Queensland Productivity Commission Consultation Paper ... · the financial counselling & capability...

0 IndigenousConsumerAssistanceNetworkSubmissiontoQPCConsultationPaperServicedeliveryinremoteanddiscreteAboriginalandTorresStraitIslandercommunities

Submissiontothe:QueenslandProductivityCommissionConsultationPaperServicedeliveryinremoteanddiscreteAboriginalAndTorresStraitIslandercommunitiesPreparedby:IndigenousConsumerAssistanceNetworkP.O.Box1108NorthCairnsQLD4870Contact:AaronDavis,ChiefExecutiveOfficerEmail:[email protected]:(07)40311073


1.AbouttheIndigenousConsumerAssistanceNetwork(ICAN)TheIndigenousConsumerAssistanceNetwork(ICAN)isanotforprofitorganisationservicingAboriginalandTorresStraitIslanderpeopleslivinginNorthQueenslandandtheTorresStrait.Withthevisionof“EmpoweringIndigenousConsumers”,theorganisationprovidesfinancialcounsellingassistancetoalleviateconsumerdetriment,educationandtrainingtomakeinformedconsumerchoicesandadvocacyservicestohighlightandtackleIndigenousconsumerdisadvantage.ICANhasextensiveexperienceandalonghistoryofprovidingfinancialcounselling,capability,resilienceandconsumeradvocacysupporttoIndigenouspeoplesinremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesinQueenslandsince2003asaspecialprojectundertheAboriginalCo-ordinatingCouncil(ACC)andtheKowanyamaAboriginalShireCouncil,andasacompanylimitedbyguarantee,since2007.ICANhasbeenworkinginpartnershipwiththeQueenslandOfficeofFairTrading,theDepartmentofCommunities,ChildSafetyandDisabilityServicesandotherstateandfederalconsumerregulatoryagencies,toprovide:earlyinterventionsupportthroughourYarnin’Moneyfinancialcapabilityeducationprogram,crisisresponsefinancialcounsellingtonaturaldisasteraffectedareasinFarNorthQueensland(2011-2013),andbuildinglocalcommunitycapabilitiesacrossanumberoffinancialinclusionandconsumerassistancedomainssince2003(seeAppendixA).ICANprovidesanumberofservices,fundedthroughstate,federalandindustryfunding:• Financialcounselling:Ninequalifiedfinancialcounsellors,accreditedwiththeFinancial

Counsellors’AssociationofQueensland(FCAQ),servicing:CairnsRegion,TownsvilleRegion,Tablelands,CapeYorkandtheTorresStrait;

• Financialcapabilityeducationandsupportservices:Yarnin’Money–ICAN’sfinancialcapabilitytrainingprogram,deliveredthroughaculture-centredtrainingmodel,whichrecognisesexistingculturalworldviewsandknowledgeasthefoundationtobuildnewfinancialcapabilityskills;

• IndigenousFinancialCounsellingMentorshipProgram(DiplomaofFinancialCounsellingTraining):toaddresstheunder-representationofAboriginalandTorresStraitIslanderpeoplesinthefinancialcounselling&capabilitysector&raisethenumberofqualifiedandaccreditedIndigenousfinancialcounsellorsinQueenslandandnationally.Theprogram,havinggraduated34studentsfrom2012-2016,commencesitsfourthnationalrolloutinSeptember2017;

• CoordinatedIndigenousconsumersupport:ICAN’sNorthQueenslandIndigenousConsumerTaskforce,acollectiveimpactapproachtoidentifyandaddresssystemicconsumerissuesaffectingIndigenouspeoplesinremoteanddiscreteAboriginalandTorresStraitIslandercommunities.In2016&2017,theTaskforceworkedwiththeWujalWujalandYarrabahAboriginalShirecommunitiestoestablishtheir“DoNotKnock-Informed”campaigns,withWujalWujalbecomingAustralia’sfirst‘DoNotKnock’town.Taskforcemembersinclude:ICAN,QueenslandOfficeofFairTrading,AustralianCompetitionandConsumerCommission(ACCC),AustralianSecuritiesandInvestmentsCommission(ASIC),ShelterHousingActionCairns,CairnsCommunityLegalCentreandtheEnergy&WaterOmbudsmanQueensland(EWOQ).

WenotethepurposeoftheQLDProductivityCommission’sConsultationpaperistoseekinformationaboutabroadspectrumofinvestmentsintoprogramsandservicesinremoteanddiscreteAboriginalandTorresStraitIslandercommunities.However,asanIndigenousconsumerorganisationspecifictofinancialcounselling,capabilityandtrainingservices(relatedtofinancialcounsellingandfinancialliteracyeducation),ICANhasnarrowedthescopeofourresponsestothesector/serviceprovisioninwhichweoperate.


2.Submission–ServicedeliverytoremoteanddiscreteAboriginalandTorresStraitIslandercommunities

(4) ServicedeliverytoremoteanddiscreteAboriginalandTorresStraitIslandercommunities

(Equity,Accesstoservices)

Isitclearwhatoutcome/objectivestheserviceistryingtoachieve?Doestheserviceusegoodpractice?Ifso,how?Istheservicedeliveredtotherightlevelandquality?Howshouldthatbedetermined?

