Family Matters SUBMISSION...Family Matters – Strong communities. Strong culture. Stronger...

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FamilyMatters

SUBMISSIONTOTHE2017-18FEDERALBUDGET

FamilyMatters–Strongcommunities.Strongculture.Strongerchildren.

ABOUTFAMILYMATTERS

FamilyMatters–StrongCommunities.StrongCulture.StrongerChildren.isAustralia’snationalcampaigntoensureAboriginalandTorresStraitIslanderchildrenandyoungpeoplegrowupsafeandcaredforinfamily,communityandculture.

FamilyMattersaimstoeliminatetheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecareby2040.

FamilyMattersisledbySNAICC–NationalVoiceforourChildren(SNAICC)andissupportedbyaStrategicAllianceofover150AboriginalandTorresStraitIslanderandnon-Indigenousorganisations,leadingacademicsandprominenteducationalinstitutions.

ACKNOWLEDGEMENTS

TheFamilyMattersSubmissiontothe2017-18FederalBudgetwasdevelopedwithleadershipfromSNAICC–NationalVoiceforourChildrenandSavetheChildrenAustralia,incloseconsultationwiththecampaign’snationalPolicy&AdvocacyWorkingGroup.

SNAICCandtheFamilyMattersCo-Chairswouldliketoacknowledgethedepthofknowledge,researchexpertiseandstrategicadvicecontributedtothissubmissionbyallmembersoftheFamilyMattersPolicy&AdvocacyWorkingGroupandbymembersofthecampaign’snationalsteeringcommittee,theChampionsGroup.

FrontCoverPhotography:WayneQuilliam

Forfurtherinformation,pleasecontact:

FamilyMatters,c/oSNAICC–NationalVoiceforourChildren

[email protected]

2017–18FederalBudgetSubmission3

INTRODUCTION

FamilyMatters–StrongCommunities.StrongCulture.StrongerChildren.bringstogetherthecollectivevoiceofAustralianorganisations,academicsandleaderswhoaredistressedatthepersistentandescalatingpooroutcomesforAboriginalandTorresStraitIslanderchildrenacrossourcountry.ThefailuretopromoteandprotecttherightsofAboriginalandTorresStraitIslanderchildrenishighlightedstarklyintheir9.5timesandgrowingover-representationinAustralia’schildprotectionsystems.Thisover-representationreflectsbroaderrealitiesofpoverty,discriminationandinter-generationaltraumathatareimpactingourchildrenandthefamiliesandcommunitiesthatcareforthem.Systems,servicesandavailablesupportsarefailingourchildrenasevidencedbyacontextwhereyoungAboriginalandTorresStraitIslanderchildrenaretwiceaslikelytobedevelopmentallyvulnerableasnon-Indigenouschildrenandfarlesslikelytoaccessuniversalandpreventiveservicesthatcouldaddressissuesandsupporttheirpotential.1

AboriginalandTorresStraitIslanderchildrenhavetherighttogrowupinnurturingandsafeenvironmentswiththeloveandsupportoftheirfamiliesandcommunities,groundedinandproudoftheirculturalidentityandrichculturalheritage.AlltheevidencesuggeststhattoachievethisweneedtoaddresstherootcausesofchildprotectioninterventionforAboriginalandTorresStraitIslanderchildrenbytakingactiontohealandstrengthenfamiliesandcommunities.FamilyMattershascompletedareviewoftheevidenceandextensiveconsultationwithAboriginalandTorresStraitIslanderpeople,governmentsandthenon-governmentsectortocreateaRoadmapforchangethatcouldprovideourchildrenwiththeopportunitytothrive.TheFamilyMattersRoadmapcallsforactiontoprogressfourevidence-basedbuildingblocksforchange:

1. Allfamiliesenjoyaccesstoquality,culturallysafe,universalandtargetedservicesnecessaryforAboriginalandTorresStraitIslanderchildrentothrive

2. AboriginalandTorresStraitIslanderpeopleandorganisationsparticipateinandhavecontroloverdecisionsthataffecttheirchildren

3. Law,policyandpracticeinchildandfamilywelfareareculturallysafeandresponsive

4. GovernmentsandservicesareaccountabletoAboriginalandTorresStraitIslanderpeople

Thebudgetproposalsinthissubmissioncallforsubstantialshorttomedium-terminvestmenttoimplementthesepriorities–tostrengthenourfamiliesandcommunities,supportourchildren,andarresttheescalatingover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare.WecallfornationalandaccountablestrategiestobeimplementedbythefederalgovernmentinpartnershipwithstatesandterritoriesandAboriginalandTorresStraitIslanderpeople.Thoughtheinitialinvestmentrequiredissignificant,thissubmissionarguesstronglyandpresentstheevidencethatthefuturebenefitsforoursocietyandcostsavingsfromthereducedprovisionoflifelongremedialservicesarefargreaterthanthecosts–thereisbothamoralandeconomicimperativetoactnow.

FamilyMatters–Strongcommunities.Strongculture.Strongerchildren.4

BUDGETPROPOSALS

1.ACOAGTARGETANDNATIONALSTRATEGYTOADDRESSOVER-REPRESENTATION

Thepersistent,escalatingrateofremovalofAboriginalandTorresStraitIslanderchildrenintoout-of-homecareisanationalcrisisthatrequiresaclearandconcertednationalresponse.Whilechildprotectionisprimarilyastateresponsibility,thefederalgovernmenthasresponsibilityandcapacitytosupporteffortstoaddresstherootcausesofchildremoval.Thefederalgovernmentalsobearssignificantcostsoflaterlifehealthandwell-beingissuesassociatedwithchildabuse,neglectandexperiencesofout-of-homecare.TheCoalitionofAustralianGovernments(COAG)hasalreadytakenastrongroleinchildprotectionwithpreventivefocusthroughitscarriageoftheNationalFrameworkforProtectingAustralia’sChildren2009-2020.

Whentheground-breakingBringingThemHomereportintotheStolenGenerationswasreleasedin1997,nearly20yearsago,mainstreamAustraliawasshockedtolearnthatAboriginalandTorresStraitIslanderchildrenrepresented20percentofchildrenlivinginout-of-homecare.Now,in2016,theyareover35percent.2Despitenumerouslegalandpolicyframeworksdesignedtoadvancesafety,andfamilyandculturalconnectionsforchildren,therateofAboriginalandTorresStraitIslanderchildreninout-of-homecareisnowalmosttentimesthatofotherchildren,andcontinuestogrow.ProjectionsdevelopedbytheUniversityofMelbournein2016(Figure1)showthatthepopulationofAboriginalandTorresStraitIslanderchildreninout-of-homecarewilltripleinthenext20yearsifnothingisdonetointerruptcurrenttrajectories.


Figure1:Populationgrowthtrajectoriesofchildreninout-of-homecareinAustraliabyIndigenousstatus3

TheoutcomesdeliveredbychildprotectionsystemsacrossAustraliaarealarminglypoorforchildrenandfamilies,andareachievedatsignificantandincreasingfinancialandsocialcost.RecurrentexpenditureonchildprotectionandfamilysupportservicesinAustraliahasreached$4.3billion,ofwhich$3.6billionisspentonstatutorychildprotectionandout-of-homecare.4Thisexpenditurehasincreasedbyanaverageof3.8percentperyear,andatotalof$472millionoverthelast4years.Thecostsofthissystemaremuchgreaterhowever,withchildreninout-of-homecaremuchmorelikelytoexperiencepoorerhealth,depression,violenceandsuicideovertheirlives;beimprisoned;sufferfromalcoholabuseandgamblingaddiction,andarelesslikelytohavetrustingrelationships,healthyparentingmodels,andaccesstoeducationandeconomicopportunities.Impactsalsoricochetthroughfamiliesthroughourhealth,education,welfareandjusticesystems.Costbenefitanalysesdemonstratethatimprovingchildsafetyandrectifyingtheseincreasingandunsustainablegovernmentcostsarebestachievedthroughredressingthecausesofchildremoval,andinvestingearlytobettersupportat-riskchildrenandtheirfamilies.5

Politicalrecognitionofandcommitmenttotheurgentneedtoredressthisover-representationhasgrownsignificantlyatbothstate,territory,federalandCOAGlevelsoverrecenttimes.InJune2016stateandterritoryChildandFamiliesMinistersfromacrossAustraliametandsignaledtheirintenttotakenationalactionandseekCOAGsupport,statingintheircommuniquéof24June,“ChildrenandFamiliesMinistersagreedtopursuenationalactiontoaddresstheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare…MinisterswillworkthroughFirstMinisterstoseekconsiderationoftheseissuesatCOAGasapriorityfornationalreform.”6TheDecember2016meeting


ofCOAGaddressedtheissuedirectly,withitscommuniquéstatingthat,“Leadersdiscussedthecriticalimportanceofearlyinterventioneffortstoreducetheflowofchildrenintothesystemaswellasthebenefitsofbetterinformationsharingandidentifyingopportunitiestoreducetheover-representationofIndigenouschildren.”7Throughout2016,theFamilyMattersStatementofCommitment8toworktowardseliminatingover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecarewassignedby29stateandfederalpoliticians,88non-governmentorganisations,and6children’scommissionersorchildguardians.Politicianssigningthestatementincludedfederalgovernmentministers,federalgovernmentandoppositionMPsandsenators,statechildrenandfamiliesministersandfederalcross-benchsenators–demonstratingbroad,non-partisansupportforactiononthisissue.

