LGBT Veterans Independent Review: Key findings and next steps

From 1967 to 2000, a policy banned LGBT people from joining or continuing Service in the UK Armed Forces. Anyone suspected of being LGBT could be subjected to invasive investigations and discharge from the Armed Forces. This policy, often referred to as "the Ban", silenced the voices and suppressed the identities of many LGBT Service personnel, causing devastating personal and professional repercussions and a legacy of trauma and shame.

The LGBT Veterans Independent Review was chaired by The Rt Hon Lord Etherton and published in July 2023. This was commissioned by the UK Government following the launch of the Veterans Strategy Action Plan 2022-2022 via the Office for Veterans' Affairs (OVA). The review's core purpose was to investigate the experiences of LGBT ex-Service personnel who served during the period of the Ban through first-hand accounts of individuals' lived experiences. The resulting report outlines a difficult and often traumatic time for many LGBT Serving personnel, or those assumed to be so. During their time in Service, they faced homophobia and ostracization, resulting in long-lasting damage to their self-perception, careers, and relationships.

The following article highlights the key issues presented in the review and recommendations concerning restorative action for LGBT ex-Service personnel. It should be noted that some of the themes discussed in this article may be distressing for some readers.

A key issue highlighted by the review is the damage caused to the careers and financial stability of many LGBT Service members. Individuals suspected of being LGBT faced deliberate obstruction to their own or their families' career advancement or the entire loss of their careers through court-martial or administrative discharge. Other LGBT personnel resigned due to the constant stress and pressure of potential discovery. After leaving Service, many LGBT ex-Service personnel found the transition to civilian employment difficult, struggling to find stable employment or adjust to civilian workplaces. As a result, many also experienced financial strain, severe debt, and, in some cases, homelessness. These difficulties have had a damaging legacy, with some LGBT Service members still struggling financially years after their discharge.

During this period, those Serving personnel who actively sought help or guidance about their sexuality or gender identity often faced unsympathetic or even aggressive responses and risked being reported. There were recorded instances of betrayal from those in positions of trust, including priests and doctors breaking confidentiality to report someone for their sexuality. This lack of guidance was especially problematic for those who discovered their orientation while in Service, as they may have joined the military at a young age or not had any prior indication of their sexual orientation. This reportedly left many confused and without guidance, with some respondents blaming this state of affairs for their development of internalised homophobia and delayed understanding of their own identity.

The review found evidence of pervasive and systemic homophobia in the Armed Forces during this period. Homophobic slurs are described as being commonplace in active Service and even reported to appear in recruits’ introductory booklets. Many of the accounts describe ostracization and scrutiny from colleagues, including those in senior ranks. One testimony detailed senior staff witnessing homophobic abuse but not intervening. This pattern of systematic bias extended to victims of military sexual violence. An account from one LGBT Veteran described how, after having reported being a victim of same-sex assault, they endured investigations about their sexuality and faced discharge rather than receiving support. Overall, this hostile environment in some parts of the Armed Forces fed a culture of shame and silence for LGBT Serving members and left them vulnerable to bullying and assault.  

When an individual was suspected of being LGBT during the Ban and found themselves subject to investigation, they often endured traumatic and humiliating tactics from investigators. The review details personal belongings being seized, searched, and destroyed and family members being questioned. One testimony describes military police following an individual and their colleagues, looking for evidence of their sexual orientation. LGBT ex-Service personnel who were questioned recalled that the investigative questioning was often inappropriate, intrusive, and graphically sexual. Others experienced physical abuse and denial of food and sleep. Overall, these accounts reveal a pattern of mistreatment and discrimination within the investigation process when LGBT Service personnel were scared, isolated, and profoundly vulnerable.

Many of those accused reported being subject to extremely unethical and harrowing medical abuses during the investigation of their sexuality and/or gender identity, often under the guise of treatment. Accounts from LGBT ex-Service personnel detail intrusive physical examinations conducted under the pretence of confirming someone’s sexuality, terrifying and humiliating those whom it was inflicted upon. Additionally, unethical medical conversion therapy was utilised, something that is now viewed as medically unsound and incredibly traumatic; one review respondent reported that he was submitted to electro-shock therapy through fear and a desperate willingness to do whatever was asked of him to try and retain his career.

Living under scrutiny and fear during this time had an enduring negative impact on the mental health of LGBT Serving personnel. Some described struggling with feelings of guilt and worthlessness, while multiple respondents shared that they contemplated suicide after their discharge from Service. Following the stress and trauma of enduring investigation and dismissal from Service, some developed mental health difficulties such as night terrors, depression, and post-traumatic stress disorder (PTSD); one respondent described experiencing emotional breakdowns during Service-orientated events such as remembrance parades. Struggling to cope during this time and after discharge led some to abuse substances or engage in destructive behaviour, such as high-risk sexual activity, as a coping mechanism. Many LGBT ex-Service personnel who responded to the review indicated that the damage done to their own or their loved ones' mental health has been life-long and directly linked to their experiences during the Ban.

A detrimental impact on the personal relationships and support systems of those affected was also identified. Some LGBT ex-Service personnel testified that the discrimination that they endured has impeded their ability to trust family and partners, affected their perception of their sexuality, and impacted their capacity for relationship-building years after leaving Service. One respondent described their time in Service as "lost years and opportunities", as fear of discovery prevented them from pursuing romantic or sexual relationships. LGBT Service personnel who had hidden their identity reported feeling limited to surface-level communication with their families, which for some had created emotional distance. Discharged individuals often had their sexual or gender identity revealed to their families without their consent, removing their autonomy in “coming out” and sometimes resulting in rejection, abuse, and disownment. This could ultimately leave them vulnerable with no familial support system while trying to navigate a sudden and potentially difficult transition to civilian life.