Door-to-doortradinganddirectmarketinghasalongandpervasivehistoryofdetrimentinremoteIndigenouscommunities.Researchhasnotedahistoryofdeliberateandtargetedmethodsbytravellingdoor-to-doortraderstopreyonIndigenouspeopleslivingremotely,wherehighpressuretechniqueshavebeenusedtosellgoodsandservices1.WhileremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesaresmallinpopulationsize,theimpactofconsumerandfinancialdetrimentoncommunities,hasbeenprofound.BelowisanestimateofthevalueofidentifiedconsumerdetrimentspecifictoremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesintheperiod2006-2017(specifictomattersICANhasidentifiedand/orassistedwith,viaworkingwithcommunities):Year Trader

(door-to-door,telemarketingorCairns-basedw/impactinremote&discreteAboriginalandTorresStraitIslandercommunities)

#ofpeopleaffected $valueofcontract(s)ofgoods/servicesperunit

Estimatedconsumerandfinancialdetriment

2017 ChannicPtyLtd2 10IndigenouswitnessesinASICvChannicPtyLtd

$13,000 $130,000

2016 CareersAustralia3(Diplomacoursessoldviadoor-to-doortrading)

80(identifiedbyICANintheYarrabahAboriginalCommunity)

$8,000-10,000 $720,000

2016 ChriscoHampers4

Representativesamplewasconsulted.MatterarosefromcomplaintsbyPalmIslandresidents.PalmIslandresidents(manywhomwereinreceiptofaCentrelinkbenefit)complainedtoICANthattheywereexperiencingongoingfinancialhardshipwhenChriscocontinuedtotakefortnightlypayments,aftertheyhadpaidinfullfortheirgoods.Thissystem,titled“HeadStart”requiredcustomerscontactthecompanytoopt-outofthisarrangement,“inordertoavoidhavingfurtherpaymentsautomaticallydeductedbyChriscoaftertheirlay-byhadbeenpaidfor”5.

2016 ExpressionSessions6 Representativesamplewasconsulted.

1Loban,H2010,UnconscionableconductandAboriginalandTorresStraitIslandercommunities,PreparedfortheIndigenousConsumerAssistanceNetwork,http://ican.org.au/about-us/ican-publications/.2ASICvChannicPtyLtd(No5)[2017]FCA363(7April2017).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2017/363.html?stem=0&synonyms=0&query=channic.3AustralianCompetitionandConsumerCommission.(2016).‘CareersAustraliaundertakestorepayCommonwealthforVETFEE-HELPdiplomacourses.’May16.https://www.accc.gov.au/media-release/careers-australia-undertakes-to-repay-commonwealth-for-vet-fee-help-diploma-courses. 4ACCCvChriscoHampersAustraliaLimited[2015]FCA1204(10November2015).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2015/1204.html?stem=0&synonyms=0&query=Chrisco.5IndigenousConsumerAssistanceNetwork.(2016).‘Chriscopracticeshampered.’http://ican.org.au/chrisco-practices-hampered/.6ACCCvLifestylePhotographersPtyLtd[2016]FCA1538(20December2016).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2016/1538.html?stem=0&synonyms=0&query=Lifestyle%20Photographers.


ACCCvLifestylePhotographersPtyLtd[2016]FCA1538(20December2016)foundtargetingofAboriginal&TorresStraitIslanderpeoples.ExpressionSessionstookrepaymentsfromthistargetgroupofapprox.$50.82–179.00/ftnfrompersonsonCentrelinkincomes,forphotopackagesworth$2,800-$9,900,ofwhichmostcustomersdidnotreceive.

2015 JohnHawashMotorDealer7 Representativesamplewasused.ICANreceivedcomplaintsfrom:Yarrabah,Kowanyama,Pormpuraaw&NPA.

$5,000-$20,000 LargeimpactonmostCapeYorkcommunities

2014 TitanMarketing8

(Firstaidkitsandothergoods)7,9009 $400 $3.16M

2013 ExciteMobile10,11 1074Debtcollectionletterssenttocustomersnationallyincl.’sseveralNorthQLDcommunitiestargetedincludingYarrabah&Kowanyama

$2,500 $2.7M

2013 RentTheRooPtyLtd12,13

LargeimpactinYarrabah&WujalWujalAboriginalcommunities

$3,000 --

2012 Vacuumsales14(viadoor-to-doortradingintheYarrabahAboriginalcommunity)

36(MatteridentifiedfromcomplaintsviatheYarrabahAboriginalCommunity)

$2,000 $72,000

2010 FairDinkumRentals15(Whitegoodsrentalsalesviadoor-to-doortrading)

800 $3,000 $2.4M

2009 LoveSprings16,17

(Door-to-doorwatercoolersales;enforcementaction

Representativesamplewasused.(Matteridentifiedfromcomplaintsviathe

$1,100 --

7ChiefExecutive,DepartmentofJusticeandAttorneyGeneralvHawash[2015]QCAT111(13April2015).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/qld/QCAT/2015/111.html?stem=0&synonyms=0&query=john%20hawash.8AustralianCompetitionandConsumerCommissionvTitanMarketingPtyLtd[2014]FCA913(25August2014).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2014/913.html?stem=0&synonyms=0&query=titan%20marketing. 9Guilfoyle,C.(2014).‘Cairnscompanyfined$750,000fordodgydoor-to-doorsalestactics.’June14.TheCairnsPost.http://www.cairnspost.com.au/business/cairns-company-fined-750000-for-dodgy-doortodoor-sales-tactics/news-story/1c4590e93de0e7c812c123f345a50be0.10AustralianCompetitionandConsumerCommissionvExciteMobilePtyLtd(No2)(includesCorrigendumdated23December2013)[2013]FCA1267(23December2013).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2013/1267.html?stem=0&synonyms=0&query=excite%20mobile. 11AustralianCompetitionandConsumerCommissionvExciteMobilePtyLtd[2013]FCA350(18April2013).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2013/350.html?stem=0&synonyms=0&query=excite%20mobile. 12AustralianSecuritiesandInvestmentsCommission.(2013).‘13-301MRRentalgoodsproviderpays27500dollarspenalty-entersintoenforceableundertaking.’November1.http://asic.gov.au/about-asic/media-centre/find-a-media-release/2013-releases/13-301mr-rental-goods-provider-pays-27500dollars-penalty-enters-into-enforceable-undertaking/.13EnforceableUndertaking#028285828.http://download.asic.gov.au/media/1301203/028285828.pdf.14IndigenousConsumerAssistanceNetwork.(2014).‘Annualreport2013-2014.’p.20.http://ican.org.au/wp-content/uploads/2015/03/WEB-ICAN-Annual-Report-2013-2014.pdf.15QueenslandOfficeofFairTrading.(2010).‘Rentalfirmcancels800contracts,refunds$10kthankstoFairTrading.’February19.http://statements.qld.gov.au/Statement/Id/68564.16QueenslandOfficeofFairTrading.(2009).‘Ipswichwatercompanyfined$20,000.’http://statements.qld.gov.au/Statement/Id/63677.17Hurst,D.(2009).‘Qld'cancerwater'companyfined.’BrisbaneTimes.May4.http://www.brisbanetimes.com.au/queensland/qld-cancer-water-company-fined-20090503-arv1.html.