EvidencecallsforanintegratedstrategythatredressesthecausesofIndigenouschildremoval.Thesecoverareasofbothfederalandstatepowers,including:familysupport;inadequatehousingandhomelessness;socialsecurity;familyviolence;drugandalcoholmisuse;healthandmentalhealth;earlychildhoodeducationandcare;andchildprotection.Strategiesmustincludepublicmeasuresofaccountability,whichareessentialtoolstodriveintraandinter-governmentfocus,resourcingandmonitoringofoutcomes.Whileasignificantcomponentofimplementationforthestrategywillneedtobeledbystatesandterritories,federalleadershipandinvestmentinarangeofneworsustainedinitiativesacrosstheseareaswillbecritical.Recommendationsforafederalearlyintervention,preventionandreunificationinitiativeareincludedseparatelyinproposal2below.

ToimplementaCOAGtargetandstrategytoeliminatetheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecareresourceswillberequiredatthefederallevelfor:

• thedevelopmentofthetarget,strategy,andoutcomesmeasures;• nationalcoordinationofimplementationeffortsbytheAustralianGovernmentwithSecretariat

supportprovidedbytheDepartmentofPrimeMinisterandCabinetandtheDepartmentofSocialServices;

• ongoingconsultationwithAboriginalandTorresStraitIslanderleadersandpeakorganisationsonthedevelopmentanddeliveryofthestrategy;

• publicreportingofprogressandoutcomes;• additionalresourcesfortargetedfamilyandcommunitystrengtheninginitiativesasreferenced

inproposal2below.

RECOMMENDATION1:

Developandimplementacomprehensive,adequatelyresourcednationalstrategyandtarget,developedinpartnershipwithAboriginalandTorresStraitIslanderpeoples,toeliminatetheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare.

BUDGETIMPACT:

TheCommonwealthcommittoprovide$40millionoverfouryearstofundanewNationalPartnershipAgreementbetweenallStatesandTerritoriestoeliminatetheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare.


2.ANATIONALABORIGINALANDTORRESSTRAITISLANDEREARLYINTERVENTION,PREVENTIONANDREUNIFICATIONPROGRAM

Australianandinternationalevidencehasdemonstratedtheenormouspotentialdownstreamsocialandeconomiccostbenefitsofearlyinterventionsupportsthatpreventfamilybreakdownandensurechildrencanstaysafelyinthecareoftheirfamilies.Healthandwell-beingbenefitsofpreventiveservicedeliverycutacrossabroadrangeoffederalandstateportfolios.In2015theAustralianResearchAllianceforChildrenandYouth(ARACY)completedacomprehensivereviewofevidenceoncostbenefitsofearlyintervention,concludingthat,

“Inadditiontobeingcrucialtochildren’sdevelopmentaltrajectories,itisclearthatinvestmentsintheearlyyearsandinpreventionandearlyinterventionmorebroadlyyieldsignificantfinancialreturns.Thereturnoninvestmentforpreventionandearlyinterventionisconsistentlygreaterthancostlyremedialresponses;preventativeinvestmentreducesdownstreamexpenditureonremedialeducation,schoolfailure,poorhealth,mentalillness,welfarerecipiency,substancemisuseandcriminaljustice.”9

TheARACY(2015)studycitesmultiplecost/benefitanalyseswithfindingsincludingthata7.35percentincreaseinGDPcouldbeachievedover60yearsbyreducingchildvulnerability;10andthatAustraliaincursacostof$245,000perchildat2011ratesforeachnewsubstantiationofchildmaltreatment.11A2006studyofacohortof1150Australianswhowereinout-of-homecarefoundtotalcoststogovernmentofjustover$2billionacrosstheirlifetimeswiththehighestcostareasincludingfamilyservices($190m),incomesupport($76m)andhousingsupport($67m).12Studiesoftheeconomicbenefitsofearlyinterventionprogramsaremoreadvancedinternationally,where,forexample,intheUnitedStatesastudyhasshownthattheimplementationoffourevidence-basedfamilysupportprogramsyieldsabenefittocostratioof4.31to1.13

Whileaneffectiveuniversalservicesystemaddressingcoreservices–includinghealth,educationandearlychildhood–iscriticaltosupportvulnerablefamilies,researchdescribesthatthemostvulnerablefamiliesareleastlikelytoaccessavailableservices.Torespondtoneedsforvulnerablefamilies,targetedapproachesthataddresstheirspecificandcomplexneedsandtargetedclientengagementstrategiesarecritical.Evidenceisalsoclearthatthegreatesteconomicandsocialreturnsoninvestmentcomefromprogramstargetedtovulnerablepopulations,especiallythosetargetedearlyinthelifecycle.14ForAboriginalandTorresStraitIslanderfamilies,serviceaccessissuesarecompoundedbythelackofservicesthatareculturallyappropriateoradaptedtotheirspecificcircumstances15–reflectedintheirunder-utilisationofmainstreampreventiveservices.


DespiteAustralia-wideendorsementofapublichealthmodelforchildsafetythatwouldincreasetheuseofpreventiveapproaches,83percentofthe$4.34billionchildprotectionbudgetremainstargetedatthetertiaryendofthespectrum,childprotectionandout-of-homecare.16Australiaisinfactmovingbackwardswithinvestmentinfamilysupportservicesforvulnerablefamiliesdecreasingfrom19.2percentto16.6percentoftotalchildprotectionexpenditureover2011-12to2014-15.17AsillustratedinFigure2,weareinvestinginrespondingtoincidentsthatplacechildrenatrisk,ratherthanpreventingthemfromhappeninginthefirstplace.

Figure2–RealrecurrentexpenditureonchildprotectioninAustralia,2014-1518

Givenwidespreadfailurestoinvestadequatelyinearlyinterventionandthelackofculturallyappropriateservices,itisunsurprisingthatonly1.4percentofAboriginalandTorresStraitIslanderchildrenonaverageaccessedanintensivefamilysupportserviceacrossAustraliain2012-14(Figure3),19ascomparedto14.6percentofAboriginalandTorresStraitIslanderchildrenwhoreceivedachildprotectionservicein2014-15,20asillustratedinFigure3.


Figure3–PercentageofAboriginalandTorresStraitIslanderchildrencommencinganIntensiveFamilySupportService,2012-1421

TogetherthisevidenceclearlyindicatesthatatthecoreofaresponsetoAboriginalandTorresStraitIslanderover-representationistheincreasedprovisionoftargetedandculturallyappropriatefamilyservicesthatinterveneearly.Internationalresearchhasdeterminedconclusivelythatarangeofevidence-basedearlyinterventionandpreventionprogramsdeliversignificantsocialandcostbenefitreturnsoninvestmentandshowstrongpotentialtoinformAustralianfamilysupportapproaches.Forexample,theSafeCareparentingsupportprogramhasbeenimplementedandextensivelyresearchedintheUnitedStates,withastudyinLosAngelesshowingthat85percentoffamilieshadnofurtherreportsofchildabuse36monthsfollowingtheintervention.22InNewYork,theNewYorkFoundlingisimplementingFamilyFunctionalTherapythroughChildWelfare(FFT-CW),aprogramthatextendsthestronglyevidence-basedFamilyFunctionalTherapymodeltoprovidetargetedsupportforfamiliestoaddressissuesthatleadtochildprotectionintervention.ApilotstudyofFFT-CWinNewYorkin2010-11foundthat71percentofhighriskfamiliesmetalltreatmentgoals,55percentofhighriskcaseswereclosedwithin6monthsandonly2percentoffamiliesrequiredanout-of-homecareplacement.23IfthesekindsofresultscouldbereplicatedinAustralia,thesocialbenefitsandcostsavingsforoursocietywouldbeenormous.

