Closing the Gap in the Northern Territory Monitoring Report - July to December 2010

Monitoring Report July - December 2010 - Part Two

On this page:

• Whole of Government Monitoring Report
• 1. Early Childhood
  • 1.1 Crèches
  • 1.2 Playgroups
  • 1.3 Parenting Programs
• 2. Schooling
  • 2.1 School Attendance
  • 2.2 School Nutrition Program
  • 2.3 Quality Teaching Package and Enhancing Literacy
  • 2.4 Additional Teaching Staff
  • 2.5 Teacher Housing
• 3. Health
  • 3.1 Expanding Health Service Delivery Initiative
  • 3.2 Child Health Check Specialist and Allied Health Follow-up Services
  • 3.3 Northern Territory Hospitalisation Data
  • 3.4 Child Special Services
  • 3.5 Drug and Alcohol Treatment and Rehabilitation Services
  • 3.6 Food security and community stores
• 4. Economic Participation
  • 4.1 Expenditure through Income Management
  • 4.2 BasicsCards
  • 4.3 Income Support
  • 4.4 Job Placements
  • 4.5 Work Experience
  • 4.6 Financial Penalties
  • 4.7 Off-benefit outcomes
  • 4.8 Increase literacy and numeracy
  • 4.9 Community Development and Employment Projects (CDEP) program
  • 4.10 Youth in Communities (YIC)
• 5. Land Tenure
  • 5.1 Five Year Leases
  • 5.2 Long term Leasing Arrangements
• 6. Safe Communities
  • 6.1 Police
  • 6.2 Alcohol, Drug and Substance Related Incidents
  • 6.3 Domestic Violence Related incidents
  • 6.4 Assault
  • 6.5 Restraining Orders
  • 6.6 Sexual Assault
  • 6.7 Child Sexual Assault
  • 6.8 Child Abuse
  • 6.9 Night Patrol Services
  • 6.10 Safe Places
  • 6.11 Mobile Child Protection Team
  • 6.12 Remote Aboriginal Family and Community Workers
  • 6.13 Legal Services
  • 6.14 Alcohol Restrictions
  • 6.15 Alcohol Management Plans
  • 6.16 Audit of publicly funded computers
  • 6.17 Substance Abuse Intelligence Desk and Dog Operations Unit
  • 6.18 Northern Territory Aboriginal Interpreter Services (NTAIS)
• 7. Governance and Leadership
  • 7.1 Government Business Managers
  • 7.2 Northern Territory Indigenous Interpreters
  • 7.3 Community Engagement
  • 7.4 Commonwealth Ombudsman Support
• Appendix A - Youth in Communities Project Information
• Appendix B - Commonwealth Ombudsman’s Report
• Abbreviations and acronyms
• List of Tables

Whole of Government Monitoring Report

Introduction

This Closing the Gap in the Northern Territory (previously the Northern Territory Emergency Response) Monitoring Report brings together performance information for each measure under the Northern Territory Emergency Response (NTER) for the period 1 July to 31 December 2010. In some cases, information since the start of the NTER (June 2007) is also provided.

Report Structure

The Monitoring Report is comprised of two parts. Part One provides an overview of the monitoring data, as well as a background on the NTER, and the changes that have occurred since it began and includes all of the key developments in dot point.

Part Two (this report) provides detailed information and analysis by sub measure. This includes the progress and associated issues in relation to each identified performance indicator, including the necessary caveats. All Australian Government information was provided by the agencies responsible for the relevant sub measure. This report also contains data from the Northern Territory Government (NTG).

Analysis provides:

• Summaries of developments and progress
• Reasons for the non-achievement of milestones or targets
• Any ‘lessons learned’ and challenges
• Any changes in policy direction
• Data limitation and action in place to rectify these.

This reported is primarily structured following the Closing The Gap Building Blocks:

• Early Childhood
• Schooling
• Health
• Economic Participation
• Safe Communities
• Governance and Leadership

The National Partnership on Remote Housing Northern Territory (NPRHNT) is not a measure under the NTER or Closing the Gap in the Northern Territory National Partnership and is not covered in this report. Therefore, the Healthy Homes building block is not included in this report, although land reform is a measure under the NTER.

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1. Early Childhood

This Building Block seeks to improve access to quality early childhood education and care services, including pre-school, child care and family support services such as parenting programs and support.  Appropriate facilities and physical infrastructure, a sustainable early childhood education and health workforce, learning frameworks and opportunities for parental engagement are also important.  Action in the areas of maternal, antenatal and early childhood health is also relevant to addressing the infant and child mortality gap and to early childhood development.

1.1 Crèches

Data Notes

Funding under the Supporting Families Measure for NTER provided for nine new crèches to increase access to childcare and upgrade of 13 existing crèches to address urgent health and safety issues.

Progress

Funding under the Supporting Families Measure for Northern Territory Emergency Response Crèches provided for nine new crèches. All nine new crèches have been completed.

