Part 5: Access to appropriate support
5.1
NZDF personnel who have experienced harmful behaviour need to be provided with the right support. Support can come in a variety of forms, including:
- access to internal or external support services (such as counselling);
- support from leaders (such as time off work for appointments); and
- informal support from colleagues.
5.2
There is no one-size-fits-all approach to providing support. Each person will have distinct needs. NZDF should provide various methods of support to meet these needs. Support needs to be easily accessible and trusted.
5.3
This Part sets out the data we collected about experiences of personnel accessing support after experiencing harmful behaviour.
The outcome and impacts we expect to see over time
5.4
The outcome we are assessing in this Part is “NZDF personnel can access appropriate support they need to recover and those in the organisation providing support have the capability and the capacity to do so”.
5.5
We identified three impacts that we expect to see if NZDF is likely to achieve this outcome:
- NZDF personnel feel able to access support services.
- NZDF personnel who have experienced harmful behaviour receive the right support in the right way to recover.
- Leaders and specialist support staff have the capacity and capability to support personnel affected by harmful behaviour.
Our assessment of progress
5.6
Our overall assessment is that NZDF has a good range of support options available, particularly for those who experience harmful sexual behaviour.
5.7
When personnel access support they often see it as effective, especially in instances of harmful sexual behaviour. SAPRAs provide personnel with support through the summary trial or court martial process and ensure that they have access to other support as needed.
5.8
However, it is less clear what the support pathways are for personnel who have experienced bullying, harassment, and discrimination and whether their needs are met.
5.9
Although a range of support options is available, personnel do not always access support when they need it. There might be several reasons for this.
5.10
When support services are more visible, personnel feel they are more accessible and trusted. However, some feel that the high workload of some SAPRAs and social workers on camps and bases makes accessing this support more difficult.
5.11
Personnel do not always want to report what they have experienced to their chain of command. There are a range of alternative and confidential options personnel can access, including outside NZDF. However, not all personnel understand the full range of options available.
5.12
Personnel who have seen leaders not take confidentiality seriously are less likely to trust the support available. They can also feel ongoing stigma about seeking support and fear that accessing it will have negative effects on their career.
5.13
Summary trial and court martial processes are difficult for personnel who have experienced harmful behaviour. Access to specialist support services and being well-supported by command help lessen the stress.
5.14
Leaders need more guidance in some areas to provide adequate support. We heard that not all leaders are currently equipped to do so.
5.15
Our assessment of this outcome is based on findings from the three impacts described in paragraph 5.5.
Impact area 1: NZDF personnel feel able to access support services
5.16
It is important that NZDF personnel feel able to access different types of support. In this impact area, we looked at whether they understood what support was available and whether they felt that they could access this support easily.
Main findings for impact area 1
5.17
There was a high level of awareness of the main support services available. However, personnel did not always understand the specifics of the options available, including how to access confidential support.
5.18
Although personnel often indicated they were aware that support services were available, they did not always access them. For example, only 24% of survey respondents who had reported experiencing unwanted sexual activity also said they accessed SAPRA support.
5.19
There were several barriers to accessing support, including limited visibility of specialist support staff at some sites and concerns about confidentially.
Detailed findings for impact area 1
Personnel knew about most of the support that was available
5.20
Results from our survey and interviews indicated that most personnel were aware of the main support avenues they could use if they experienced harmful behaviour. Many respondents to our survey were aware of SAPRAs (see paragraph 4.29) and social workers (see paragraph 4.44).
5.21
Many personnel we interviewed told us that they were confident about accessing support if they needed it. When prompted, most personnel were able to list the relevant support services at NZDF. This included SAPRAs, social workers, chaplains, military psychologists, external psychologists, counsellors (including the Employee Assistance Programme), Anti-Harassment Advisors, and command.
5.22
They also told us about informal support arrangements from friends and senior women who provide informal support to younger personnel.
5.23
Although personnel often had a broad understanding of what support services were available, they were not always aware of what these services specifically provided. They were not always aware, for example, of the availability of external counselling or the full range of support SAPRAs provide, including to personnel who have experienced inappropriate sexual behaviour. As we mentioned in paragraphs 4.40-4.42, some personnel were also not aware that SAPRAs can provide confidential support.