However,Internationalevidence-basedprogramswillstillfailtoengageandmeettheneedsofAboriginalandTorresStraitIslanderfamilieswheretheyarenotadaptedtolocalcultureandcontext.24SNAICC–NationalVoiceforourChildren(SNAICC)hasundertakenresearchsupportedbytheAustralianGovernmentDepartmentofSocialServicesundertheNationalResearchAgendaforProtectingAustralia’sChildrenwithAboriginalandTorresStraitIslanderserviceprovidersdeliveringintensiveandtargetedfamilysupportprogramswhichhasshowntheelementsofsupportprogramsthatarebeingadaptedtomeettheneedsofAboriginalandTorresStraitIslanderchildrenandfamilies.25The2-yearresearchprojectacrossfourjurisdictionsconductedincollaborationwithGriffithUniversityfoundthattheAboriginalandTorresStraitIslanderserviceswereeffectively


engagingAboriginalandTorresStraitIslanderfamiliesandoperatingatahighlevelofqualitywith“skilledandexperiencedstaffsupportedbygoodsupervisionandmanagement,withstrongteamfunctioning.”26Servicesinthestudywereengagingfamiliesinhelpfulandconstructivewaystodevelopcleargoalsthataddressedtheunderlyingcausesofchildprotectionintervention.27Importantly,theresearchfoundthatadaptationofevidence-basedfamilysupportapproachesforAboriginalandTorresStraitIslandercommunitieswasshowingsuccessandthatIndigenousleadershipwasintegraltothatsuccess–concludingthat:

“TheresearchdemonstratesthecapacityofservicestoadaptthecoreelementsofbestpracticeforAboriginalandTorresStraitIslanderfamilies.Providingservicesinculturallycompetentandrespectfulwayswasintrinsictotheservices.TheirstandingasAboriginalandTorresStraitIslandercommunityserviceswasimportanttoengagementandtake-up…ThevalueliesintheservicesbeingdeliveredbyAboriginalcommunity-controlledagenciesastheseentitiesareframedbythephilosophythatcommunityownstheservice,that‘itisourservice,forourcommunity.’”28

Furtherfundingisessentialacrossthechildprotectionspectrum,however,therateofremovalofAboriginalandTorresStraitIslanderchildrenintoout-of-homecarecannotchangewithoutafocusoninterveningearlytosupport,strengthenandhealfamilies.Whatismosturgentisnation-wideemphasisonAboriginalandTorresStraitIslanderledholistic,bestpractice,intensivefamilysupport,preservationandreunificationservicestailoredtovulnerableAboriginalandTorresStraitIslanderfamilies,providedattheearliestpossiblepoint.

Therefore,FamilyMatterscallsforfederalinterventiontodriveincreasedinvestmentinAboriginalandTorresStraitIslanderfamilysupportservicesthatpreventchildprotectioninterventionanditslong-termsocialandeconomiccosts,includingincarceration,welfaredependency,poorhealthandmentalillness.ThisprogramcouldbedeliveredbycreatingadedicatedfamilysupportcomponentwithintheSafetyandWellbeingstreamofthefederalgovernment’sIndigenousAdvancementStrategy.Elementsoftheprogramwouldinclude:

a) drawingonprovensuccessfullocalandinternationalevidence-basedfamilysupportprograms;b) consultationwithAboriginalandTorresStraitIslandercommunitiestodeterminelocaland

culturaladaptationsofevidence-basedprograms;c) resourcingfamilysupportservicesthroughAboriginalandTorresStraitIslanderorganisations

todrivecommunitycapacitydevelopment,localemploymentandculturallysafeservices;andd) targetingsupportstofamilypreservationandreunificationtobothprevententrytoout-of-

homecareandsafelyreunifychildrentothecareoftheirfamilies.

RECOMMENDATION2:

InvestinanationalAboriginalandTorresStraitIslanderfamilysupportprogramforearlyintervention,preventionandfamilyreunification.


BUDGETIMPACT:

ReallocationoffundingwithintheCommunitySafetystreamoftheCommonwealthGovernment’sIndigenousAdvancementStrategy,accompaniedbya$60mp.a.newinvestmenttoestablishanation-wideprogramforintensivefamilysupportwithatotaladditionalcostof$240mover4years.

3.DEDICATEDFUNDINGFOREARLYCHILDHOODEDUCATIONANDCARESERVICESTOEFFECTIVELYADDRESSABORIGINALANDTORRESSTRAITISLANDERCHILDREN’SEDUCATIONALDISADVANTAGE

Currently,AboriginalandTorresStraitIslanderChildrenaretwiceaslikelytobedevelopmentallyvulnerableearlyinlife,29andonlyhalfaslikelytoaccessearlyeducationasnon-Indigenouschildren.30TheProductivityCommissionhasidentifieda15,000placegapinearlylearningplacesforAboriginalandTorresStraitIslanderchildren.31TheCommonwealthhasaclearresponsibilitytoensurethattheinequalitythatexistsbetweenAboriginalandTorresStraitIslanderchildrenandnon-Indigenouschildreninaccessingearlychildhoodservicesisredressed,throughcontinuedandincreasedsupportforqualityandculturallysafeservicedeliverydrivenbyAboriginalandTorresStraitIslanderpeoples.ThecurrentreformprocessbeingundertakenthroughtheJobsforFamiliesChildCarepackageoffersakeyopportunitytodirectlyinvestinthesafetyandwell-beingofourchildren,however,SNAICChasrepeatedlyraisedconcernsaboutthedevastatingandinadvertentimpactthesereformscouldhavewithoutadirectandspecificconsiderationoftheneedsofAboriginalandTorresStraitIslanderchildren.Theproposedamendmentstothispackageareminimal:firstlyforadedicatedfundingstreamforAboriginalandTorresStraitIslanderservices,andsecondlyanincreaseinthenumberofsubsidisedhoursAboriginalandTorresStraitIslanderfamiliescanaccess.

Earlyeducationandcare(ECEC)isrecognisedextensivelyinAustraliaandinternationallyasthemosteffectiveinterventiontosupportvulnerablechildrenandfamilies.Earlyinvestmentinstrengtheningfamiliescanprovidelong-termsocialandeconomicbenefitsbyinterruptingtrajectoriesthatleadtohealthproblems,criminalisation,andchildprotectionintervention.Itiswellknownthateffortstostrengthenfamiliesneedtotargetwholecommunitiestoaddresssituationsofpoverty,disadvantage,traumaandhousinginstabilityforcommunitiesthataredealingwiththeinter-generationalimpactsofcolonisation,racismanddispossession.TheevidenceshowsthatAboriginalandTorresStraitIslanderpeoplesaregrosslyover-representedonmeasuresofdisadvantagethatcontributetochildprotectionrisks,andsimilarlyunder-representedinparticipationinservicesthatcouldrespondandprevententrytoout-of-homecare.32

ThegovernmenthasdeclaredacommitmenttoincreasingtheparticipationofAboriginalandTorresStraitIslanderchildrenthroughthenewchildcaresystem.33AllresearchindicatesthattheextremegapsinutilisationbetweenAboriginalandTorresStraitIslanderpeopleandnon-Indigenouspeopleofuniversalservices–includingearlychildhoodeducationandcare–areaproductofthehistorical,culturalandsocialfactorsintertwinedinmainstreamservicedeliverywhichgenerateexperiencesofdiscriminationandthen,inturn,disengagement.


AboriginalandTorresStraitIslanderECECservicesareanessentialpartoftheAustralianchildcaresystem.AboriginalandTorresStraitIslanderorganisationshavebeenidentifiedasbestplacedtoprovideculturallycompetentservicesthatareattunedtotheneedsoftheircommunities,andevidenceconfirmsthattheseservicesaremorelikelytobeused.ResearchdescribesthatIndigenousspecificservicesofferIndigenousfamiliesasafe,comfortable,culturallyappropriateenvironmentthatiseasiertoaccessandengagewith.34

AboriginalandTorresStraitIslanderECECserviceshaveadifferentpurposetootherservices.Theiraimistosupportthewell-beingofthemostvulnerablechildrenandfamiliesinourcommunitybyreducingtheserviceaccessbarriersthatmanyAboriginalandTorresStraitIslanderfamiliesexperienceinthemainstreamsystem.EvidencestronglysupportsAboriginalandTorresStraitIslanderECECservicesasthemostsuccessfulorganisationsinengagingsuccessfullywithAboriginalandTorresStraitIslanderchildrenbecause:

• theyactivelyaccessvulnerablechildrenwhoarenotaccessingservices–particularlyduetothediscriminationfamiliesexperienceinmainstreamservices;

• theyengagewiththemostvulnerableandisolatedfamiliesinourcommunityandareakeyentrypointforvulnerablefamiliestoengagewithabroadrangeofsupportservicesthatcanenhancethesafetyandwell-beingofchildren;and

• theysupportparentswhomaybeexperiencinglong-termorentrenchedunemploymenttoaccesssupportintheirtransitionintotheworkforceandprovideanincentivetotransitionintotheworkforce.Theyoftenofferculturallysafeoptionsfortrainingandasteppingstoneintopaidlocalwork,somebeingamongthelargeremployersintheircommunities.