takenbytheQLDOfficeofFairTrading,duetocompanyfocusingonmakingmisrepresentationsofthequalityoftapwater)

YarrabahAboriginalCommunity);AlsoaffectedtheBrisbanearea.

2007 VIPTel/EDirectPtyLtd18,19 58‘Nocoverage’customersinremote&discreteQLDcommunities20.MatteraroseviacommunitycomplaintstoICAN,providedtotheACCC.

$1,000 $58,000

2002-2006

Townsville4-WheelDrive,UnitedFinancialServices21,22

Nationalimpact,matterarosefrominitialcomplaintsviaWujalWujal,PormpuraawandNorthernPeninsulaArea(NPA).

$10,000-20,000 $2.7M(QLDIndigenouscommunities)$5.2M(Nationalimpact)

TOTAL: $11.94M(Knownimpactofconsumerdetriment)

InresponsetothecomplexfinancialandconsumerissuesbeingexperiencedinNorthQueensland,ICANhasbeendeliveringfinancialcounsellingandcapabilityservicestoremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesforfourteenyears.Generally,therearenofinancialcounsellingpositionsfundedforservicedeliveryatalocallevel,inremoteanddiscreteAboriginalandTorresStraitIslandercommunities.ICANoperatesinthisservicegap,providingnecessaryfinancialcounsellingandcapabilitysupportviaface-to-face,regularoutreachandtelephonecounsellingservices.Queenslandgovernmentfundingforfinancialcounsellingandconsumerserviceshasbeensporatic,withfundinghistoricallydirectedtowardsfinancialcounsellingasacrisisresponsemeasuretonaturaldisasters.Despitehistoricallylimitedfundingforfinancialcounsellingmorebroadly,ICANachievesitsobjectivesandoutcomesof:“EmpoweringIndigenousConsumersbyprovidingfinancialcounsellingassistancetoalleviateconsumerdetriment,educationtomakeinformedconsumerchoicesandresearch/advocacytohighlightconsumerdisadvantage”23,byworkingcloselywithremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesinthefollowingareas;Theextenttowhichafinancialcounsellingorganisationcandelivereffectiveservicesdependsonanumberoffactorsincludingitsreachandrelationshipwiththecommunityitserves,andtheprofessionalqualityofitspractice.ICANenjoysafourteen-yearrelationshipwithremoteanddiscreteAboriginalandTorresStraitIslandercommunities,havingprovidedfinancialcounsellingto

18AustralianCompetitionandConsumerCommissionvEDirectPtyLtd[2008]FCA65(12February2008).http://www.austlii.edu.au/cgi-bin/sinodisp/au/cases/cth/FCA/2008/65.html?stem=0&synonyms=0&query=viptel. 19AustralianCompetitionandConsumerCommission.(2008).‘EDirectPtyLtd.’EnforceableUndertakingD08/21156.http://registers.accc.gov.au/content/index.phtml/itemId/813144.20[19]Ibid,pp.17-20.21AustralianBroadcastingCorporation.(2008).‘SupportgroupwelcomesASICcheckintoIndigenousloans.’http://www.abc.net.au/news/2008-01-29/support-group-welcomes-asic-check-into-indigenous/1027080.22AustralianSecuritiesandInvestmentsCommission.(2008).‘08-11Financebrokerpays$98,000tosupportIndigenouscommunitiesinFarNorthQueensland.’January31.http://asic.gov.au/about-asic/media-centre/find-a-media-release/2008-releases/08-11-finance-broker-pays-98-000-to-support-indigenous-communities-in-far-north-queensland/.23IndigenousConsumerAssistanceNetwork.(2016).‘ICANStrategicPlan2016-2019.’http://ican.org.au/wp-content/uploads/2013/09/ICAN_2016_Strategic_Plan.pdf.


thecommunitiessince2003underthe‘ConsumerAffairsUnit’undertheAboriginalCo-ordinatingCouncil,andasaspecialprojectundertheKowanyamaAboriginalShireCouncilbeforebecominganot-for-profitcompanylimitedbyguarantee.ICAN’sfinancialcounselling&capabilityservices:• DeliversservicestoNorthQueensland,FarNorthQueenslandincludingCapeYorkandtheTorres

Strait;• IdentifyindividualandsystemicconsumerissuesaffectingremoteanddiscreteAboriginaland

TorresStraitIslandercommunities;• Yarnin’Money24,25,afinancialliteracy/capabilitytrainingprogramdevelopedanddeliveredby

ICANtoremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesinQueensland;• ICANservicesaligncloselywith,andservesasaliaisonpointtorelatedgovernmentservicessuch

astheQueenslandOfficeofFairTrading,whereservicesmaybedifficulttoaccessatalocallevel.Theorganisationworkswithlocalpeopleandcommunities,andthebroaderfinancialandconsumerregulatorysystemtoachieveindividualandcommunityleveloutcomes.ICANfinancialcounsellorsidentifysystemicconsumerissuesaffectingindividualsandcommunitiesandbringsthesematterstotheappropriatestateandfederalconsumerregulatorybodies,suchastheQueenslandOfficeofFairTrading(OFT),theAustralianCompetitionandConsumerCommission(ACCC)andtheAustralianSecuritiesandinvestmentsCommission(ASIC).OverICAN’sfourteenyearsofservicedelivery,enforcementactionhasbeentakenagainstanumberoftraders,whereICANandlocalremoteanddiscreteAboriginalandTorresStraitIslandercommunitieshaveworkedtogethertoidentifythesystemicconsumerissues,gatheredevidencerequiredandworkedwiththeappropriateregulatorstobringtheenforcementaction.Betweentheperiodof2013-2017,sixsignificantmattershavebeenidentifiedandresultedinenforcementactionagainsttraders,resultinginfinancialsavingsorbenefittoremoteanddiscreteAboriginalandTorresStraitIslandercommunities(Seep.10forlist).Inlinewith‘Goodpracticeservicedelivery’itemsidentifiedintheconsultationpaper(p.10),ICANutilisesacommunitydevelopmentapproachwhenworkingwithremoteanddiscreteAboriginalandTorresStraitIslandercommunities,todeveloplocalcapacitiesandcapabilities.Itdoessoviatwoavenues:1)Afocusonlocalemployment.Wherefundingpermitted,ICANdeliveredplaced-basedservices

in:Yarrabah,PalmIsland&ThursdayIsland:• From2008-2014,ICANdeliveredaplace-basedMoneyManagementProgram(MMP)inthe

YarrabahandPalmIslandAboriginalcommunities.ICANemployedlocalcommunityresidentstodeliverasuiteofservicesundertheMMP,including:financialcounselling,consumeradvocacy,Tax-Help,financialliteracyworkshopsandthe“NoInterestLoansScheme”(NILS).

• From2010-2012,ICANdeliveredaplaced-basedfinancialcounsellingandNoInterestLoans

(NILS)programonThursdayIsland.InpartnershipwiththeMuraKoskerWomen’sSorority,ICANemployedtwolocalstafftodeliverservicestoThursdayIsland,theNorthernPeninsulaAreaandtheouterTorresStraitIslands.

24IndigenousConsumerAssistanceNetwork.(2015).‘Yarnin’Moneyintwoworlds.’http://ican.org.au/yarnin-money-in-two-worlds/.25SeeFinancialLiteracyAustralia(2017)forYarnin’Moneyevaluationprogressreports.http://finlit.org.au/funded-projects/funded-projects2014/indigenous-consumer-assistance-network-ican/.


2)Developinglocalcapacitiesandcapabilitiesviaacommunitydevelopmentmodeltoservicedelivery;Diplomaleveltraining(throughtheDiplomaofFinancialCounselling)forAboriginalandTorresStraitIslanderpeoplesworkinginthefinancialcounselling/capabilitysector,seekingtobecomequalifiedandaccreditedfinancialcounsellors.

• ICAN’s‘IndigenousFinancialCounsellingMentorshipProgram’hasbecomeabestpracticemodel

fortrainingAboriginalandTorresStraitIslanderpeoplesseekingtobecomequalifiedandaccreditedfinancialcounsellorsinlinewiththenationalstandardsforpractice,byembeddingIndigenousperspectivesintoamainstreamtrainingframeworkwhilesimultaneouslyprovidingauniquemodelofpersonalandacademicmentorship.

Figure1:MentorshipProgramtheoryofchange,basedonacommunitydevelopmentapproach

InseekingtobuildlocalcapabilitiesinremoteanddiscreteAboriginalandTorresStraitIslandercommunities,allpersonsemployedbyICANinYarrabah,PalmIslandandThursdayIslandundertooktheirDiplomaofFinancialCounsellingviaICAN’s“IndigenousFinancialCounsellingMentorshipProgram.”Inablendedlearningmodelwhichprovidesface-to-faceandonlinelearningopportunities,locallyemployedstaffareabletotraveltoCairnsfor6xweek-longface-to-faceblocktrainingsessions,withtheaidoffullyfundedscholarshipsprovidedbytheCommonwealthBankandtravelassistanceviaAbStudy.Todate,ICANhasdeliveredthreeMentorshipPrograms,graduating34AboriginalandTorresStraitIslanderpeopleswiththeirDiplomaofFinancialCounselling,contributingtoasignificantincreaseinthenumberofqualified,practicingIndigenousfinancialcounsellorsinQueenslandandnationally.Thefirsttrainingdeliverywasheldin2011-2012andwasdedicatedtotheprofessionaldevelopmentofICAN’sinternalstaffacrossfourlocations:Cairns,ThursdayIsland(intheTorresStrait)andtheYarrabahandPalmIslandAboriginalcommunitiesinNorthQueensland(SeeAppendixA–BuildingfinancialinclusioninQueensland).

Grassrootsapproach

•AboriginalandTorresStraitIslanderpeoplesarebestplacedtotackletheirownissues.