Although most personnel knew what support was available, not all of those who had experienced harmful behaviour accessed these services
5.24
We asked respondents who reported experiencing unwanted sexual activity whether they had accessed SAPRA support (see Figure 34). The survey results showed that most personnel who experienced unwanted sexual activity did not seek support from SAPRAs.
Figure 34
Those who accessed support from SAPRAs after experiencing unwanted sexual activity in the last 12 months
| Response | Percentage |
|---|---|
| No | 76.0% |
| Yes | 24.0% |
| Total respondents | 50 |
5.25
Of the 50 survey respondents who answered this question, 76.0% did not seek support from SAPRAs. There was no material difference by gender.
5.26
We asked those who had experienced inappropriate sexual behaviour in the last 12 months whether they had sought support (see Figure 35).
Figure 35
Those who accessed support after experiencing inappropriate sexual behaviour in the last 12 months
| Response | All | Women | Men |
|---|---|---|---|
| No support was needed | 55.9% | 47.1% | 76.3% |
| Yes | 25.5% | 32.6% | 8.5% |
| No | 18.6% | 20.3% | 15.3% |
| Total respondents | 204 | 138 | 59 |
Note: Totals of women and men respondents will not add up to total respondents because some survey respondents did not specify gender and some respondents identified as another gender. Percentages might not add up to 100% due to rounding.
5.27
Nearly three-quarters (74.5%) of survey respondents who reported experiencing inappropriate sexual behaviour did not seek support. Of those who did not seek support, most felt that they did not need any support.
5.28
There was some variation by gender. Men (76.3%) were more likely to report that no support was needed than women (47.1%). Men (8.5%) were also less likely to seek support than women (32.6%).
5.29
Although most respondents to our survey and personnel we interviewed knew what specialist support services were available, they also highlighted barriers to accessing them.
Some personnel thought that support services were not visible or were very busy
5.30
One of the main barriers to accessing support we heard about was the visibility and availability of SAPRAs and, to a lesser extent, social workers.
5.31
Several personnel told us that SAPRAs and social workers at some sites appeared very busy and this was a disincentive to engage with them. Some also said that specialist support services were harder to access in certain environments, such as when personnel were deployed, especially on ships.
There was stigma about accessing support in some places
5.32
We were told that there was a culture that encouraged personnel to access support at many locations.
5.33
However, we were also told that there was still a stigma associated with accessing support services on some camps and bases. Some personnel perceived that accessing support could lead to them being labelled as not resilient, which could affect their career progression. In some instances, personnel were concerned that seeking mental health support would cause them to be medically downgraded, which could have implications for their career.
Concerns about confidentiality were a barrier for some personnel
5.34
As we outlined in Part 4, concerns about confidentiality can be a barrier to reporting experiences of harmful behaviour. These concerns affected the level of trust people had in accessing support services.
5.35
Some personnel we spoke with made general comments about how NZDF was not good at dealing with confidentiality. This affected how likely they were to seek support.
5.36
Some personnel preferred going to uniformed specialist support staff when they experienced harmful behaviour. However, others told us that they preferred to talk to civilian personnel or people outside the organisation because they felt that their confidentiality would not be maintained if they spoke to uniformed personnel.
5.37
A small number of uniformed personnel told us that when they had spoken with command about harmful behaviour they had experienced it had been passed on to other uniformed personnel. They had not expected this to happen.
5.38
As discussed in paragraph 4.159, the Armed Forces Discipline Act requires that when behaviours that might be offences under the Act are disclosed to someone in uniform they must be reported to the accused’s chain of command. This is what appears to have happened in the cases we heard about. It was evident that personnel were not always aware of this and could be surprised when it happened.
5.39
Other personnel who had raised experiences of harmful behaviour with their chain of command felt that more people found out about the issue than required. This had made them distrustful of seeking support in future.
5.40
Several personnel also talked about seeing command share private information about personnel – such as medical information – with others. As a result, they did not trust that command would treat information they provided about harmful behaviour appropriately.