AdequatelyunderstandingandaccommodatingfortheECECserviceneedsofAboriginalandTorresStraitIslanderchildrenandfamiliesexperiencingvulnerabilitycanonlyoccurwhenspecificconsiderationisgiventotheincreasedcostsservicesfacewhendeliveringculturallyinformedandintegratededucationandcare.TheincreaseincomparativedeliverycostsforAboriginalandTorresStraitIslanderservicesisparticularlynotableforservicesoperatinginremoteorruralareaswherethereisnomarketforchildcareandallservicesincurhighercosts.However,therearekeyfundingconsiderationsthatextendmuchfurtherthanremoteness–notablytheadditionalcostsofengagingwithahighernumberofhighriskchildrenandfamiliesandprovidingeffectivetrauma-informedculturallybasedservices.AboriginalandTorresStraitIslanderECECservicesarefacedwithhighlycomplexanddiversedemandsonstaffandprograms,andthesedemandscanonlybemetwith:

• higherstaffinglevels;• increasedandvariedformsoftrainingforstaff(e.g.familyviolence,drugandalcohol,mental

health);• fundingforculturalprogrammingandeffectiveengagementwithcommunityboardsand

governancestructurestoensurecommunitybuyin;and• fundingtoremedyhigherlevelsofadministrationforchildrenexperiencingvulnerabilityand

theneedforamorediverseandcomprehensiverangeofsupportprogramsforparentsandfamilies.

IfthefederalgovernmentistoclosethegapinaccesstoECECforAboriginalandTorresStraitIslanderchildren,theseadditionalfundingneedsthatarecriticaltoengagementwithandsupportoffamilieswillneedtobemet.


TheFamilyAssistanceLegislationAmendment(JobsforFamiliesChildCarePackage)Bill2016proposesdramaticreformoftheearlychildhoodeducationandcaresector.AsidentifiedbyalargerangeoforganisationsincludingSNAICC,thepackagewillhavedevastatingconsequencesforAboriginalandTorresStraitIslanderECECserviceswithoutreform.ThetwokeyareasofconcernaretheabolishmentoftheBudgetBasedFunding(BBF)programandthereductionintheminimumsubsidisedhoursavailabletofamilies.Theimpactofthesechangeswillbereducedincomeforservicesandhighercostsforfamilies,thecombinationofwhichwillhaveadevastatingimpactonAboriginalandTorresStraitIslanderchildrenandfamiliesbyreducingtheabilityforfamiliestoaccessservices,andreducingthecapacityofservicestoofferabroadrangeofholisticservices.

ForAboriginalandTorresStraitIslanderfamiliesexperiencingvulnerabilityorhardship,areductioninsupporttoaccessECECserviceshasasignificantimpactontheirchildren.Thisisparticularlytrueforfamilieswithmultiplechildren,whowillnowfacesignificantlyhighercostsandareductioninsubsidisedhours.Thereductionintheminimumchildcareentitlementforlowincomefamiliesfrom24to12hoursofsubsidedcareperweekwillresultineitherhigherout-of-pocketcostsorreducedattendanceforfamilieswhoareinthelowestincomebracketanddonotmeettheactivitytest.Giventhehighproportionoflow-incomeandvulnerablefamiliesservicedbyAboriginalandTorresStraitIslanderchildcarecentres,thisisexpectedtohaveasignificantimpactonservicerevenue.35

ByplacingAboriginalandTorresStraitIslanderECECservicesincompetitionforfundingwithothermainstreamprovidersundertheCommunityChildCareFund,theCommonwealthisgeneratingasystemthathasthepotentialtomarginalisesmall-scalecommunityorganisationsandsupportlarger,establishedorganisationstosecuremorefunding,thuserodinglocalcommunityandculturalleadershipinservicedelivery.ThiswastheexperienceoftheimplementationoftheIndigenousAdvancementStrategybytheDepartmentofthePrimeMinisterandCabinet(PM&C)whichsawmanysmallandunder-resourcedAboriginalandTorresStraitIslanderorganisationsstrugglingtocompeteforfundingagainstlargeandwell-establishedmainstreamnon-governmentorganisations.36WehavebeenencouragedbytherecentadvicetosectororganisationsprovidedbytheMinisterforEducationandTraining,SenatortheHon.SimonBirmingham,thatadiscretionarycomponentoffundingwithintheCommunityChildCareFundwillassisttoensurethatAboriginalandTorresStraitIslanderservicesarenotunfairlydisadvantagedthroughthecompetitivefundingprocess.However,westronglybelievethatasustainableapproachthatmeetsthegovernment’sresponsibilitytoaddresstheinequitiesinserviceaccessandoutcomesforAboriginalandTorresStraitIslanderchildrenrequiresadedicatedAboriginalandTorresStraitIslanderservicestream.

Theproposedremedyfortheseimpactsisintwoparts:

1. AnAboriginalandTorresStraitIslanderspecificprogramwithintheChildCareSafetyNetandanattunedfundingmodelforotherruralandremoteservices.TheobjectiveoftheAboriginalandTorresStraitIslanderprogramwouldbetoproviderepeatedthreeyeargrantstotop-uptheincometoAboriginalandTorresStraitIslanderservicestoenablethemtocontinueflexibleserviceprovisiontothemostdisadvantagedchildrenwithintheircommunities.Savingsfromthedelayedroll-outoftheJobsforFamiliesChildcarePackagecouldbedrawnupontoprovidetheestimatedadditional$100mp.a.requiredtoimplementthisprogramontopoffundsreallocatedfromtheproposedCommunityChildCareFund.


Fundingagreementsunderthisstreamoffundingwouldbeprovidedonalong-termbasistoensurethesustainabilityofservicesandenableeffectiveprogrammingtosupporttheneedsoffamiliesinlightofbest-practicemodelsforinterventionsurroundingfamilyviolence,drugandalcoholmisuseandcommunityviolence.

2. Provisionofatleasttwofulldays(20hours)ofsubsidisedqualityearlylearningtoallchildrentosupporttheirdevelopment,regardlessoftheirparents’activities.Thisisacompromisedpositionfromthefull24hoursprovidednow,offeredinthespiritofcompromiseasapartofapackageofrecommendations.ThisrequiresanamendmenttotheBilltoensurethatfamiliesonincomeslessthan$100,000perannumreceivetwofulldays(20hours)ofsubsidisedcareperweek.Thiscouldtaperdownbetweenthecurrentproposed$65,700and$100,000p.a.Thisproposalwouldrequire,specifically,anamendmentofSchedule1,Clause131)oftheBilltostatethat“Thelowincomeresultis48”sothatfamiliesonincomeslessthanthelowerincomethreshold($100,000)perannumreceivetwofulldays(upto20hours)ofsubsidisedcareperweekoranamendmentreflectingthetaperingcomponent.Thisremovesunfaircutsinsubsidycausedbythecliffat$65,710whichwouldmeanchildrenhavetodropoutofearlylearningorhaveasignificantincreaseintheirfeesiftheirestimatedincomegoesabove$65,710.Italsoretainsworkforceincentivesforfamilieswithincomesover$65,710becausesubsidyforworkingfamilieswillbepaidatahigherChildCareSubsidy(CCS)percentageaswellasincludingadditionalCCShours.ItfinallyensuresfamiliesinthebottomtwoquintileswhodonotmeettheactivitytestarenotworseoffmovingtoCCS.Giventhebudgetaskforshiftingthenumberofsubsidizedhoursforallchildrento20hoursissignificant,apotentialoptionwouldbetoimplementaspecialmeasuretoenableaspecificprovisionfor20subsidisedhoursforallAboriginalandTorresStraitIslanderchildreninrecognitionoftheneedtoclosethegapinearlychildhoodservicesaccessandoutcomesforAboriginalandTorresStraitIslanderchildren.

Costsavingmeasures

Thereareaseriesofcostsavingsthatcouldbemadetoredressanyincreasedcoststhroughtheserecommendations.Thesectorhasbeenworkingonidentifyingsomepotentialmeasuresthatrangefromreducingtheincomethresholdforthecapfrom$185,000toreallocatingunderspendsfromtheNannyPilotandredirectingsomeofthe$1.1billionofbudgetsavingstheGovernmentwillachievein2017-18fromthedelayinthecommencementoftheChildCareSubsidy.

RECOMMENDATION3:

EstablishanAboriginalandTorresStraitIslanderspecificprogramwithintheChildCareSafetyNetoftheFederalGovernment’sJobsforFamiliesPackage.