• Seven new crèches are operational: Milikapiti, Peppimenarti, Robinson River, Areyonga, Docker River, Papunya and Yarralin.
• The ninth new crèche at Timber Creek has been completed and will be operational on the 30^th of May 2011.
• The crèche at Lajamanu was completed but is not currently operating due to changing circumstances in the community. The building established under the NTER Crèche initiative is being used by the local school for the benefit of the community.
• Funding has been allocated for the construction of a new purpose built crèche at Lajamanu under the 2010 Budget Based Funding Quality Measure to improve the quality of centre based BBF¹ Services.

Upgrades

Funding under the Supporting Families Measure for Northern Territory Emergency Response provided for the upgrade of 13 existing crèches to address urgent health and safety issues. 13 crèche upgrades have now been completed in:

• Ntaria, Nyirripi, Santa Teresa, Gunbalanya, Borroloola, Maningrida, Minjilang, Minyerri, Gapuwiyak, Wugularr, Atitjere, Pirlangimpi and Warruwi.

1.2 Playgroups

1.2.1 Locational Supported Playgroups

Key developments

Locational Supported Playgroups: Between 1 July and 31 December 2010, 172 adults and 194 children participated in Locational Supported Playgroups (LSP);

• 53 adults and 51children participated in 68 LSP sessions in Numbulwar;
• 52 adults and 55 children participated in 52 LSP sessions in Lajamanu;
• 37 adults and 52 children participated in 83 LSP sessions in Milingimbi; and
• 25 adults and 32 children participated in 10 LSP sessions in Gunbalanya; and
• 5 adults and 4 children participated in 6 LSP sessions in Yuendumu.

Progress

Numbulwar Locational Supported Playgroup

From July to December 2010, 53 adults and 51 children participated in the Numbulwar Playgroup.

Anglicare have employed and trained three local Indigenous women to run the playgroup along with a non Indigenous worker who is a long-term community resident and a fluent speaker of the local language.

Playgroup worker’s attendance at the Secretariat of National Aboriginal and Islander Child Care (SNAICC) Conference in July provided an opportunity for staff to meet people from all over Australia who were involved in similar work and who faced similar challenges working in remote communities and/or in Indigenous children's services. Key Aboriginal and Torres Strait Islander leaders in the areas of education, health, welfare, well being and rights of Aboriginal and Torres Strait Islander children presented keynote speeches It was also an excellent opportunity to build on training issues already raised in the previous in-service training held in Darwin in June 2010.

Milingimbi Locational Supported Playgroup

From July to December 2010, 37 adults and 52 children have participated in the Milingimbi Playgroup. Four local Indigenous women have been employed and trained to run the Playgroup. These local Indigenous women are creating a culturally meaningful Playgroup program.

In December 2010 the Playgroup was able to relocate from the Milingimbi School Library Audio Visual Room which they shared with the Families as First Teachers – Indigenous Parenting Support Services (FaFT-IPSS) program into the new Multi Purpose Hall. When the community launched the opening of the new facility, local Indigenous elders marked the occasion with a traditional smoking ceremony.

Lajamanu Locational Supported Playgroup

From July to December 2010, 52 adults and 55 children participated in the Lajamanu Playgroup, with 12 families regularly attending. The Playgroup is integrated in the FaFT-IPSS program.

A dual generational Locational Supported Playgroup (LSP) provides quality early childhood learning experiences for both young remote Indigenous children (0-3 years) and their families. As such, it supports and addresses the needs of more than one generation. Sessions assist to develop skills around factors which influence positive outcomes for young children including child development, health, hygiene and nutrition. The program supports the foundations for literacy and numeracy development and enhances school readiness of children, families and communities.

A shipping container was located near the park in Lajamanu and established as a base for the playgroup equipment. This was to enable easy access and storage for playgroup equipment.

Gunbalanya Locational Supported Playgroup

From July to December 2010, 25 adults and 32 children participated in the Gunbalanya Playgroup.

There were 10 playgroup sessions delivered in Gunbalanya from October to December 2010. The Playgroup is integrated in the Families as First Teachers – Indigenous Parenting Support Services (FaFT-IPSS) program.

A mini playgroup was held to promote the upcoming implementation of the new playgroup during child protection week, 28 September 2010. Following this, 10 playgroup sessions were held. Families engaged in play and learning activities which included reading, painting, drawing and oral English.

Yuendumu Locational Supported Playgroup

On 31 July 2010, the current provider’s contract for the delivery of an LSP in Yuendumu ended. From 1 August 2010, service delivery of the LSP in Yuendumu changed service providers. The program delivery under the new service provider commenced in September 2010 after several delays in recruiting staff and community unrest, disrupting service delivery. In November 2010 playgroup sessions re-commenced. Playgroup attendance remained low due to community unrest and an outreach model was used so that the service could continue.

1.2.2 Intensive Support Playgroups

Key developments

From 1 July to 31 December 2010, 104 adults and 141 children participated in Intensive Support Playgroup (ISP) activities.

• 69 adults and 71 children participated in the ISP in the Katherine communities of Binjari and Rockhole.
• 19 adults and 40 children participated in the ISP in Tennant Creek.
• In June 2010, a Service Provider was funded to provide an Intensive Support Playgroup in Borroloola under Closing the Gap in the Northern Territory. From July to December 2010 this program has remained in the implementation phase with a pilot playgroup conducted in four locations with 16 adults and 30 children participating.