5.41
Several personnel were not sure about the confidentiality that specialist support staff provide. SAPRAs and social workers are obliged to keep information that personnel provide about harmful behaviour confidential unless otherwise agreed. Personnel can access this support without having to formally report harmful behaviour, which would involve the chain of command. However, not all personnel we talked to fully understood this.
5.42
Most personnel we interviewed or surveyed were positive about the level of confidentiality that they had received when getting support from SAPRAs and social workers. When there were concerns expressed, this did not appear to be based on a specific experience with SAPRAs or social workers. Instead, it was because they did not trust how NZDF treated personal information more generally.
Impact area 2: NZDF personnel who have experienced harmful behaviour receive the right support in the right way to recover
5.43
In this impact area, we discuss the experiences of personnel who received support after experiencing harmful behaviour and whether it met their needs.
Main findings for impact area 2
5.44
When personnel accessed specialist support services, they were generally satisfied with the support they received. For example, 86.6% of those who had received support for inappropriate sexual behaviour were very satisfied or somewhat satisfied with that support. However, those who had experienced bullying, harassment, or discrimination might need access to more support.
5.45
Personnel who had experienced harmful behaviour were also affected by how well leaders provided support. Personnel felt more supported when leaders took their concerns seriously, responded with empathy, linked them with support services, and kept them informed. Experiences were mixed.
Detailed findings for impact area 2
Personnel appreciated being able to get a wide range of support, including from external parties
5.46
NZDF personnel had different preferences for the type of support they wanted to access when they had experienced harmful behaviour. Some preferred to access support through military personnel, some through civilian support roles, and others through services external to NZDF.
5.47
Most personnel we interviewed who had accessed support had positive feedback about their experience. We heard positive comments about being able to access support provided by SAPRAs, social workers, chaplains, military psychologists, external psychologists, and external counsellors.
5.48
Having access to external support was important for some. Those who accessed it told us that their experiences with external counsellors and psychologists had been positive. Personnel said that they appreciated having support from someone outside NZDF because they felt it was more confidential and there was no risk that it could affect their career.
Personnel who had received support for harmful sexual behaviour were often satisfied with this support
5.49
We asked survey respondents who indicated that they had received support after incidents of inappropriate sexual behaviour in the last 12 months how satisfied they were with the support (see Figure 36).
Figure 36
Satisfaction with support received after experiencing inappropriate sexual behaviour in the last 12 months
| Response | Percentage |
|---|---|
| Very satisfied | 46.2% |
| Somewhat satisfied | 40.4% |
| Neutral or somewhat dissatisfied | 13.4% |
| Total respondents | 52 |
5.50
The level of satisfaction for survey respondents who had received support was high – 86.6% of respondents were very or somewhat satisfied with that support. Because the number of respondents for this question was small, we do not provide any further breakdown by category (such as gender or service).
5.51
The levels of satisfaction for those who had received support for unwanted sexual activity were more mixed. In our survey, we asked personnel who had experienced unwanted sexual activity whether they were provided with the support they needed.
5.52
About half of the respondents said that they did not get the support they needed. Because the number of respondents for this question was small (32), we do not provide any further breakdown by category (such as gender or service).
5.53
It was not clear whether those who indicated they did not receive the support they needed could not access the right type of support or whether they were dissatisfied with the support they received. Several personnel commented in the survey that they had not reported the harmful behaviour that they had experienced to anyone (so it was unlikely that they accessed support).
5.54
We interviewed a small number of personnel who told us they had experienced unwanted sexual activity. Most of those we spoke with who accessed support services told us that they were happy with the support they had received.
5.55
We talked to a small number of personnel who had got support from SAPRAs, and they were positive about the quality of support they had received from them. This included being kept informed and supported during the formal disciplinary process. Being kept informed was important for personnel. We were told that not knowing what to expect from the summary trial or court martial process could cause considerable stress.
Personnel who had experienced bullying or who had harmed others did not always have adequate support
5.56
Personnel who experience bullying can also access many kinds of support services, such as Anti-Harassment Advisors, social workers, and psychologists. Personnel who accessed support from social workers and psychologists often described it as helpful in managing the effects that harmful behaviour had.