ICANSupportsIndigenousdevelopment

•IfICANcanprovidethetoolstoAboriginal&TorresStraitIslanderpeoplestodotackletheseissues,•WhereIndigenouspeoplefromremotecommunitiescouldaccessprofessionaldevelopmentinaculturallyspecificenvirnment,tobecomequalifiedandaccreditedfinancialcounsellors

Localpeopleaddressinglocalissues

•WhereAboriginalandTorresStraitIslanderpeoples[the'community']areabletoaccessculturallyspecificfinancialcounsellingservicesspecifictotheirneeds(ie.locally-based,intheirownlanguage),•Thiswouldnegateneedingtoaccessfinancialcounsellingservicesoutsideone'slocality

Accesstoservicesbyincreasingcommunity

capability

•ThusbridgingsomeofthebarrierscurrentlymetbyAboriginalandTorresStraitIslanderpeopleslivingremotelyinaccessingquality&responsiveservices,•ProvidesanetworkofIndigenousfinancialcounsellorswhocancollectivelytacklesystemicconsumerissuesfacingIndigenouscommunities


Year #ofGraduates

Locationofstudentgraduate

2012 9 Yarrabah(QLD)PalmIsland(QLD)ThursdayIsland(QLD)Cairns(QLD)

2014 10 Cairns(QLD)Yarrabah(QLD)PortAugusta(SA)Derby(WA)Penrith,WesternSydneyAliceSprings(NT)

2016 15 MorningtonIsland(QLD)Cairns(QLD)Kempsey(NSW)Melbourne(VIC)Darwin(NT)AliceSprings(NT)PortAugusta(SA)Ceduna(SA)

Figure2:MentorshipProgramIndigenousgraduates,bygeographiclocation

Istheservicedeliveredtotherightlevelandquality?Howshouldthatbedetermined?ThelevelofservicedeliverytoremoteanddiscreteAboriginalandTorresStraitIslandercommunitieswilllargelybedeterminedbytheamountoffundingprovidedtodeliverthatservice.Fundingcanhamperwhetherornotaserviceisabletoemploylocally,wherelocalcapabilitiescanbedevelopedtodeliverplace-basedfinancialcounselling.FinancialcounsellingandcapabilityserviceshaveauniqueopportunitytoprosperandbeembeddedintoremoteanddiscreteAboriginalandTorresStraitIslandercommunities,becauseconsumerandfinancialissuesaffectallcommunities.Regularfinancialcounsellingoutreachcanbeeffectiveifongoingtravelfundingisadequatetomeettheneedsofcommunities.However,financialcounsellingandcapabilityservicescompeteagainstlargercommunityprioritiessuchashousing,andotherinfrastructureordevelopmentissues.


(4) Coordinatingservicedelivery

Arethereexamplesof…servicegapsinremoteanddiscretecommunities?Whatcouldbedonetoimprovecoordination?Arethereexampleswherecoordinationisdonewell?Ifso,how?Isthereanythingelseyouwouldliketotellusthatyouthinkisimportantaboutservicedeliverycoordination?Pleaseexpand.

Generally,therearenofinancialcounsellingpositionsfundedforservicedeliveryatalocallevel,inremoteanddiscreteAboriginalandTorresStraitIslandercommunities.Thistranslatestolocalcommunitiesnotbeingequippedtomeettheirownissuesintheconsumerandfinancialspace,astheyoccur.Withtheexceptionofruralfinancialcounselling(specifictotheneedsoftheruralfarmingcommunity),Queenslandgovernmentfundingforfinancialcounsellingandconsumerserviceshasbeensporatic,withfundinghistoricallydirectedtowardsfinancialcounsellingasacrisisresponsemeasuretonaturaldisasters.ICANisnotawareofdisasterrelieffinancialcounsellingassistancefundingbeingdivertedtowardslocal,place-basedfinancialcounsellingdeliverywithinremoteanddiscreteAboriginalandTorresStraitIslandercommunities26.ICANoperatesinthisservicegap,providingnecessaryfinancialcounsellingandcapabilitysupportviaface-to-face,regularoutreachandtelephonecounsellingservices.NQIndigenousConsumerTaskforce(Exampleofcoordinationdonewell)InordertoeffectivelyaddresssystemicconsumerdetrimentarisingfromremoteanddiscreteAboriginalAboriginalandTorresStraitIslandercommunities,ICANhasdevelopedacoordinatedservicedeliveryapproachwithconsumerregulatorybodiesoperatingatstateandfederallevels.TheNQIndigenousConsumerTaskforceisacommunitydrivenpartnershipbetweengovernmentconsumerregulatorybodies,externaldisputeresolutionschemesandfinancialcounsellingandcommunitylegalservicesthroughoutNorthQueensland.TheconceptfortheTaskforcewasdevelopedandisadministeredbytheIndigenousConsumerAssistanceNetwork(ICAN)withthevisionofimprovinginter-agencycommunicationandincreasingcollectiveactiontoreduceconsumerexploitation;empoweringIndigenousconsumersfromTownsvilletotheTorresStraitIslands.Acollectiveimpactapproachcanbeaneffectivewaytocoordinateservicedelivery,inordertoidentifyandaddresssystemicissuesbeingexperiencedbyremoteanddiscreteAboriginalandTorresStraitIslandercommunities.InresponsetothecomplexfinancialandconsumerissuesbeingexperiencedinNorthQueensland,ICAN,stateandnationalconsumerregulatorybodiesACCC,AustralianSecuritiesandInvestmentsCommission(ASIC),theQueenslandOfficeofFairTradingandtheEnergy&WaterOmbudsmanQueensland(EWOQ),formedtheNorthQueenslandIndigenousConsumerTaskforcein2014.TheTaskforceutilisesacollaborativeframework,involvingIndigenouscommunities,communityservicesorganisations,andgovernmentregulatorybodies,toaddresssystemiccivillawissuesataregionallevelininnovativewayswithIndigenousinputatgrassroots(community)andorganisationalandregulatorlevels.