Since 2007-08, two ISPs have been operational as part of the Northern Territory Emergency Response and Closing the Gap in the Northern Territory.

From July to December 2010, a playgroup was delivered in two Katherine Communities, Rockhole and Binjari. One playgroup was held in Rockhole and two playgroups were held in Binjari each week during school terms.

From July to December 2010, playgroup sessions were provided to residents of the Tennant Creek Town Camps. The playgroup has been running at a number of locations around Tennant Creek including the Childcare Centre and Peko Park. Parents and children from the town camps are offered transport to and from the playgroup locations.

In December 2010, pilot Playgroups in four Borroloola town camps were conducted with 16 adults and 30 children participating.

Progress

Intensive Support Playgroup in Katherine

In the six months to December 2010, 69 adults, and 71 children participated in the ISP in the Katherine communities of Rockhole and Binjari, with playgroups held at the Top Camp, Bottom Camp of Binjari Community on alternate days. Sixty one playgroup sessions were offered and 47 sessions were attended during the reporting period. The provider is currently engaging with the Kalano Community to recommence the playgroup in this location, following its discontinuation due to non attendance. This engagement strategy includes Family Support Worker home visits, cooking classes for parents and parent involvement in the planning for future activities.

Mobile playgroups sessions are held in these local communities to allow Indigenous families without access to transport, the opportunity to regularly attend a supported playgroup.

The key objectives of the program are to; improve early learning and safety and wellbeing of Indigenous children aged 0-4, build parent and carer knowledge and capacity, strengthen community connections and social networks, and act as a referral point, linking families to outside support services.

The early childhood workers and family support workers have developed strong relationships and rapport with community members through continuity of staff and services. This has assisted with the identification of families in need of assistance and their referral to other services. The service has been able to attract new families by taking part in community events and meetings.

The family support workers have assisted families who are uncomfortable with and intimidated by mainstream services, to establish positive connections with local service providers. Bi-monthly newsletters are distributed to parents and provide a visually inviting source of information and serve as discussion starting points.

Intensive Support Playgroup in Tennant Creek

During the period 1 July to 31 December 2010, 19 adults and 40 children participated in playgroups in Tennant Creek.

Playgroup sessions were provided in a supportive environment for Indigenous children 0-5 years who reside in the Tennant Creek Town Camps. Sessions were held four times a week with an average of over 20 children attending sessions.

The ISP provides children and adults the opportunity to participate in early learning development skills through interactive play, teaching, role modelling, social interaction and parental participation with a focus on fine motor skills, gross motor skills and cognitive development.

Intensive Support Playgroups in Borroloola

In June 2010 a Service Provider was funded to provide an Intensive Support Playgroup in Borroloola. The Service Provider has partnered with a local Indigenous organisation to deliver the playgroup. Six local Indigenous women, identified through the local Women’s Council, have commenced training in a Certificate III in Community Services and will be employed as Early Childhood Workers.

During December 2010, 21 adults and 30 children participated in pilot ISP playgroups in the Borroloola communities of Garawa, Mara and Yanyuwa and at the Borroloola Pool. The service is expected to be fully operational in February 2011.

1.3 Parenting Programs

Invest to Grow: Between 1 July and 31 December 2010, 189 adults, 170 children and 137 youth participated in Invest to Grow (ItG) activities. These include the Let’s Start Program, Child Nutrition Program and the Core of Life Program.

1.3.1 Let’s Start Program:

Key developments

• During the period 1 July to 31 December 2010, 20 adults and 10 children participated in the Let’s Start program in Pirlangimpi.

Background

The Let’s Start: Exploring Together for Indigenous Preschools Program aims to develop a preschool program in communities to support parents, enhance parenting practices, strengthen family units, develop children’s social skills and reduce problematic behaviour.

Progress

During the period from 1 July to 31 December 2010 the Let’s Start team delivered a 10 week Let’s Start program in Pirlangimpi. The 10 week program included weekly in-class support for five participants who attend the Pularampi School in Pirlangimpi. Let’s Start participants demonstrated improved problem solving skills and positive family interactions.

The Let’s Start program continued to strengthen links with the Palmerston/Tiwi region Communities for Children, to improve service coordination for NT children and families.

1.3.2 Child Nutrition Program:

Key developments

• During the period 1 July to 31 December 2010, 59 adults, 68 children and 11 youth were assisted by the Child Nutrition Program.

Background

The Child Nutrition Program provides prevention and intervention sessions in Ngaanyatjarra Pitjantjatjara Yankunytjatjara (NPY) communities, to at risk families and children. Service delivery includes individual education, support and case management, community education, and a range of community development strategies to develop the capacity of communities to support vulnerable and at risk families and children.