The impact of the Ban is far-reaching and continues to impact many LGBT ex-Service personnel’s lives today. Based on the evidence captured by the review, Rt Hon Lord Etherton made a total of 77 recommendations for appropriate reparations for this group. These include 49 general recommendations, falling into 13 categories. Additionally, recommendations specific to the devolved nations were made, with five made for Northern Ireland, two for Scotland, and seven for Wales. There are also 14 recommendations focused specifically on Veterans’ organisations and other non-governmental organisations.

Overall, there are three key recommendations for financial reparation, with one of these addressing pensions. However, it is important to note that, at the time of writing, these recommendations have not been agreed upon by the government.

• Financial award: A financial award should be made to ex-Service personnel affected by the Ban, with the government’s suggested exposure being capped at £50 million. Various approaches to determining the amount awarded are suggested, weighing the benefits of offering a uniform payment against factors such as rank and salary at their time of discharge.
• Award time Limit: There should be a time limit of 24 months from the time that the government publicises the financial award arrangements to claiming a financial award.
• Clarification of pension rights: The Ministry of Defence (MoD) should invite LGBT ex-Service personnel who were dismissed or discharged because of the Ban to seek clarification about their entitlement to a Service pension if they believe that they are entitled to one.

In addition to the financial award, 46 non-financial reparations were recommended. The following points offer summaries of the key categories of these recommendations. To read the full list of recommendations in detail, the full review is available here.

• Formal apology: As recommended in the review, on the 19^th of July 2023, Prime Minister Rishi Sunak gave an apology on behalf of the nation to LGBT ex-Service personnel who served during the ban.
• Restoration of status, medals, and other entitlements: There should be retrospective restoration of commission and rank for those dismissed, including the restoration of medals and the wearing of uniforms and berets. Additionally, a new Armed Forces Veterans Badge for those who served under the Ban should be provided, as should a Veterans ID card when available.
• Memorialisation: A memorial should be created honouring LGBT Serving and ex-Service personnel, specifically referencing the Ban. The MoD and the OVA should also arrange for a permanent museum exhibition on LGBT personnel in the UK Armed Forces.
• Engagement with Military Support Services: Military services should implement outreach programmes and fund networks for LGBT ex-Service personnel, with programmes created to encourage LGBT ex-Service personnel engagement with these networks.
• Disregards and Pardons: The government should introduce the currently pending legislation that will extend pardons to some charges administered during the Ban that are not currently dismissible, such as disgraceful conduct. Additionally, an endorsement indicating unlawful discharge should be added to the discharge papers of those dismissed.
• NHS Services: All NHS trusts should ideally be accredited as "Veteran aware" by the Veterans' Covenant Healthcare Alliance (VHCA). This accreditation should be extended to include care homes and hospices, as well as require a demonstration of LGBT inclusivity and an understanding of the Ban. Training for all NHS service workers about the LGBT community, particularly LGBT ex-Service personnel, would be beneficial and ensure that their unique needs are understood. It should be noted that, since 2022, Fighting with Pride has been working to address LGBT Veteran inclusion in the NHS and other support services with the development of their Pride in Veterans Standard, which is open to organisations demonstrating a commitment to supporting LGBT ex-Service and Serving personnel and their families.
• Female ex-Service Personnel: The negative impact of the Ban on female ex-Service personnel should be considered, particularly regarding specific issues such as difficulties accessing support services.
• Advised procedure for the reparations: If the government accepts the review’s recommendations, it is suggested that those affected by Serving under the Ban can apply to the MoD for an apology and restitution within 24 months of acceptance.

Several research-specific recommendations were provided. Broadly, it is advised that research is approached and conducted in a way that is sensitive to the experiences of this community. Additionally, more specific research recommendations include:

• Analysis of responses: Robust scientific analysis of the responses to the Call for Evidence could help identify key issues of the past and utilise this knoweldge to explore issues facing currently Serving LGBT personnel. This could investigate whether discrimination and bigotry are still an issue, and how to address them effectively.
• Comparative study: A large-cohort study should be undertaken to compare the experiences of LGBT ex-Service personnel with civilian members of the LGBT community who have never experienced military Service. 
• Sexual Orientation Data: Researchers should consider collecting data about sexual orientation and gender identity where appropriate. This could contribute to a better understanding of the experiences of LGBT people in the military and ensure that they are fairly represented in research.
• Impact of the Review: There may be benefits in observing and assessing the impact of the review itself on the LGBT ex-Service personnel community after its release, and whether this can produce more informed reviewing processes going forward.

We now await the government's response to the review and its recommendations. There is much to repair and learn from what occurred during the Ban. It is important that going forward there is action taken to effectively protect and support the LGBT ex-Service personnel community and those LGBT individuals currently Serving, including conducting high-quality research to understand this community's experiences and needs. 

As the government make their response to the recommendations, we will continue to report on this issue. To stay up to date on the outcome of the review sign up to our newsletter at the bottom of our homepage here and follow us on both Twitter and Linkedin.

If any of the topics mentioned in this article have affected you or a loved one, there is help available. The LGBT Veterans Review includes a support page with helpful links. Fighting With Pride offers support information on its website and runs Op Sterling in collaboration with Age UK, providing telephone-based support to older LGBT ex-Service personnel. Outside of Service-orientated help, Mind has collated a selection of support services for LGBTQ individuals and their families here.