26WenotethatundertheQueenslandGovernment’sDepartmentofCommunities’CommunityRecoveryProgram-FinancialCounsellingInitiative,fundingwasprovidedtoICANtoservicetheCassowaryCoast,post-CycloneYasi(2011-2013),whichincludedweeklyoutreachservicedeliverytotheJumbunAboriginalcommunity.SeeICANAnnualReport2012-2013,p.23.http://ican.org.au/wp-content/uploads/2013/09/ICAN-Annual-Report-2012-2013-Web.pdf.


OnApril22,2016,WujalWujalandtheTaskforcelaunchedAustralia’sfirst“DoNotKnock-Informed”initiativetoassistlocalcommunitypeopletocombatconsumerexploitationoccurringviaDoor-to-Doortrading27,28.OnMay9,2017,theTaskforceworkedwiththeYarrabahAboriginalcommunitytolaunchtheir“DoNotKnock-Informed”campaign,placingsignageattheentranceofthecommunity.TheYarrabahDoNotKnockinitiativemarksthesecondcampaigninAustralia.

Underthe“DoNotKnockTown”initiativesinWujalWujalandYarrabah,signagewasplacedattheentrancesintothediscreteAboriginalcommunities,remindingdoor-to-doortraderstheyhavelegalobligationstoconsumersandcannotapproachhousesdisplayingdo-not-knocknotices.ItisalsohopedthatthesignagehelpstoempowerWujalWujalandYarrabahresidentstounderstandandasserttheirrightsunderAustralianConsumerLaw.TheTaskforceallowsICANandconsumerregulatorstoreviewandrespondtosystemicconsumerissuesaffectingIndigenouspeoples,poolresourcesacrossagenciestoachievebetteroutcomesforIndigenousconsumers,andimportantly,presentsauniqueopportunityforamulti-jurisdictionalapproachtoresolvingconsumermatters(oftenuniquetoIndigenouscommunities).Importantly,itfacilitatesopportunitiesinthefollowingareas,whichgobeyondidentifyingandaddressingsystemicconsumerissuesaffectingremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesalone,tobetheplatformfor:

• Knowledgeexchangeandtransferintwo-wayprocess,betweencommunitiesandregulators,andequallybetweenregulatorsandcommunities;

• Regulatorsmeetanddiscusshowbesttocollaborativelytacklesystemicconsumerissues,andhoweachjurisdictioncan/maybestassist;

• IncreasesregulatorpresenceinremoteAboriginalandTorresStraitIslandercommunities,wherenonemayhavepreviouslyexisted;

• Providesalternate‘accesstojustice’pathwaysforIndigenousconsumerstoaccessappropriateandqualitysupport;

• Consumercases(systemicorindividual)arehandledbyregulatorsinatimelymanner,wherecaseprogressisregularlyreportedbacktotheTaskforce;

• Financialcounsellors(ICANandotherparticipatingcommunityservicesorganisations)areabletoseekdirectadvicefromdecision-makerswithinconsumerregulatorybodiesonhowbesttohandlecases,orwherecaseswillthenbemanagedbyoneorseveralregulators,withadditionalsupportbyfinancialcounsellorsforongoingclientdatacollection/management;

27IndigenousConsumerAssistanceNetwork.(2016).“WujalWujalcommunityputsdoor-to-doortradersonnotice.”RetrievedfromtheIndigenousConsumerAssistanceNetworkwebsite:http://ican.org.au/wujal-wujal-community-puts-door-to-door-traders-on-notice/. 28Bainbridge,A.(2016).“RemoteIndigenouscommunitybecomesfirsttowntobandoor-to-doorsalespeople.”AustralianBroadcastingCorporation:April22.http://www.abc.net.au/news/2016-04-22/door-to-door-salespeople-warned-off-remote-indigenous-community/7347512.


• DirectpartnershipsbetweenregulatorsandremoteAboriginalandTorresStraitIslandercommunities(See:WujalWujalDoNotKnockTowninitiative).

Themattersarisingviaand/orwithTaskforceactivity,whichhavebroughtfinancialsavingsandbenefitstoIndigenouscommunitiesinclude:Year Consumermatter&Enforcementaction Whoinvolved? FinancialSavings

orBenefittocommunity

2017

Queenslandcaryardlenderorderedtopayover$1.2millionafterbreachingconsumercreditlaws29.

ICAN,ASIC&theYarrabahAboriginalCommunity

Contractscancelled

2016

Chriscoorderedtopay$200,000penaltyformakingafalseormisleadinglay-byrepresentation30.CareersAustraliaundertakestorepayCommonwealthforVETFEE-HELPdiplomacourses31.

ICAN,ACCC&thePalmIslandAboriginalCommunityICAN,ACCC&theYarrabahAboriginalCommunity

ContractscancelledCoursescancelled,ATOdebt(s)waived

2014-2015

JohnHawash(MotorDealer)(2015)32MotordealerlicenserevokedbyQueenslandCivilandAdministrativeTribunal(QCAT)forfailingtoprovidecontractsandadheretocoolingoffnoticesandstatutorywarranties.

ICAN,QueenslandOfficeofFairTrading&severalCapeYorkAboriginalcommunities

IncreasedawarenessbyCapeYorkcommunityresidentsofconsumerrights/responsibilitieswhenpurchasingmotorvehicles.

2014

TitanMarketingtopay$750,000forunconscionableconductandfalseandmisleadingrepresentations33.