Progress

During this reporting period the Child Nutrition Program provided assistance to 59 adults, 68 children and 11 youth through the provision of the following:

• Case management for children identified as failure to thrive, growth faltering or at risk. Case management included education and support for families in their communities, working with clients in Alice Springs at Stuart Lodge, Town Camps and Alice Springs Hospital; networking and liaison with other agencies; and organising/attending case management meetings. Achievements during the reporting period include increased general child wellbeing and steady growth improvements, increase nutritional knowledge and cooking skills and identification and action on two severe failure-to-thrive clients;
• Advocacy and case support for children and their families involved in child protection intervention. During the reporting period staff coordinated regular supervised access for families whose children are in foster care;
• Health promotion and nutrition awareness activities such as bush picnics, formal school education sessions, community events, and workshops in family centres, child care and pre-schools; and
• Early intervention activities for families and communities through the Child Nutrition Program’s participation in regional youth and school health promotion activities (see dot point above), and by sourcing and producing nutrition based health promotion resources appropriate for use with schools, early childhood centres, and children and families in NPY communities.

1.3.3 Core of Life Program

Key developments

• During the period 1 July 2010 to 31 December 2010, 110 adults, 92 children and 126 youth have been assisted by the Core of Life program.

Background

The Core of Life's 'Pregnancy, Birth, Breastfeeding and Early Parenting' Program is a ‘hands on’ health education program providing current, research based information about pregnancy, birth, breastfeeding, and early childhood to both male and female adolescents. The program works by training facilitators who then present the program to young people. Facilitators may include midwives, school nurses, teachers, community members and youth educators.

Progress

• During the reporting period Core of Life undertook two facilitator training workshops at Wadeye and Yirrkala. Thirty two community members and service provider staff took part in the facilitator training. There was representation from key sectors of each community ensuring local sustainability of the activity.
• Core of Life delivered nine education sessions at Gapuwiyak, Nhulunbuy, Tiwi Islands, Wadeye, Groote Eylandt and Yirrkala schools. A total of 180 youth participated in the sessions. Many of the sessions were organised by locally trained facilitators. Each site now has a communication strategy designed to increase service delivery collaboration. The sessions also provided opportunities to mentor new facilitators.
• A cross cultural community activity was held in Yirrkala with 100 Indigenous people in attendance. Local high school student ran activities to engage children and parents.

1.3.4 Indigenous Children’s Program

Key Developments

• In the July to December 2010 period, 9 adults, 11 children and 2 youth participated in Indigenous Children’s Program (ICP) activity.

Background

The ICP supports Aboriginal and Torres Strait Islander families who are experiencing alcohol and other drug (AOD) issues through a range of substance misuse programs.

The project delivers early intervention and prevention services focussed on improving relationships, family health, school readiness, literacy and numeracy.

Progress

The ICP provides daily sessions on the topics of developing a routine for mother and baby, nutrition and health, parenting skills and developing children’s motor skills through play based activities.

ICP workers actively encourage and assist Indigenous people to access various mainstream services. For example, participants are referred to health professionals (child psychologists, doctors, dentists, eye and hearing specialists, dieticians) and relevant service providers.

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2. Schooling

This Building Block seeks to support responsive schooling that requires attention to infrastructure, workforce, curriculum, student literacy and numeracy achievement and opportunities for parental engagement and school/community partnerships.  Transition pathways into schooling and into work, post-school education and training are also important.  Life-long learning is important and attention is also needed regarding adult literacy and numeracy skills.

2.1 School Attendance

Parents of Indigenous children need to be involved in ensuring their children get a complete education. Children need to be encouraged to expand their expectations of themselves. Children of all ages will face learning difficulties if they are tired or hungry, both of which make them unable to fully concentrate on the tasks set by teachers. Regular school attendance is clearly essential for learning.

Key Developments

• Between November 2008 and November 2010, NTER school enrolments (i.e. combined preschool, primary and secondary) decreased by 187 students (from 8,290 to 8,103).
• Between November 2008 and November 2010 secondary school enrolments showed an increase of 30 students.
• The average attendance rate for schools in the NTER communities was 56.5% in November 2010. The average school attendance rate in November 2009 was 62.1%. Average school attendance rates across the NTER communities are subject to variability over time. For example Primary school attendance rates ranged from a high of 64.1% in November 2009 to a low of 53.7% in August 2010.

Analysis

Overall NTER school enrolments (i.e. combined preschool, primary and secondary) decreased by 187 students between November 2008 and November 2010 (from 8290 to 8103).

From November 2008 to November 2010 preschool enrolments decreased by 125 students (from 1025 to 900). Primary schools enrolments decreased by 92 students. An increase of 30 student enrolments was reported in secondary school.

Since November 2009, preschool school enrolments decreased by 33 students. Primary school enrolments increased by 30 students. Secondary school enrolments increased by 145 students.

Since November 2008 average preschool and primary attendance rates have decreased slightly by 2.6 and 3.9 percentage points respectively. Secondary school average attendance rates also decreased over the same period by 3.6 percentage points.

Preschool attendance rates for the reporting period August 2008 to November 2010 ranged from a high of 60.9% in November 2009 to a low of 50.3% in August 2010. The attendance rate in November 2010 was 53.8%.