BUDGETIMPACT:

$100mperannumadditionalcostdrawingonsavingsfromthedelayedimplementationoftheJobsforFamiliespackage.


RECOMMENDATION4:

Provideatleast20hrsofsubsidisedqualityearlylearningtoallchildrentosupporttheirdevelopment,regardlessoftheirparents’activities.

BUDGETIMPACT:

FamilyMattersisyettodevelopaclearcostingontheproposedincreaseinminimumsubsidisedhours.WewouldbepreparedtoworkwiththeGovernmenttofullydetailcostsandpotentialsavings.

4.NATIONALDATASETSFORCHILDPROTECTIONALIGNEDWITHGAPSIDENTIFIEDINTHE2016FAMILYMATTERSREPORT

In2016,FamilyMattersformedapartnershipbetweentheUniversityofMelbourne,theCentreforEvidenceandImplementation,SNAICCandSavetheChildrentoresearchandproduceareportonavailabledatareflecting:

• abenchmarkingofthecurrentover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare;

• measuresoftheeconomic,communityandsocialfactorsthatdriveover-representationandserviceresponses;and

• measuresofprogresstowardsenablingAboriginalandTorresStraitIslanderparticipationandculturalrespectintheresponsetoover-representation.

TheseeffortsledtotheNovember2016publicationoftheFamilyMattersReport.WhilethereportprovidedavaluablebaselineoncurrentissuesandtrendstopromoteAboriginalandTorresStraitIslanderchildsafetyandwell-being,italsorevealedextensivegapsinavailabledata.

Thelackofcomprehensiveanddetaileddatarelevanttothesituationof,causesandresponsestoAboriginalandTorresStraitIslanderchildren’sover-representationinout-of-homecare(OOHC)shouldbeofgreatconcerntogovernments.Effectivepolicymakingisguidedbyaccuratedataandinformation,anddataisalsoessentialtomonitorandevaluatetheimpactandcosteffectivenessofpoliciesdesignedtoimproveandaddressthesafetyandwell-beingofAboriginalandTorresStraitIslanderchildren.ThesubstantialgapsindatarelevanttoAboriginalandTorresStraitIslanderchildren’sexperienceofchildwelfaresystemshighlightsthepotentialforseriousriskstochildrenincluding:governmentsandauthoritiesnotbeingawareofelevatedriskstochildren’ssafety;therightsofchildrentoaccesshealth,educationandjusticebeingcompromised;andtheinadequateanddelayedinvestmentofgovernmentsintargetedandevidence-basedsolutionstoaddressthechronicsituationwearefacingtoday.

Asignificantinvestmentindatadevelopmentisneededtoensureaccesstoarangeofrelevantdatathatwouldinformabetterunderstandingofthecurrentsituationofover-representation,theprogresstowardsreformandthetargetingoffutureefforts.Datadevelopmentshouldtakeaccount


ofidentifiedgapsthroughoutthe2016FamilyMattersReportthathavebeenmappedagainsttheevidence-basedbuildingblockstoaddressingover-representationoutlinedintheFamilyMattersRoadmap.Inparticular,thereshouldbeaprioritytoensurethefollowingprioritydatagapsareredressedandreportedagainstintheProductivityCommission’sannualReportonGovernmentService,theAIHWChildProtectionAustraliaReport,and/ortheOvercomingIndigenousDisadvantageReport:

• ReunificationratesofAboriginalandTorresStraitIslanderchildreninOOHC;• AboriginalandTorresStraitIslanderchildentryandre-entrytoOOHC;• InclusionofaccesstolongdaycareundertheBudgetBasedFundingPrograminearly

childhoodeducationandcaredata;• ExpenditureinchildprotectionandfamilysupportbothprovidedtoAboriginalandTorres

StraitIslanderchildrenandprovidedbycommunity-controlledservices;• AboriginalandTorresStraitIslanderaccesstofamilysupportandintensivefamilysupport

services;• Therateofdomesticandfamilyviolencereportsandsubstantiationsacrossalljurisdictions

andbyremotenessforAboriginalandTorresStraitIslanderwomenandchildren;• NationallyconsistentmeasuresofcompliancewiththeAboriginalandTorresStraitIslander

ChildPlacementPrinciplealignedwithitsintentandfivedistinctelements;• HousingtenuretypeandqualityofhousingamongstAboriginalandTorresStraitIslander

familieswithchildren;and• HomelessnessandissuesrelatingtohousingandovercrowdingexperiencedbyAboriginal

andTorresStraitIslanderchildrenandtheirfamiliesinvolvedwithchildprotection.

RECOMMENDATION5:

Developmentandpublicationofdatatobettermeasurethesituationof,causesandresponsestoover-representationofAboriginalandTorresStraitIslanderchildren.AdatadevelopmentprojectcouldbeledbyeithertheProductivityCommissionortheAustralianInstituteofHealthandWelfarewhichbothreportannuallyonanumberofrelevantexistingdatasets.

BUDGETIMPACT:

Nil–Thismeasurecouldbeimplementedthroughreallocationofprioritiesoftheagencycompletingthedatadevelopmentproject.

5.COMMUNITYPARTICIPATIONINCHILDPROTECTIONDECISIONMAKINGTRIALS

Shiftingpractice–fromservicedeliveryresponsesthatechohistoricalgovernmentinterventions,totheempowermentofAboriginalandTorresStraitIslanderpeopletodrivetheagendathroughcommunity-ledapproaches–iscriticaltosustainablechangeforchildsafetyandwell-being.Manyofthechallengescommunitiesfaceinprovidingsafecarefortheirchildrenhavetheirrootsinthehistoricallossofcultureandcontrol,andtheresultingexperiencesoftraumaanddisadvantagethatarepassedfromonegenerationtothenext.Assuch,theseissuescanonlybeaddressedbyreturning


responsibilityandleadershiptoAboriginalandTorresStraitIslanderpeopletocreateandprovidesafeandnurturingfamiliesandcommunitiesfortheirchildren.ToenablethistooccurtheAustralianGovernmentneedstofostercommunityleadershiponmattersofchildsafetyandwell-being.Whileothersectionsofthesubmissioncallforservicesthataddressimmediatesupportneedsforfamilies,thissectioncallsforthecommunityempowermentthatwillmakefamilychangessustainableinthecontextofsupportiveandthrivingcommunities.

AstrongbaseofcapacitytocareforandsupportchildrenremainsthedominantparadigminAboriginalandTorresStraitIslandercultureandcommunities,indicatingaclearpathwayforcommunityandculturallybasedsafecare.TheculturalstrengthsofAboriginalandTorresStraitIslanderchildrearingpracticescontributetocreatesafeandnurturingenvironmentsforchildren–indeed,theliteraturehasrecognisedthevalueofIndigenouskinandcommunitysystemsthatprovideholisticcareforchildren.37Also,despitetheover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare,almost95percentofAboriginalandTorresStraitIslanderchildrenarecaredforbytheirfamiliesandcommunities,andofthoseincare,justoverhalfarecaredforbyAboriginalandTorresStraitIslandercarers,38indicatingtheenormousdegreeofsuccessfulcareprovidedbyAboriginalandTorresStraitIslanderpeople.

AustralianandinternationalevidencehasconfirmedtheeffectivenessofIndigenousleadershiptoidentifyneedsandshaperesponsesthatconsistentlyproducebetterresults,39andhaslinkedIndigenouscommunityempowermenttobroadlypositivesocialandemotionalwell-beingoutcomesforcommunitymembers.40Community-drivensolutionshavethepotentialtomeetcommunities’specificneedswithrealisticandculturallyappropriateapproaches.Asaresultofthecommunityparticipation,involvementanddeliveryofthesesolutions,asenseofcontrol,trust,andawarenesscanbecreatedwithincommunities.Communityvaluesandbeliefsarealsopromotedthroughtheseprocesses,reinforcingapositivesenseofculturalidentityandknowledge.Childrenarethedirectbeneficiariesofstrongfunctioningcommunitiesthatexerciseself-governance.41

Aframeworkforgenuinelyenablingsuchparticipationrequiresthedevelopmentandrecognitionofcommunityrepresentativestructuresthatcanparticipateindecision-making,andgoodfaithnegotiationswiththosecommunityrepresentativestoobtaintheirfree,priorandinformedconsentfordecisionsmade.42Enablingcommunityleadershiponmattersofchildsafetyandwell-beingisacomplextaskthatconfrontsabroadrangeofbarriers,including:

• Disparatesystemsofgovernanceandleadershipthroughserviceorganisations,referencegroupsandcommitteesthatareoftenalignedtosiloedgovernmentserviceresponses–ratherthanholistic,community-ledsafetyandwell-beingapproaches;

• Reluctancetoengagebecauseofthefailuretofollow-throughorachieveoutcomesthroughpreviousgovernmentormainstreamledresponses;

• Fracturedcommunitieswhereinter-generationaldisadvantageandstrugglehavecontributedtocommunitydivisions,andcompetitionforresourcesandauthority;

• Damagedrelationshipsbetweengovernmentandmainstreamservicesandcommunitiesthatrequiresupportforrebuildingtrustandgenuinepartnership;and

• Persistentdiscriminatory,racistand/orpaternalisticattitudesofsomenon-Indigenousserviceorganisationsandstaff.