ICAN,ACCC,QueenslandOfficeofFairTrading&severalCapeYorkAboriginalcommunities

Contractscancelled

2013

CourtordersExciteMobiletopay$455,000forengaginginfalse,misleadingandunconscionableconduct34,35.

ICAN,ACCC,Kowanyama&YarrabahAboriginalcommunities

Contractscancelled

29AustralianSecuritiesandInvestmentsCommission.(2017).‘17-108MRQueenslandcaryardlenderorderedtopayover$1.2millionafterbreachingconsumercreditlaws.’April7.http://asic.gov.au/about-asic/media-centre/find-a-media-release/2017-releases/17-108mr-queensland-car-yard-lender-ordered-to-pay-over-12-million-after-breaching-consumer-credit-laws/.30AustralianCompetitionandConsumerCommission.(2016).‘Chriscoorderedtopay$200,000penaltyformakingafalseormisleadinglay-byrepresentation.’March3.https://www.accc.gov.au/media-release/chrisco-ordered-to-pay-200000-penalty-for-making-a-false-or-misleading-lay-by-representation. 31AustralianCompetitionandConsumerCommission.(2016).‘CareersAustraliaundertakestorepayCommonwealthforVETFEE-HELPdiplomacourses.’May16.https://www.accc.gov.au/media-release/careers-australia-undertakes-to-repay-commonwealth-for-vet-fee-help-diploma-courses.32[7]Ibid.33AustralianCompetitionandConsumerCommission.(2014).‘TitanMarketingtopay$750,000forunconscionableconductandfalseandmisleadingrepresentations.’June13.https://www.accc.gov.au/media-release/titan-marketing-to-pay-750-000-for-unconscionable-conduct-and-false-and-misleading-representations.34AustralianCompetitionandConsumerCommission.(2013).‘CourtordersExciteMobiletopay$455,000forengaginginfalse,misleadingandunconscionableconduct.’November29.https://www.accc.gov.au/media-release/court-orders-excite-mobile-to-pay-455000-for-engaging-in-false-misleading-and-unconscionable-conduct. 35AustralianCompetitionandConsumerCommission.(2013).‘CourtfindsExciteMobileactedunconscionably.’https://www.accc.gov.au/media-release/court-finds-excite-mobile-acted-unconscionably.


Whatcouldbedonetoimprovecoordination?TheeffortsandoutcomesoftheNQIndigenousConsumerTaskforcefillaservicegapinremoteanddiscreteAboriginalandTorresStraitIslandercommunities,yetremainsanunfundedinitiative,relyingonin-kindcontributionsoftheconsortium.TheNQIndigenousConsumerTaskforcecouldincreaseitsreachandimpactinthefollowingways:

• AdministrativefundingfortheNQIndigenousConsumerTaskforcecanaidtheconsortiumto:provideacommunicationsstrategytohighlightTaskforceactivities;allowforlocalorganisationsoperatinginremoteanddiscreteAboriginalandTorresStraitIslandercommunitiestojointheTaskforceinordertofurtheridentifyandaddresssystemicconsumerandfinancialdetrimentoftenspecifictoIndigenouscommunities;

• Evaluation(asaseparate,fundedactivity)ofTaskforceinitiatives,toprovideanevidence

basefortheNorthQueenslandIndigenousConsumerTaskforceasbestpracticeandassistinthedevelopmentofTaskforceinitiativesinnewregions.

(6) Fundingarrangements

ForIndigenousorganisations,isthecurrentlevelofflexibilityandcontroloverspending

appropriate?Ifnot,whyandwhatreformsshouldbeconsidered?Isthereanythingelseyouwanttotellusthatyouthinkisimportantaboutthefundingarrangements?Pleaseexpand.

• Whenfundingisdeliveredtofinancialcounsellingtoservicearangeofgeographicalareas,it

maybelimitedbybeingdeliveredasa‘onesizefitsall’(ie.FundingamounttocoveralargegeographicalareaspecifictoremoteanddiscreteAboriginalandTorresStraitIslandercommunities,maybethesamefundinglevelasdeliveringthesameservicetoadenselypopulatedurbancentre.Theonesizefitsallfundingmodelmaynotrecognisetheadditionalcosts(ie.travel)ofdeliveringqualityservicestoremoteanddiscreteAboriginalandTorresStraitIslandercommunities;

• Theabovemaylimitaservice’sabilitytoalignwith‘Goodpracticeservicedelivery–

perspectivesonwhatworks’outlinedintheconsultationpaper36suchasutilisingacommunitydevelopmentapproachtodeliveringservices,whichfocusesonlocalemploymentandbuildinglocalcapabilitiesandcapacitiesinremoteanddiscreteAboriginalandTorresStraitIslandercommunities(ie.wherefundingmaynotbeprovidedtoemploylocally,buildlocalcapabilitytodelivertheservice);

• Reportingrequirementshaveafocusonservicedelivery,includingservicedeliveryhours,

wherethereisalsocontractualobligationformeetingcomplianceactivities,thataren’trecognisedasbillableservicedeliveryhours.Thismeansapercentageofmeetingthesecompliancerequirementsbecomefundedbytheserviceorganisationitself,andisnotcoveredunderthefundingagreement.Thisissueimpactsuponsmallernot-for-profitorganisationsmorethantheirlargercounterparts.

36QueenslandProductivityCommission.(2017).‘Ahigh-levelframeworkforassessingservicedelivery.’Consultationpaper:servicedeliveryinremoteanddiscreteAboriginalandTorresStraitIslandercommunitities.March2017.http://www.qpc.qld.gov.au/files/uploads/2017/03/Consultation-paper-FINAL.pdf.