Primary school attendance rates ranged from a high of 64.1% in November 2009 to a low in August 2010 of 53.7%. The primary school attendance rate in November 2010 was 59.3%.

Secondary school attendance rates ranged from 48.6% in August 2008 to 50.1% in November 2010, with a high point of 57.4% in November 2009 and a low of 42.4% in August 2010.

2.2 School Nutrition Program

Key developments

As at December 2010, 66² schools (61 Government, five non-government) servicing the 73 prescribed communities were supported by the School Nutrition Program.

• In the period July 2010 to December 2010, an estimated 2,994 breakfasts and 4,177 lunches were provided each school day (7,171 meals in total).
• In the period July 2010 to December 2010, over 200 people were directly employed by the SNP program in meals delivery, of whom 165 (78%) are local Indigenous people.

The School Nutrition Program (SNP) is a breakfast and/or lunch program for school-aged children attending school within prescribed communities of the Northern Territory. The aim of the program is to support better school attendance and to help with learning and engagement in education.

The program is administered by the Department of Education Employment and Workplace Relations (DEEWR) on behalf of the Australian Government. The department funds SNP providers in each community to employ local workers to prepare and deliver the meals, ensure adequate kitchen facilities and equipment are available, and to support any related professional development activity.

Parents are strongly encouraged to participate in the program by making voluntary deductions from Income Managed Funds, Centrepay or electronic funds transfer.

An evaluation of the School Nutrition Program is being undertaken in 2010-2011 to report in September 2011. The evaluation will be conducted in accordance with the NTER Whole-of-Government Evaluation Strategy.

2.3 Quality Teaching Package and Enhancing Literacy

Under the Quality Teaching Package and Enhancing Literacy measures of the Closing the Gap in the Northern Territory National Partnership Agreement, the Australian Government has committed $44.3 million over three years (2009-10 to 2011-12) to Northern Territory education providers to develop career pathways for Indigenous staff, increase the number of Indigenous staff with education qualifications and provide support and programs to enable teachers and students achieve improved outcomes in literacy and numeracy in 73 targeted remote communities. Schools have been progressively implementing site-based reforms during 2010.

The schools involved in reforms are a sub-set of those involved in the Low Socio-Economic Status School Communities National Partnership, thus the initiatives and reforms supporting schools align with, supplement and enhance those undertaken through the Smarter Schools National Partnership Agreements.

The initiatives being implemented are a combination of systemic, regional/sectoral and school based. Systemic provided services are focused on building workforce capacity in schools supporting students in prescribed communities and/or enhancing the education experience for students and include:

• Extending services available to support conductive hearing;
• Improved screening and induction programs;
• Leadership and coaching programs for school leaders as well as Indigenous staff;
• Leadership and pathways programs for Indigenous students;
• Coordination of enhanced English as a Second Language (ESL);
• Development of an integrated service delivery for early childhood services;
• Transforming Indigenous Education evaluation; and
• Strategic coordination.

Achievements

In addition to undertaking the Northern Territory Emergency Response to Closing the Gap National Partnership transition processes, the following progress has been achieved during the period 1 July 2010 to 31 December 2010:

• 5 Assistant Teachers from Ramingining School completed their Diploma in Education Support; these graduates are the first Assistant Teachers from the Northern Territory to achieve this milestone;
• Under the non-government Growing Our Own initiative 24 Indigenous and 2 non-Indigenous education workers enrolled in a higher teacher qualification;
• A total of 73 scholarships were awarded across the Graduate Certificate and Masters level to remote teachers including 8 additional More Indigenous Teachers scholarships;
• 8 schools delivered VET in the Middle programs to enhance the availability of flexible pathways programs for middle year’s students; this has resulted in 80 students completing Middle Years VET Certificate 1 courses;
• Continuation of the provision of enhanced services to support students with Conductive Hearing Loss. Thirty seven schools have continued to access services, such as professional learning programs for classroom teachers, special education teachers and assistant teachers that focus on the provision of advice about improving classroom acoustics, and the provision of support in the development of action plans for individual and groups of students who are diagnosed with Otitis Media (middle ear disease) and Conductive Hearing Loss;
• Conductive Hearing Co-ordination activity focussed on the following 3 areas:
  • Use of hearing continua to implement whole school approaches to assisting students with hearing loss;
  • Development of plans for audit of sound field systems in schools; and
  • Delivery of professional learning for teachers and leaders.
• The Remote Improvement Team continued to work intensively with targeted government schools to support improvement processes and whole school approaches to literacy. In particular the team focused on:
  • Enhancing data analysis;
  • Determination of whole school approaches; and
  • Supporting targeted professional development to enable effective leadership of programming and planning as well as teaching for assessment of learning.
• The Inclusive Leadership model trials (cultural advisors, community mentors) continued in thirteen schools. The trials assist principals to:
  • Improve liaison with community leaders;
  • Develop strong cultural leadership and shared responsibility;
  • Integrate local community culture in curriculum and school business; and
  • Improve cross cultural skills and knowledge of staff.
• Critical Friends consultants continued to enhance school improvement planning processes. Schools access these services on an as needed basis and are also supported through their respective sectors to undertake quality improvement planning;
• A Remote Indigenous Education Manager continued to working closely with school leaders to facilitate enhanced community partnerships in education;
• Remote Schools Specialist Support Team continued to work with 5 remote Catholic schools in ESL, literacy and numeracy, early childhood, health and wellbeing and transition of secondary students to higher education;
• The Quality Remote Teaching Service team continued to improve workforce recruitment and selection processes to enhance teacher quality and retention;
• 5 additional Literacy and Numeracy coaches have been employed across the Northern Territory. These coaches are in addition to the 10 coaches previously engaged. Literacy and Numeracy coaches provide onsite support and training for teachers and assistant teachers to deliver evidence based approaches to literacy and numeracy and ESL teaching;
• 3 coaches in the Katherine region focussed on supporting school leaders and teachers to improve assessment and reporting of NAPLAN data. The coaches facilitated development of whole school approaches to maths (including baseline testing) and spelling / word study;
• Coaches in the Arnhem region worked with 7 schools. Activity focussed on development of numeracy, reading, assessment and reporting policy and implementation plans based on school needs;
• Indigenous Workforce Development officers continue to work onsite with Indigenous paraprofessionals to support them in attaining educational qualifications and enhance their role in both the school and community;
• 2 additional Indigenous Workforce Development Officers were recruited in the Barkly region in September 2010. They have worked with 37 Indigenous staff across 8 schools to identify development goals and support them through accredited programs. Six staff have already completed their qualifications, with the majority expecting to finish their courses in early 2011. Succession planning is in place to ensure newly qualified staffs are empowered to undertake new levels of responsibility, such as at Alekarenge School where Indigenous staff now lead the whole of school Thursday afternoon language and culture program. This program is being delivered with renewed invigoration and is complementing other initiatives to enrich the culture of the school; and
• 4 Teaching Multi-Lingual Learners project officers worked with school leaders and teachers in 40 schools across the Arnhem and Alice Springs regions to run workshops to enhancing teachers’ understanding of the ESL Phases & Pathways, demonstrate quality teaching practice for targeted teachers, and begin discussions regarding student support plans.

2.4 Additional Teaching Staff

As at 31 December 2010, 146.5 full-time equivalent additional teachers have been funded by the Commonwealth and deployed by NT education providers. This comprises:

• 127.5 teachers deployed by NT Department of Education and Training (DET);
• 16 teachers deployed by NT Catholic Education Office; and
• 3 teachers deployed by NT Independent Schools.

2.5 Teacher Housing

The Commonwealth and Northern Territory Governments have committed funding to build up to 50 additional houses for teachers in the Northern Territory. At 31 December 2010:

• 33 houses for teachers had been completed.

The Commonwealth also provided funding to the Northern Territory Catholic Education Office to build four houses in the remote Catholic education school communities of Wadeye, Nguiu and Santa Teresa. This is in addition to the Commonwealth's existing commitment to build up to 10 new houses for teachers working at the Catholic school in Wadeye.

The Northern Territory Department of Education and Training and the Northern Territory Catholic Education Office have experienced delays in construction due to rain and cyclone effects in some communities, protracted lease negotiations and land availability. The remaining 14 houses are expected to be completed before the end of 2011.

Under the Closing the Gap in the Northern Territory National Partnership Agreement, the total allocation for the Teacher Housing Initiative was $11 million in 2009-10 for the construction of up to 22 teacher houses. Due to delays in construction, $4.9 million of the $11 million was not paid during the 2009-10 financial year and has been rephased into the 2010-11 financial year.

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3. Health

This Building Block seeks to achieve improved health outcomes for Indigenous people. Increasing Indigenous Australians’ access to effective, comprehensive primary and preventative health care is essential to improving their health and life expectancy, and reducing excess mortality caused by chronic disease. All health services play an important role in providing Indigenous people with access to effective health care, and being responsive to and accountable for achieving government and community health priorities. Closing the Indigenous health gap requires a concerted effort in the prevention, management and treatment of chronic disease. Indigenous children and their parents need to access programs and services that promote healthy lifestyles.