Whatisneededtoaddressthesebarriersandsupportcommunityempowermentisthefacilitateddevelopmentofcommunityleadershipforensuringchildsafetyandwell-being.EnablingsuchleadershipwouldnecessarilydrawandbuildonthestrengthsofexistingcommunityleadershipandculturalstrengthsinprovidingforthesafecareofAboriginalandTorresStraitIslanderchildren.FamilyMattersproposesatrialofafacilitatedapproachtoworkingwithAboriginalandTorresStraitIslandercommunitiestodevelopchildsafetyandwell-beingleadership.Thetrialwouldincludeelementssuchas:

• Facilitatingtheformationofaleadershipgroupwithappropriaterepresentationanddrawingonexistingcommunitygovernancestructures;

• Supportingcommunityrepresentativestodefinetheiraspirations,needsandstrengthsforensuringthesafetyandwell-beingoftheirchildren;

• Supportingthedevelopmentofcommunitystrategiestoaddresschildabuseandneglect;• Facilitatingthedevelopmentofrelationshipsandengagementprotocolsbetween

communityrepresentativeandgovernmentandcommunityservices;and• Providingcommunityeducationonchildprotectionprocessesandservices.

Theproposalofatrialrecognisesthatcommunity-drivenmechanismscantakemanyshapes–bothformalandinformal–andthattheformofcommunityorganisationcannotbeprescribed.Theprocessinvolvesgovernmentstrustingandstrengtheningcommunityknowledgeandexpertisethroughbuildingcommunitycapacityandconfidenceandultimatelyallowingcommunitycontroloverlocalresponses.

ItisproposedthatthetrialwouldcommencebyappointinganAboriginalorTorresStraitIslanderfacilitatortoworkwithcommunitiestodeterminethemostappropriatecommunitystructureforenablingparticipation.Keyobjectivesofcapacitystrengtheningwithinthecontextofchildandfamilywelfareincludethestrengtheningofidentityandsenseofbelongingofcommunitymembers,strengtheningthecommunity’snurturanceandprotectionofchildrenandfamilies,andcreatingacollaborativeandsupportivenetworktoassistafamilies.

CASESTUDY:GRANDMOTHERSAGAINSTREMOVALS(GMAR)

GMARisakeycommunity-drivensolutiontotheescalatingnumbersofAboriginalandTorresStraitIslanderchildrenincare.Formedin2014inresponsetothehighlevelsofAboriginalchildreninout-of-homecareinNewSouthWales,GMARhasbeenledbyconcernedgrandparentswhohaveadvocatedforstrongerrelationshipsbetweenchildprotectionservicesandcommunitiesandagreedonaGuidingPrinciplesdocumentwiththeNewSouthWalesGovernment.TheGuidingPrincipleshighlighttheroleoflocalAboriginalcommunitiesandtheirorganisationsindecision-making,inputtingintochildprotectionandout-of-homecareservicedelivery,andensuringcompliancewithvariousrequirementsincludingtheAboriginalandTorresStraitIslanderChildPlacementPrincipleandculturalcareplanning.43


RECOMMENDATION6:

UndertakeatrialoflocalAboriginalandTorresStraitIslandercommunitystrategiestostrengthenfamilies,redresslocalrisksofabuseandneglectforchildren,overseechildsafetyandwell-being,andinputtodecision-makingonthecareandsafetyofAboriginalandTorresStraitIslanderchildren.Thetrialcouldbeconductedin6-7locationsinurban,regionalandremotelocationstoestablishafirmbaseofevidencetoinformtheconsiderationofbroaderimplementation.

BUDGETIMPACT:

$8millionover4years

6.ANATIONALPEAKBODYFORABORIGINALANDTORRESSTRAITISLANDERCHILDREN

EffectivelyengagingwithAboriginalandTorresStraitIslanderfamiliesexperiencingvulnerabilityandstrengtheningthesafetyandwell-beingofchildrenrequiresahighlevelofknowledgeandexperiencetounderstandandrespondtotheirneeds.Theover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecareissymptomaticofachildandfamilyservicesectorthatbroadlyfailstorespondtoandprioritisethespecificneeds,circumstancesandexperiencesofAboriginalandTorresStraitIslanderchildrenandfamilies.AddressingthisgaprequirestheactiveengagementofgovernmentwithAboriginalandTorresStraitIslandercommunitiesthathavethebestknowledgeabouttheirownuniqueneedsandtheresponsesrequired.

GovernmentshaveincreasinglyrecognisedtheneedtoengageinproductivepolicypartnershipswithAboriginalandTorresStraitIslanderpeoplestoaddressthechronicgapsinaccess,engagementandoutcomesfromchildandfamilyinterventions.Theprincipleofactiveparticipationof,andengagementwith,AboriginalandTorresStraitIslandercommunitiesisrecognisedwithintheNationalIndigenousReformAgreement(NIRA)asfundamentalindesigningprogramstoeffectivelyovercomedisadvantage.TheNIRAidentifiesthat“strongrelationship/partnershipsbetweengovernment,communityandserviceprovidersincreasethecapacitytoachieveidentifiedoutcomes.”44

TheeffortsofgovernmenttoengagewithandbeinformedbyAboriginalandTorresStraitIslandercommunitiesareoftenhamperedbymultipleengagementchallengesincluding:

• OvercomingdistrustofAboriginalandTorresStraitIslanderpeopleandcommunitiesofgovernmentduetopastdiscriminatorypoliciesandpersistentpooroutcomes;

• DifficultyinclearlydeterminingtheprioritiesofAboriginalandTorresStraitIslanderpeopleduetomultipleanddisparatevoicereflectingalargediversityofculturesandperspectives;


• Identifyingcollectiveneedsandinterestsversuslocal,individualandorganisationalneedsandinterests;and

• Inadequatecapacityforculturallycompetentengagementpractice.

TofunctioneffectivelygovernmentrequiresmechanismsforengagingwithAboriginalandTorresStraitIslanderleadershipandcommunity-controlledorganisationstoensurethattherelevantexpertise,knowledgeandcommunityconnectionsareembeddedinpolicyapproachestoaddressingthedisadvantageexperiencedbyAboriginalandTorresStraitIslanderpeoples.EngagingwithAboriginalandTorresStraitIslanderpeakorganisationsprovidesakeyplatformforovercomingengagementbarriersandtranslatingcommunityknowledgeandthecollectivevoicesofAboriginalandTorresStraitIslanderpeoplestoinformgovernmentpolicy.KeyfunctionsofAboriginalandTorresStraitIslanderpeaksthatbenefitgovernmentinclude:

• Providingacosteffectiveconduittogarnertheperspectivesofdisadvantagedormarginalisedgroups,whichcontributestoimprovethedevelopmentofsocialpolicyandprograms;

• BringingculturalexpertiseandconnectionstocommunicateeffectivelywithAboriginalandTorresStraitIslanderpeople;

• OvercomingdistrustofgovernmentthroughAboriginalandTorresStraitIslanderleadershipanddecadesofengagementwithAboriginalandTorresStraitIslanderpeopleandrepresentationoftheirneedsandpriorities;

• ActingasarepositoryofsectorknowledgeandexpertiseinrelationtotheneedsandcircumstancesofAboriginalandTorresStraitIslanderpeople,throughspecialistknowledgeandconsultationwithmembers;

• Instigatingandpromotingpublicdebatewhichassistsinfosteringparticipatorydemocracywhilecontributingtosoundsocialpolicydevelopment;

• Providingalow-costmechanismbywhichgovernmentscanaccesstheknowledgeandexpertiseofthesectortoimprovethequality,efficiencyandrelevanceoftheirprogramsandservices;and

• Assistinginfacilitatingdialogueandinformationsharingamongstcommunitysectororganisations.