(7) Developinganevaluationframework

Dothecurrentreportingrequirementsassociatedwithgrantprogramsprovideusefulinformationtopolicymakers,serviceprovidersandcommunities?Ifno,why?Whatcouldbedonetoimprovethecultureofevaluationandmakeitmoreusefulfordrivingimprovementstoservicedelivery?WhatindicatorsshouldbeusedtomeasureprogressinremoteanddiscreteAboriginalandTorresStraitIslandercommunities?Isthereanythingelseyouwanttotellusthatyouthinkisimportantaboutevaluation?Pleaseexpand.

Reportingrequirementswhichfocusonoutputreporting,donotprovidetheinformationrequiredtoreportontheoutcomesorlonger-termimpactachievedbyanorganisation.Additionally,reportingrequirementswhichfocusoncapturingthenumberofminutesspentwithaclientmayaccountfor‘ServiceHour’reporting,butdoesnotaccountforthequalityandlevelofaserviceprovided.ICANrecognisedtheneedtoevaluateitsplace-basedfinancialcapabilityprogramintheYarrabahandPalmIslandcommunities37,focusingonfourindicatorsoffinancialcapability:

• Managingmoney(theabilitytolivewithinone’smeans)• Planningahead(inordertodealwithunexpectedeventsandprovideforthe• Makingchoices(beingawareofavailablefinancialproductsandchoosethemappropriately)• Gettinghelp(individualsgatheringinformationforthemselvesandalsousingthirdparties).

Measuringtheprogressofafinancialcounsellinginterventioncanbedeterminedbyhowwellafinancialcounsellingservicehasbeenabletoeffectivelyaddressissueswhichhaveplacedaclientintofinancialhardshiporcrisis,andhowtheseservicesleadtooutcomesandimpactforindividuals,familiesandcommunities.TheformerAustralianSocialInclusionBoard38looktothebuildingblocksoffinancialcapability:

37Robertson,J.,&Clough,A.(2011).EvaluationofYarrabahandPalmIslandMoneyManagementPrograms.PreparedfortheIndigenousConsumerAssistanceNetwork.http://researchonline.jcu.edu.au/17692/1/Robertson_%26_Clough__2011__-_MMP_Evaluation.pdf.38AustralianSocialInclusionBoard.(2013).Financialcapability.DepartmentofSocialServices:7.


Indicatorsusedtomeasureprogressshouldincorporatetheinputs/interventionsoftheservicesprovided,theeffectivenessofthoseservices,aswellasstructuralfactorsimpactingupontheoverallfinancialwellbeing39ofremoteanddiscreteAboriginalandTorresStraitIslandercommunities(ie.limited/lowincomes;accesstofinancialservices,basicbankingservices,financialcounselling&capabilityservices,governmentservices,andgeographicandculturalbarrierstoaccess)tocreateabalancedunderstandingofhoworganisationsandcommunitiesstrivetowardsbuildingfinancialcapabilitywithincontextandstructuralconstraints40.Governmentfundingcanbedirectedtowardsevaluativeactivitiesbyrecognisingevaluationasaseparateandadditionalfundedactivity.Agenciescanworktowardscontinuousqualityimprovementofserviceswhenevaluativerequirementsarebuiltintofundingagreementsattheonset.Ifthereisbothinvestmentandinterestbygovernmentinreportingonoutcomesandimpact,agenciesandgovernmentcanworkontheseactivitiesinpartnership.Governmentcanassistserviceproviderstoreportonoutcomesandimpactbyinvestingindevelopingareportingframeworkcapturesrelevantoutcomesoveroutputs.ThiskindofreportingframeworkcanassistgovernmenttojustifyfurtherinvestmentintofinancialcounsellingandcapabilityservicesthatareembeddedintoservicedeliverytoremoteanddiscreteAboriginalandTorresStraitIslandercommunities.

Above:Financialcapabilitycontinuum,ASIB2013

ASIB41providesaframeworkforunderstandingthecontinuumoffinancialcapability,from‘crisis’to‘thriving’whichcanbeincorporatedintoareportingframeworkforfinancialcounsellingservices.Additionally,areportingframeworkwhichrecognisesthevalueofconsumeractivitymeasurementthroughouttheconsumerlifecyclecanprovideabettermeasureoftheeffectivenessofearlyinterventionandadvocacyactions.Measurescouldincorporate:

• CapturingfrontendeducationactionsthatimproveconsumerknowledgeandassistinempoweringIndigenouspeoplestounderstandandexercisetheirconsumerrights;

• Capturingtheprocessofhowcommunities,organisationsandregulatorsworktogethertomitigateunscrupuloustraderactivityanditsimpactontheoverallfinancialwellbeingofremoteanddiscreteAboriginalandTorresStraitIslandercommunities.

39Bowman,D.,Banks,M.,Fela,G.,Russell,R.,&deSilva,A.(2017).‘Understandingfinancialwellbeingintimesofinsecurity.’http://library.bsl.org.au/jspui/bitstream/1/9423/1/Bowman_etal_Understanding_financial_wellbeing_2017.pdf. 40Buckland,J.(2010).‘Arelow-incomeCanadiansfinanciallyliterate?Placingfinancialliteracyinthecontextofpersonalandstructuralconstraints.’AdultEducationQuarterly,60(4),357-376. 41AustralianSocialInclusionBoard.(2013).Financialcapability.DepartmentofSocialServices:33.


AppendixA: ICAN–FinancialinclusionserviceprovisiontoremoteanddiscreteAboriginalandTorresStraitIslandercommunitiesinQueensland

Queensland Productivity Commission Consultation Paper ... · the financial counselling & capability...

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