5.57
However, some personnel felt that the process for getting support after experiencing bullying was not as clear as it was for personnel who needed support after experiencing sexual harm.
5.58
Some personnel who had gone through formal complaints processes for bullying told us in our interviews and survey comments that they felt that they had not been adequately supported. For example, they did not think that they had been given adequate guidance about what they should expect from the process, or they felt that they had not been given support to help them manage the negative effects of going through this process.
5.59
Many personnel also told us they felt there were gaps in the support system for those accused of engaging in harmful behaviour. In some locations, social workers took on this role.
Personnel affected by harmful behaviour appreciated support from leaders but did not always get it
5.60
Commanders play an important role in supporting personnel affected by harmful behaviour. When they know about it, they can refer the person to the right support service. Commanders can also ensure that personnel are supported in their work environment by, for example, making sure they have time off to attend any necessary appointments.
5.61
We asked survey respondents who said that they had experienced unwanted sexual activity about the support they had received from their military chain of command or civilian supervisor. We asked whether their supervisor:
- made them feel supported;
- provided flexibility to take time off as needed;
- ensured that they had access to appropriate support; and
- kept details confidential and discouraged gossip in their work environment.
5.62
Only a small number of respondents (20) answered these questions. Therefore, we do not provide breakdowns between these categories for each question.
5.63
Most respondents indicated that they had received at least some support from their supervisors. Some told us they felt very supported. However, others felt they did not get the support they needed. This was consistent with what we heard in interviews.
5.64
Appropriate support was described to us as leaders responding without judgement, linking personnel with the right support services, and continuing to check in on them.
Impact area 3: Leaders and specialist support staff have the capacity and capability to support personnel affected by harmful behaviour
5.65
It is important that NZDF personnel have trained professionals who they can go to when they experience harmful behaviour. A SAPRA’s core role is supporting personnel who have experienced harmful sexual behaviour. Other support staff, such as chaplains and social workers, also provide important services.
5.66
Leaders are responsible for the safety and well-being of personnel working for them. Leaders need to be equipped with the right knowledge and skills to carry out this role effectively.
5.67
In this impact area, we look at whether leaders and specialist support staff on camps and bases felt that they had the capacity and capability to support personnel affected by harmful behaviour.
5.68
We based our assessment primarily on interviews with specialist support staff and senior officers on camps and bases.
Main findings for impact area 3
5.69
In some areas, specialist support staff (including SAPRAs and social workers) said they need more capacity to adequately respond to harmful behaviour, support those personnel affected by it, and support leaders.
5.70
Leaders generally feel equipped to support personnel affected by harmful behaviour. However, there are areas where they need more guidance to properly support both those who report experiencing harmful behaviour and those accused of it.
Detailed findings for impact area 3
Specialist support staff were not as visible in some locations
5.71
It is important for specialist support staff to be visible to command and other personnel because it helps build awareness of their role and increases trust. We heard that this visibility is harder to achieve for specialist support staff working in large camps or bases, or across multiple camps and bases.
5.72
Limited visibility and the perception that specialist support staff are very busy affect whether personnel seek support services (see paragraphs 5.30-5.31).
5.73
Leaders struggled when specialist support staff had limited capacity. Some leaders also talked about SAPRAs lacking visibility and the difficulty of not having them on site. These comments were more frequent in situations where a SAPRA is required to work across multiple sites.
Command needed more guidance in some areas to properly support personnel affected by harmful behaviour
5.74
Most leaders said that they were clear on the process to follow when harmful behaviour occurred. Many leaders told us that they would go to a SAPRA if harmful sexual behaviour was reported to them. Some said that when harmful behaviour occurred they felt well supported by specialist support staff.
5.75
Despite this, some leaders felt that there were gaps in their knowledge. They were less confident overall when they felt that a SAPRA had less capacity to support them.
5.76
A specific challenge that some leaders talked about was how to manage the personnel involved in a case while it was going through the military justice system. They wanted to make sure that they reduced the risk of further harm by ensuring appropriate separation between the person who reported experiencing the harmful behaviour and the person accused of it.
5.77
We heard there are gaps in training and guidance for what to do in these and other related situations.