Additionally,andcritically,AboriginalandTorresStraitIslanderpeakbodies,becausetheyaregovernedbyrepresentativegroupsofAboriginalandTorresStraitIslanderleaders,provideaplatformforself-determination.TheyserveasvehiclesfortheempowermentofboththeAboriginalandTorresStraitIslanderpeoplewhooperatethemandthecommunitiesthattheyrepresentandserve.TheyareakeymechanismthroughwhichgovernmentcanenableIndigenousleadership,inlinewithcompellinginternationalevidencethat“thebestoutcomesincommunitywell-beinganddevelopmentforIndigenouspeoplesareachievedwherethosepeopleshavecontrolovertheirownlivesandareempoweredtorespondtoandaddresstheproblemsfacingtheirowncommunities.”45

Inthechildandfamilyservicessector,SNAICChasauniqueroleastheonlynationalbodyprovidingarepresentativevoiceforAboriginalandTorresStraitIslandercommunitymembersandorganisations.SNAICCisstronglyrecognisedbygovernmentandnon-governmentstakeholdersasaleadingrepresentativevoiceonAboriginalandTorresStraitIslanderchildandfamilyissues.Establishedin1983,SNAICCisanAboriginalandTorresStraitIslandercommunity-controlledorganisationgoverned


byanationalboardandcouncilofAboriginalandTorresStraitIslandercommunityandserviceleadersfromacrossthecountry.Inpartnershipwithitsboardandcouncilmembers,SNAICCundertakesstrong,participatoryandongoingconsultationwithAboriginalandTorresStraitIslandercommunitiesandorganisationsacrossthecountry.SNAICC’sdeepconnectionto,understandingofandaccountabilitytoAboriginalandTorresStraitIslandercommunitiesisgroundedinitsIndigenous-controlledandnationalrepresentativegovernancestructure,anditslonghistoryrepresentingtheinterestsofAboriginalandTorresStraitIslanderchildrenandfamilies.SNAICCrepresentsthevoicesofAboriginalandTorresStraitIslandercommunitiesinprocessesthataffectthem,includinggovernmentreviews,inquiries,andconsultativeprocesses.

SincetheintroductionoftheIndigenousAdvancementStrategy(IAS)in2014,SNAICChasnotreceivedfundingtofulfilpeakbodyfunctions–includingtoconsultwithAboriginalandTorresStraitIslandercommunitiesandservicesanddrawontheirknowledgeandperspectivestoinformpolicyandprogramdevelopment.SNAICCcurrentlyprimarilyreceivesfundingthroughtheDepartmentofPrimeMinisterandCabinetforconductingtrainingprograms,providingresourcesandcoordinatingNationalAboriginalandTorresStraitIslanderChildren’sDay.

Despitelimitationsofitscurrentfundingarrangements,SNAICCcontinues–toamorelimitedextent–toprovidepolicyadvicetogovernment,extendingitsstrongtrackrecordofplayinganactivefacilitationrolebetweenAboriginalandTorresStraitIslandercommunity-controlledorganisationsandgovernments.SNAICCisengagedinarangeofpartnershipswithgovernmentstoshareexpertiseandknowledge,andinformbest-practiceapproachestosafetyandwell-beingforAboriginalandTorresStraitIslanderchildren.ArecentexamplehasbeentheworkofSNAICCtocoordinatetheFamilyMaterscampaign,bringingtogetherover150AboriginalandTorresStraitIslanderandmainstreamsectororganisationstoprovideadviceanddirectiontogovernmentonthestrategiestoovercomethepersistentandrisingover-representationofAboriginalandTorresStraitIslanderchildreninout-of-homecare.SNAICCrecentlyworkedwithFamilyMatterspartnerstoproduceandpublishanevidence-basedroadmapforreformandanextensiveoverviewofbaselinedataonoutcomesandprogresstoaddressover-representation.Thereportandroadmaphavebeenrecognisedasqualityandinformativeguidingdocumentsbyabroadrangeofgovernmentandnon-governmentstakeholders–reflectedintheover88non-governmentorganisations,29stateandfederalpoliticiansand6children’scommissionerswhohavesignedtheFamilyMattersStatementofCommitment.

ThoughSNAICChasbeenabletosustainasmallscopeofpeakbodyoperationwithnon-governmentandphilanthropicsupport,tofullyandsustainablyprovidepeakfunctions,itrequiresagovernmentre-investmentinSNAICCasapeakbody.SNAICCestimatesthatanadditional$700,000p.a.dedicatedtopeakfunctions–includingcommunityandsectorconsultation,policydevelopment,andadvisinggovernment–wouldenableittofulfilitspeakbodyfunctions,including:

• KeyconsultationforumstocontinuallydocumentandtrackemergingevidencearoundeffectiveapproachestoservicedeliveryforAboriginalandTorresStraitIslanderchildrenandfamilies;


• MaintenanceofnetworksandrelationshipsbetweenAboriginalandTorresStraitIslandercommunity-controlledorganisationstobuildorganisationalcapacity,enabletheexchangeofknowledgeandexpertise,andtoprovideaplatformforAboriginalandTorresStraitIslanderleadershiptocommunicateandsharetheexperiencesoftheircommunities;

• Thefacilitationofadvice,knowledgeandmentoringforgovernmentsengagedinaddressingthevulnerabilityanddisadvantageexperiencedbyAboriginalandTorresStraitIslanderfamilies;

• Thecontributionofin-depthpolicyanalysisandadvicetoabroadrangeofgovernmentpolicy,legislationandsectordevelopmentandreviewprocesses;and

• Thefacilitationofbestpracticeadviceandmentoringfornon-governmentorganisationsinengagingineffectiveservicedeliveryapproaches;and

• TheconveningofnationalpolicydevelopmentspacessuchasthebiennialSNAICCNationalConference.

RECOMMENDATION7:

AdequateresourcingisprovidedtoSNAICC–NationalVoiceforOurChildrentofulfilitsroleasthenationalpeakbodyrepresentingtheinterestsofAboriginalandTorresStraitIslanderchildren.

BUDGETIMPACT:

$2.8mover4years

TOTALBUDGETIMPACTANDOFFSETS

COSTS

Recommendation Costover4years

ACOAGtargetandnationalstrategytoaddressover-representation $40million

AnationalAboriginalandTorresStraitIslanderearlyintervention,preventionandreunificationprogram

$240million

AnAboriginalandTorresStraitIslanderspecificprogramwithintheChildCareSafetyNetoftheFederalGovernment’sJobsforFamiliesPackage

$400millionreducedtoNilbysavingswithintheexistingpackage


Atleast20hrsofsubsidisedqualityearlylearningtoallchildrentosupporttheirdevelopment,regardlessoftheirparents’activities

Notcostedinthissubmission

Nationaldatasetsforchildprotectionalignedwithgapsidentifiedinthe2016FamilyMattersReport

Nil

Communityparticipationinchildrenprotectiondecision-makingtrials $8million

AdequateresourcingisprovidedtoSNAICC–NationalVoiceforOurChildrentofulfilitsroleasthenationalpeakbodyrepresentingtheinterestsofAboriginalandTorresStraitIslanderchildren

$2.8million

TOTAL $290.8million

OFFSETS

SNAICCunderstandstheneedforstructuralreformtoreturnthebudgettosurplus.However,inrecentyearssignificantfundshavebeenstrippedfromtheservicesthatarecriticallyneededtoimproveoutcomesAboriginalandTorresStraitIslanderchildren.Thisincluded$534millionthatwascutfromexistingprogramswithintheIndigenousAffairsbudgetin2014andthediscontinuationoftheAboriginalChildrenandFamilyCentresprograminthesameyear.Thecontinuingfailuretoadvancetheclosingthegapagendaacrossabroadrangeofoutcomesreflectspersistentfailurestoachieveadequateservicereach,qualityandaccessibilityforAboriginalandTorresStraitIslanderpeople,andreflectstheneedfortargetedinvestments.Thecontinuingescalationinover-representationofAboriginalandTorresStraitIslanderchildreninchildprotectionsystemsandthelong-termsocialandeconomicreturnsofearlyinterventioninvestmentdetailedinthissubmissioncompellinglyinformthecasetoincreaseoverallfundingforIndigenouschildsafetyandwell-beinginitiatives.

Ourrecommendationisthatthetotalof$290.8millioninadditionalexpendituresidentifiedinthissubmissionareoffsetagainstadeclineintheGovernment’splannedincreaseindefenceexpenditures,asoutlinedinSavetheChildrenAustralia’sfederalbudgetsubmissionwhichincorporatesthemajorityofFamilyMattersbudgetproposals.

1SNAICC–NationalVoiceforourChildren(2016),FamilyMattersReport,Melbourne.

2AustralianInstituteofHealthandWelfare(2016)ChildProtectionAustralia2014-15,Childwelfareseriesno.63.Cat.no.CWS57.Canberra.