3.1 Expanding Health Service Delivery Initiative

Key developments

• In the period 1 July to 31 December 2010, the Commonwealth Government provided funding to the Remote Area Health Corps (RAHC) to place 213 health professionals throughout the Northern Territory on short to medium-term placements – 29 general practitioners, 95 nurses, 18 allied health professionals and 71 dental personnel. The contract with Aspen Medical has been extended to continue the operations of RAHC for 2010-11.
• Expansion of primary health care through the Expanding Health Service Delivery Initiative (EHSDI) commenced in July 2008 and continued throughout the current reporting period to December 2010. Over this period available data show that a total of 273 new health positions were funded in Aboriginal health services within the NT (17 medical practitioners/specialists, 46 nurses, 25 Aboriginal Health Workers, 76 Aboriginal Community Workers, 28 program delivery and allied health staff, 38 management and service support positions, 15 Continuous Quality Improvement (CQI) staff, 12 Chronic Disease Hub Positions and 16 Audiology and Hearing Health Hub Positions).
• Service expansion incorporates the establishment of hub services employing 28 staff in Darwin and Alice Springs to provide Northern Territory-wide primary and secondary prevention services for chronic disease and hearing health and audiology services.
• Agreement has been reached that from 2012 providers will plan and implement service delivery based on a Northern Territory Core Primary Health Care Services Framework which is currently being reviewed and refined.
• The Department is leading a joint process to develop Regionalisation Guidelines assisted by representatives from other members of the Northern Territory Aboriginal Health Forum (NTAHF). Regionalisation Guidelines endorsed by NTAHF are being used in Health Service Delivery Areas (HSDAs) where regionalisation is progressing.
• A 10 year integrated Northern Territory Aboriginal primary health care reform plan is in the process of being developed by the partner agencies that comprise the NT AHF. The plan is based on the WHO health systems framework as a basis for priority areas for primary health care system improvement.
• Agreement has been reached on an Northern Territory-wide Continuous Quality Improvement (CQI) framework and the employment of two CQI coordinators. Funding has been provided to service providers to implement the framework within HSDAs through the employment of local CQI Facilitators.

Background

In September 2009, the Minister for Indigenous Health, Rural and Regional Health and Regional Services Delivery Warren Snowdon approved the Investment Plan for 2009-10 totalling $50.706m and agreed to an allocation of funds for the following elements: $41.5m for Primary Health Care Expansion and Transition, which includes increased services, regional reform and capital and infrastructure funding; $7.5m for Workforce, including $5m for the RAHC; $1.001m for Evaluation purposes; and $0.705m for Capital and Infrastructure. This commitment builds on the 2008-09 Investment Plan.

The process being undertaken to regionalise primary health care services, through HSDA Regionalisation Steering Committees, provides a mechanism for strong community engagement. The purpose of these committees is to ensure communities have an increased involvement in health decision making and to provide a platform from which to develop regional Aboriginal community controlled health services for those regions. The future primary health care delivery systems in the Northern Territory will be based on a number (probably 14) of HSDAs. These HSDAs establish agreed regional boundaries within which governance, health planning and health service delivery frameworks can be developed.

To address difficulties in recruiting short term clinical positions within Northern Territory primary health care services, the Remote Area Health Corps (RAHC) was established to supplement existing recruitment efforts. The primary focus of the RAHC is recruitment of urban-based health professionals, on a short term basis, to provide increased primary health care targeting priority health needs for Indigenous people of all ages.

Progress

During the period 1 July to 31 December 2010, there was further progress in the health system reform process. Key outputs include:

• Continuation of the tri-partite governance of the implementation of the EHSDI through the NTAHF;
• A regionalisation proposal for Barkly HSDA was endorsed by the NTAHF, and support provided to the local Aboriginal Community Controlled Health Service provider to develop capacity to take on a regional health service role;
• A proposal to establish a planning unit in the East Arnhem HSDA was endorsed by the Primary Health Reform Group;
• The Red Lily Interim Health Board, in the West Arnhem HSDA, established an Executive, and developed a plan to incorporate the Red Lily Health Board and establish organisational capacity by July 2011;
• Five Regionalisation Steering Committees continued to identify future regional governance models. The Regionalisation Steering Committees guide the process of developing regional governance and service delivery arrangements, engaging local communities throughout the process;
• Development of a draft Competence and Capability Framework (CCF) for use in conjunction with the Regionalisation Guidelines commenced. The Northern Territory Department of Health is finalising the CCF for consideration by the NTAHF in March 2011;
• The CCF Framework and Assessment Tool will be used for assessing proposals to establish regionally based Aboriginal community controlled health boards;
• Five workshops were held to further develop the jurisdictional approach to Continuous Quality Improvement (CQI). These included orientation for new CQI Coordinators, workshops for primary health care and visiting staff and a Northern Territory Aboriginal Health Key Performance Indicator (NTAHKPI) Collaborative workshop involving 70 participants to explore interpretation of KPI data for use in local quality improvement plans and activities;
• A consultancy to review workforce development in the Northern Territory Aboriginal Primary Health Care sector was established through the Aboriginal Medical Services Alliance of the Northern Territory. The final report is due in February 2011; and
• A Northern Territory Core Primary Health Care Services Framework consultancy commenced to review and refine the nature and type of comprehensive primary health care services provided under EHSDI. Full implementation of the revised Framework by providers in service planning is scheduled to commence in 2012.

3.2 Child Health Check Specialist and Allied Health Follow-up Services

Key developments:

Between 1 July to 31 December 2010:

• 663 children received audiology follow-up services (742 services provided);
• 1,306 children received dental follow-up services (1,814 services provided); and
• 695 children received Ear, Nose and Throat (ENT) specialist follow-up services (768 services provided).

The Australian Government has continued to fund a range of specialist and allied health follow-up services in high priority areas as agreed with the Northern Territory Government and set out under the Closing the Gap in the Northern Territory National Partnership Agreement.

