Consistent guidance is needed on the Armed Forces Covenant
The Armed Forces Covenant is a cornerstone of the UK’s commitment to ensuring that members of the Armed Forces community – serving personnel, veterans, and their families – are treated fairly and supported in their transition to civilian life.
However, as highlighted by the LGA in our evidence session to the Commons’ Defence Committee’s inquiry on the covenant in February, delivering on this promise is not without its challenges.
Councils across the country are working tirelessly to uphold the covenant, but financial pressures and inconsistent guidance are creating significant hurdles.
The covenant, which was enshrined in law in 2011, aims to ensure that those who serve, or have served, in the Armed Forces, and their families, are not disadvantaged because of their military service. It covers key areas such as healthcare, education and housing, with councils playing a crucial role in its delivery through regional partnerships and dedicated ‘covenant officers’, who provide tailored support to veterans and their families.
Despite these efforts, the system is far from perfect.
Councils report significant challenges, particularly around inconsistent statutory guidance and a lack of top-down leadership from central government.
This has led to geographical disparities in how the covenant is implemented, with some areas offering robust support and others struggling to meet the needs of their Armed Forces communities.
For example, councils in areas with large military populations often have well-established networks, while those with smaller, or more dispersed, veteran populations face difficulties in raising awareness and accessibility.
Funding is another major issue. Councils are under severe financial strain, with inflation, wage pressures and rising demand for services creating a funding gap of £1.9 billion in 2025/26, rising to £4.0 billion in 2026/27, £6.0 billion in 2027/28 and £8.4 billion in 2028/29. This has made it increasingly difficult for councils to prioritise covenant work, especially when faced with competing statutory responsibilities.
The lack of dedicated funding for covenant officers has also been a recurring concern, with councils relying heavily on volunteers and fluctuating local budgets to maintain support services.
Councils have welcomed the possibility of extending the covenant’s legal duty to central government and devolved administrations, which could help standardise delivery and reduce regional disparities.
However, any expansion must be accompanied by clear guidance, dedicated funding, and well thought out implementation plans. Without these, already stretched local services could face even greater pressure.
One area in which the Armed Forces Covenant could be expanded is social care, particularly for veterans with complex mental health needs or long-term care requirements.
Councils have also suggested extending the covenant to cover childcare, employment support and criminal justice pathways, all of which are critical for helping veterans transition to civilian life.
Any expansion must be evidence-based and accompanied by sufficient resources to avoid overburdening councils.
The Armed Forces Covenant has undoubtedly made significant strides in supporting the Armed Forces community, but there is still much work to be done.
The LGA will continue calling for clearer national guidelines, dedicated funding and stronger collaboration between central and local government, to ensure that the covenant delivers on its promise.
- See our website for more on the LGA’s work in Parliament.