4AustralianInstituteofFamilyStudies(2016),Theeconomiccostsofchildabuseandneglect,CFCAResourceSheet,availableat:https://aifs.gov.au/cfca/publications/economic-costs-child-abuse-and-neglect.

5Fox,S.,Southwell,A.,Stafford,N.,Goodhue,R.,Jackson,D.andSmith,C.(2015).BetterSystems,BetterChances:AReviewofResearchandPracticeforPreventionandEarlyIntervention.Canberra:AustralianResearchAllianceforChildrenandYouth.

6ChildrenandFamiliesMinisters,Communique,24June2016.

7CouncilofAustralianGovernments,COAGMeetingCommunique,9December2016,availableat:https://www.coag.gov.au/meeting-outcomes/coag-meeting-communiqu%C3%A9-9-december-2016.

8Availableat:http://www.familymatters.org.au/wp-content/uploads/2016/11/Family-Matters-Statement-of-Commitment-website.pdf

9Fox,S.,Southwell,A.,Stafford,N.,Goodhue,R.,Jackson,D.andSmith,C.(2015).BetterSystems,BetterChances:AReviewofResearchandPracticeforPreventionandEarlyIntervention.Canberra:AustralianResearchAllianceforChildrenandYouth.

9ARACY(2014)citedinFoxetal(2015),p36.

10ARACY(2014)citedinFoxetal(2015),p36

11Segal,Dalziel,andPapandrea(2013,p623)citedinFoxetal(2015),p36.

12MorganDisney&AssociatesPtyLtdandAppliedEconomicsPtyLtd(2006),Transitionfromcare:AvoidablecoststogovernmentsofalternativepathwaysofyoungpeopleexitingtheformalchildprotectionsysteminAustralia,availableat:https://www.dss.gov.au/sites/default/files/documents/05_2012/vol1_transition_care_0.rtf.

13Lee,AosandMiller(2008)citedinFoxetal(2015),p47.

14Heckman,J.(2008)TheCaseforInvestinginDisadvantagedYoungChildren,availableat:http://www.heckmanequation.org/content/resource/case-investing-disadvantaged-young-children;Allen,K.(2013).ValueforEveryone:Understandingthesocialandeconomicbenefitsoffamilysupportservices.Canberra:FamilyRelationshipsServicesAustralia,p49-50.

15SNAICC–NationalVoiceforourChildren(2016),FamilyMattersReport,Melbourne,p46.

16SteeringCommitteefortheReviewofGovernmentServiceProvision(2016)ReportonGovernmentServices2016.ProductivityCommission:Melbourne.

17SteeringCommitteefortheReviewofGovernmentServiceProvision(2013)ReportonGovernmentServices(2012).ProductivityCommission:Melbourne;SteeringCommitteefortheReviewofGovernmentServiceProvision(2016)ReportonGovernmentServices2016.ProductivityCommission:Melbourne.


19SteeringCommitteefortheReviewofGovernmentServiceProvision(2016)ReportonGovernmentServices2016.ProductivityCommission:Melbourne.

20AustralianInstituteofHealthandWelfare(2016)ChildProtectionAustralia2014-15,Childwelfareseriesno.63.Cat.no.CWS57.Canberra,tableA45.



22Lutzker,J.andEdwards,A.(2009).SafeCare:Towardswide-scaleimplementationofachildmaltreatmentpreventionprogram,InternationalJournalofChildHealthandHumanDevelopment,Volume2,Issue1,7-15.

23RobinsandRowlands(2012)citedin‘FFTEvidenceStudiesImplementation’,p14,availableat:http://www.fftllc.com/documents/FFT-CW-Model-Effectiveness.pdf.

24SNAICC(2010).TowardsAboriginalandTorresStraitIslanderaccessandengagement:Overcomingbarrierstochildandfamilyservices;Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices.OccasionalPaperNo23.Canberra:FaHCSIA,p.23;

25Tilbury,C(2015)MovingtoPrevention:IntensivefamilysupportservicesforAboriginalandTorresStraitIslanderchildren.Melbourne:SNAICC.

26Tilbury,C(2015)MovingtoPrevention:IntensivefamilysupportservicesforAboriginalandTorresStraitIslanderchildren.Melbourne:SNAICC,p28

27Tilbury,C(2015)MovingtoPrevention:IntensivefamilysupportservicesforAboriginalandTorresStraitIslanderchildren.Melbourne:SNAICC,p28-29

28Tilbury,C(2015)MovingtoPrevention:IntensivefamilysupportservicesforAboriginalandTorresStraitIslanderchildren.Melbourne:SNAICC,p29.

29ProductivityCommission.(2014).ChildCareandEarlyChildhoodLearning.ProductivityCommissionInquiryReportVolume2.No.73.AustralianGovernment,p.526

30AustralianGovernment(2013).ASnapshotofEarlyChildhoodDevelopmentinAustralia2012–AEDINationalReport.Re-issueNovember2013.AustralianGovernment,Canberra,p.13

31ProductivityCommission.(2014).ChildCareandEarlyChildhoodLearning.ProductivityCommissionInquiryReportVolume2.No.73.AustralianGovernment,p.644.

32SNAICC–NationalVoiceforourChildren(2016),FamilyMattersReport,Melbourne,p.8.

33AustralianGovernment2016).‘MinisterMorrison:BetterstartforIndigenouschildren’,mediarelease,19August2015,available:http://www.indigenous.gov.au/news-and-media/announcements/minister-morrison-better-startindigenous-children.

34Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23.Canberra:DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA),p23;Seealso:SNAICC.(2010).TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices,Melbourne:Author.

35SenateFinanceandPublicAdministrationReferencesCommittee(2016),CommonwealthIndigenousAdvancementStrategytenderingprocesses,AustralianGovernment,Canberra,p.16.

36SNAICC-NationalVoiceforourChildren(2016),SubmissionintotheInquiryintotheprovisionsoftheFamilyAssistanceLegislationAmendmentJobsforFamiliesChildCarePackageBill2015,Melbourne.

37DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA)(2009).FootprintsinTime:TheLongitudinalStudyofIndigenousChildren—KeySummaryReportfromWave1,Canberra:Author,p42;SNAICC(2004).IndigenousParentingProject:FinalReport,Melbourne:Author,p.40;Yeo,S.(2003).BondingandattachmentofAustralianAboriginalchildren.ChildAbuseReview,12,299;Taylor,J.(2011).Coming,readyornot:Aboriginalchildren’stransitiontoschoolinurbanAustraliaandthepolicypush.InternationalJournalofEarlyYearsEducation,19(2),145,p.148;Armstrong,S,Buckley,S.,Lonsdale,M.,Milgate,G.,Kneebone,L.,Cook,L.,


andSkelton,F.(2012).Startingschool:astrengths-basedapproachtowardsAboriginalandTorresStraitIslanderchildren,pp.11-12.

38AustralianInstituteofHealthandWelfare(2016),ChildProtectionAustralia2014-15,Childwelfareseriesno.63.Cat.no.CWS57.Canberra.

39AustralianNationalAuditOffice.(2012).CapacitydevelopmentforIndigenousservicedelivery,No26,Canberra,p17;Cornell,S.,andTaylorJ.(2000).Sovereignty,devolution,andthefutureoftribal-staterelations,Cambridge:HarvardUniversity,pp6-7availableat:http://hpaied.org/sites/default/files/publications/PRS00-4.pdf;Denato,R.,andSegal,L.(2013).‘DoesAustraliahavetheappropriatehealthreformagendatoclosethegapinIndigenoushealth?’,AustralianHealthReview,37(2),May,232.

40Chandler,M.,andLalonde,C.(1998).CulturalcontinuityasahedgeagainstsuicideinCanada’sFirstNations;Lavoie,J.etal.(2010).‘Haveinvestmentsinon-reservehealthservicesandinitiativespromotingcommunitycontrolimprovedFirstNations’healthinManitoba?’,SocialScienceandMedicine,71(4),August,717.

41Lohar,S.,Price-Robertson,R.,&Nair,L.(2013).Applyingcommunitycapacitybuildingapproachestochildandwelfarepracticeandpolicy.Child,FamilyandCommunityAustralia,13.

42SNAICC.(2013).Whosevoicecounts:AboriginalandTorresStraitIslanderparticipationinchildprotectiondecision-making,Melbourne.

43GrandmothersAgainstRemovals(2016),‘AboutUs’,availableat:http://stopstolengenerations.com.au/.

44CouncilofAustralianGovernments,NationalIndigenousReformAgreement(ClosingtheGap),2008,availableat:http://www.coag.gov.au/intergov_agreements/federal_financial_relations/index.cfm,p.D-67.

45HarvardProjectonAmericanIndianEconomicDevelopment,availableat:http://hpaied.org/about-hpaied/overview.

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