communication channels. Revised plain language programme descriptions have been posted on the website for improved accessibility. VA now uses plain English in all of the guidance it provides to veterans on entitlements under the Act including in policy documents and website material. |
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32. The Act is streamlined and simplified by:
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Closed This would best be done as part of a major review of the Act. A possible review will be considered in 2025 following the passing of amendment legislation in 2020. In the meantime VA will continue to identify options to streamline and simplify the VSA 2014. Options for legislative improvements will feed into the next major review of the VSA 2014. |
| 33. Section 205 of the Act is amended to make clear Veterans’ Affairs can at any time reconsider a decision about an application made under the Act if it has made an error or significant new information comes to light that is likely to materially affect the decision. |
Closed The 2020 amendment to the Veterans’ Support Act 2014 included provision to allow reconsideration of decisions (section 205). |
| 34. Section 3 (a) of the Act is amended to include families and to read: “the rehabilitation of and support for veterans and their families where a veteran has been injured or become ill as a result of being placed in harm’s way in the services of New Zealand”. |
Closed While the purpose section of the Veterans’ Support Act 2014 has not been amended as recommended other amendments to the Act now make provision for support of families including family needs relating to veteran rehabilitation (section 118). |
| 35. Veterans’ Affairs reminds staff of the spirit of the Code of Veterans’ and Other Claimants’ Rights. |
Closed Addressed through changes to VA policy and practice and inclusion on staff induction programmes. |
| 36. A new statutory principle recognising a moral duty of care to veterans is included in the Act. |
Closed Legislating a statutory principle recognising a moral duty of care would be a complex and possibly controversial development. This would require a fundamental review of the principles that underlie the Act and could not be contemplated outside of a major review of the Act. |
| 37. Section 28(2) of the Act is amended by adding a further exception (c) to cover situations where Veterans’ Affairs is satisfied on reasonable grounds that it would be unjust to exclude cover solely because the claimant was briefly absent without leave or committing a minor offence. |
Closed Addressed in 2020 amendment to the Veterans’ Support Act 2014 (section 28(1A). |
| 38. Section 28(2)(b) of the Act is amended to read: “the illness injury or death was due to or is a psychological condition that was attributed to or aggravated by the experiences of the veteran during qualifying operational service”. |
Closed Addressed in 2020 amendment to the Veterans’ Support Act 2014 (section 28(2). |
| 39. Section 29 of the Act is revised to clarify that dependants of a veteran are not by virtue only of the veteran’s imprisonment to be denied any entitlements for which they would otherwise qualify. |
Closed Addressed in 2020 amendment to the Veterans’ Support Act 2014 (section 29(2). |
40–62 Improving the system
Structure and people
| Recommendation | Status |
|---|---|
| 40. The Government considers either ring-fencing Veterans’ Affairs’ budget or establishing a separate funding vote for Veterans’ Affairs. |
Closed Establishing a separate appropriation for VA would be a complex exercise and the benefits are not clear. It is considered that the objective of separating funding can be managed by internal practices. |
| 41. The Defence Force gives greater priority to veterans’ issues and providing adequate support infrastructure for Veterans’ Affairs. |
Closed NZDF is providing greater priority to veterans’ issues and increased support to Veterans’ Support infrastructure. |
| 42. Veterans’ Affairs is resourced so that it has the operational capability and capacity to carry out the job it was set up to do. |
Closed Funding for infrastructure investment was made in Budget 2019. An upgrade of VA’s IT system was completed in 2023. Additional funding of $4m over four years was made available in Budget 2024 to enable Veterans’ Affairs to recruit additional staff. |
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43. Veterans’ Affairs continues to build skills related to veterans’ needs including:
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Closed Addressed through changes to VA policy and practice. The Recommendation has informed VA training plans. An ongoing programme of cultural support is being delivered through NZDF. Arrangements are being developed to provide information to GPs and medical specialists through training sessions and conferences. |
44–54 Processes policies and information
| Recommendation | Status |
|---|---|
| 44. Veterans’ Affairs and the Defence Force work to establish a register of all veterans their service their deployments environmental and other risks they may have been exposed to and any service-related conditions. |
Closed The New Zealand Defence Force has undertaken preliminary work (led by the People and Capability Portfolio) to establish a register identifying those who served on some recent deployments; this currently covers the period up to 2018 and work on the register is continuing. Detailed information about those who served in various deployments including any service-related conditions is held elsewhere not on the register. |
| 45. Veterans are identified and offered effective transition support when leaving the Defence Force for civilian life. |
Closed This work which is a cornerstone of the Te Arataki Veteran Family and Whānau Mental Health and Wellbeing Policy Framework is being led by NZDF. |
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46. Veterans’ Affairs improves its outreach communication and public information about veterans’ support for veterans and the community including the development of:
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Closed Addressed through changes to VA policy and practice. VA introduced social media platforms – Facebook in 2019 and Instagram in 2024; and monthly email newsletters to subscribers in 2019. Its annual outreach programme includes in person and virtual forums and case management clinics some of which have been targeted to veterans living in Australia. VA released a video on its YouTube channel in January 2022 called ‘What if I disagree with your decision’. This tells the viewer what to do if they disagree with a decision made by VA and it refers to the review and appeals process. The VA website was updated to include a section for those living in Australia; and another section for those living elsewhere overseas. These are regularly promoted via Facebook social media posts. |
| 47. Veterans’ Affairs explores the use of modern technologies including online applications setting up a “My Account” and using mobile phones and social media to communicate with veterans. |
Closed Capital was allocated in Budget 2019 for VA to upgrade its current platform. As a precursor to online services VA is continuing to explore better use of modern technologies. VA established a Facebook page in 2019. |
| 48. Veterans’ Affairs investigates advocacy models and the infrastructure needed to build a professional well-trained advocacy workforce. |
Closed VA values the work of veteran advocacy groups works closely with them at both strategic and operational levels and provides training and mentoring as requested. |
| 49. The 30-working-day limit for decisions is removed from the Act and Veterans’ Affairs is required to make decisions as quickly as reasonably practicable and to keep veterans informed about progress with decisions. |
Closed Addressed in 2020 amendment to the Veterans’ Support Act 2014 (section 11(3)). |
| 50. Veterans’ Affairs is resourced to complete implementation of its information technology system. |
Closed Capital was allocated in Budget 2019 for VA to upgrade its current platform. This work was completed in 2023. |
| 51. Veterans’ Affairs reviews its policies processes and practices to ensure that they align with a generous application of the principles under the Act consistent with the flexibility and discretion permitted by the Act. |
Closed Addressed through changes to VA policy and practice. |
| 52. Veterans’ Affairs reviews its operational policy covering overseas travel. |
Closed Addressed through changes to VA policy and practice. A simplified policy is available on the VA website. |
| 53. Section 59(2) which requires veterans living overseas to pay the costs of assessing their ability to work full-time is removed from the Veterans’ Support Act. |
Closed Addressed through changes to VA policy and practice – for example VA pays under a rehabilitation plan for assessments as required. |
| 54. Veterans’ Affairs reviews its information-sharing and relationship arrangements with the Defence Force and ACC progresses information-sharing arrangements with IRD for the purposes of weekly compensation and broader tax issues and explores ways to share information with health practitioners. |
Closed VA has individual information-sharing agreements with IRD and DIA; and a wide-ranging Approved Information Sharing Agreement (AISA) with 10 agencies came into effect in June 2024. |
55–59 Rationalising statutory bodies
| Recommendation | Status |
|---|---|
| 55. Veterans’ Affairs reaches an agreement with Australia’s Department of Veterans’ Affairs so New Zealand can adopt each new Statement of Principles in full as soon as it becomes aware that the statement has been introduced or amended in Australia. |
Closed This would require legislative amendment and raises issues regarding sovereignty. VA is now made aware of new Statements of Principles through its representative who attends meetings of the Repatriation Medical Authority at which Statements of Principles are discussed. |
| 56. Veterans’ Affairs seeks agreement from the Australian Government Repatriation Medical Authority for a nominated medical practitioner to attend its meetings to help ensure New Zealand can keep up to date with and contribute to the authority’s review and adoption of Statements of Principles. |
Closed A VA representative now attends meetings of the Australian Government Repatriation Medical Authority and reports back to the Veterans’ Health Advisory Panel. |
| 57. The Veterans’ Medical Research Trust Fund grant process is transferred from the Veterans’ Health Advisory Panel to the Health Research Council subject to agreement with the council and arrangements to ensure members of the relevant subcommittee have expertise in veterans’ health and health research. |
Closed A decision has been taken not to proceed. The Trust Fund is small particularly alongside HRC funding and a transfer would risk it having to compete against other areas for funding and possibly weakened governance arrangements. |
| 58. The functions of the Veterans’ Advisory Board and the Veterans’ Health Advisory Panel are merged into a single new advisory board. |
Closed A decision has been taken not to proceed. The Boards have different roles and responsibilities The Veterans’ Advisory Board undertakes ad hoc work based on ministerial requirements and the general experience of members; the Veterans’ Health Advisory Panel is a specialist body whose members have background and expertise on medical matters and research facilitating their roles of examining SoPs and making decisions on research funding allocation. |
| 59. Hearings of the Veterans’ Entitlements Appeal Board are not delayed appellants can access educational resources and advocacy support and appeal decisions are well publicised. |
Closed Addressed through changes to VA policy and practice. |
60–62 Review the level of support
| Recommendation | Status |
|---|---|
| 60. Veterans’ Affairs reviews entitlements supports and services under the Act to ensure they offer an extra margin of support compared with those provided by ACC or other agencies. |
Closed There is no mandate for entitlements supports and services under the Act to offer an extra margin of support compared to that offered by other agencies. This would require a fundamental review of underlying principles and could not be contemplated outside of a major review of the Act. |
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61. Veterans’ Affairs reviews the adequacy of financial support for veterans and their families and that this work consider whether:
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Closed VA does not have the expertise to undertake what would be a major policy review of the financial support provided to veterans and their families. This work could not be contemplated outside of a major review of the Act. |
| 62. Veterans’ Affairs and the Ministry of Social Development work to improve the application process for the Veteran’s Pension so qualifying veterans can make an informed choice about whether to receive New Zealand Superannuation or the Veteran’s Pension. |
Closed Addressed through changes to VA policy and practice. |
63 Rethinking eligibility (Open)
| Recommendation | Status |
|---|---|
| 63. The Government undertakes further work on who is a veteran and how New Zealand wants to recognise their service. |
Open The Veterans’ Advisory Board has considered the matter and reported to the Minister. The present Minister for Veterans indicated in 2024 that this issue should be looked at further. |
64 Future reviews
| Recommendation | Status |
|---|---|
| 64. A further review of the Act and its operation takes place within five years of this report or if statutory amendments are made in response to this report the first review takes place within five years of the date when the changes come into effect. |
Closed The Veterans’ Support Amendment Bill was passed in 2020. This recommendation can again be considered in 2025. |