Child Health Checks (CHCs) continue to be provided in the Northern Territory through a variety of mechanisms. Some are funded through the Medicare Benefits Schedule Item 715 (formerly item 708) while others are provided as part of the Healthy School Aged Kids Program or the Healthy Under 5s Kids Program. The evaluation of the CHCI and the EHSDI, which will report in early 2011, will inform future policy and practice on wellness checks for Indigenous children in the Northern Territory.

Progress

Follow-up of CHC referrals through existing Primary Health Care (PHC) or specialist services available in the Northern Territory often commenced soon after the checks were completed. The Australian Government provided additional follow-up funding to both Aboriginal Community Controlled Health Organisations and the Northern Territory DHF health clinics.

Data on follow-up service delivery is available from three sources: 1) audiological testing, 2) ENT services and 3) dental services:

• Audiological Testing: Audiological testing is done to assess hearing and is repeated during the course of care provided for children with ear disease to measure change in response to treatment. Audiology is not in itself a therapeutic intervention but part of a larger process of care. It is expected that many children will require further action following audiological assessment. These services are being provided to children who had a CHC, as well as other Indigenous Australian children aged 15 years or less who live within the prescribed areas of the Northern Territory;
• ENT Services: Under the Closing the Gap in the Northern Territory National Partnership Agreement (NPA), the Northern Territory Government is to target all Indigenous children under 16 years of age from prescribed communities and town camps who have a referral from a CHC for ENT specialist care. Services include an ENT specialist consultation and, where necessary, ENT surgical procedures;
• Funding for ongoing hearing and audiological services, including pre and post-operative care, will be supported through expanded primary health care services and the existing Northern Territory Government services;
• Dental Services: Under the Closing the Gap in the Northern Territory National Partnership Agreement (NPA) the Northern Territory Government is to target all Indigenous children under 16 years of age referred for dental follow up through a CHC and those eligible for CHCs from prescribed communities and town camps. Services include oral assessment, oral health promotion and dental treatment including dental surgery under general anaesthetic; and
• Funding is also available to a number of Aboriginal Medical Services in the Northern Territory to provide follow up dental services. Services include oral assessment and dental treatment. Children requiring dental surgery under general anaesthetic are referred to the Northern Territory DHF. Dental follow-up funding from the Australian Government is available until June 2012.

Data on follow-up service delivery was published on the Department of Health and Ageing (DoHA) and Australian Institute of Health and Welfare (AIHW) websites in December 2009 and was based on activities up until the 30 June 2009. These data have now been updated and this report provides data available to the AIHW up until 31 December 2010 (as at 25 February 2011). The following proportions on children with specific referrals for follow-up have been seen at least once (up to 31 December 2010):

• 68% (880) of 1,291children referred for audiometry;
• 70% (2,244) of the 3,224 children referred for dental; and
• 76% (1,230) of the 1,625 children referred from the CHCI for ENT.

Evaluation and monitoring - of the Child Health Check Initiative and the Expanding Health Service Delivery Initiative

In June 2009 Allen and Clarke Policy and Regulatory Specialists Ltd (Allen and Clarke) were engaged to undertake an independent evaluation of the CHCI (Child Health Check Initiative) and EHSDI (Expanding Health Service Delivery Initiative). The evaluation is assessing the performance of these initiatives in relation to their appropriateness, effectiveness and efficiency and contribution to the refinement of policy and practice.

The evaluation was conducted within the framework of a Memorandum of Understanding (MoU) between the Northern Territory Government, the AMSANT, and the DoHA, to guide monitoring and evaluation of primary health care expansion and reform through to 2012-13. The MoU was operationalised by a Management Committee comprising of partner representatives, the Australian Institute of Health and Welfare (AIHW) and an Indigenous Advisory Group (IAG).

The approach taken in the evaluation is outlined in an Evaluation Design Report produced by Allen and Clarke and available on the Department of Health and Ageing website³.

The evaluation of the CHCI component has built on the data collections developed to monitor the implementation of the Child Health Checks (CHCs) and follow-up services and also includes a qualitative component, including findings from a small number of case study communities.

The focus of the EHSDI evaluation was on whether the program was on track to expand primary care service delivery, improve service delivery structures and processes, meet the health needs of the Indigenous population, improve health outcomes and make the best use of scarce resources. It is informed by data collected against the Northern Territory Aboriginal Health Key Performance Indicators (NTAHKPIs), other available health administrative data (eg hospital and registry data), administrative data from OATSIH and Northern Territory DHF on expenditure and services provided, and more in depth information from five case study communities.

A small number of case studies were used to explore issues in depth, and sought to understand why things were done, how they were implemented and what happened as a result. The case studies have collected both qualitative and quantitative information, using interviews (conducted in February and March 2010), observation, administered questionnaires and document review.

Overall the consultants found that the CHCI was launched as a centrally-driven program, without following a normal policy development process or engaging in consultation with stakeholders outside central government.

The program evolved to achieve some credible successes in areas such as dental, hearing and ear, nose and throat (ENT) health, with new service delivery models developed for children with hearing impairments and ear disease. However, overall the report states that the impact of the CHCI improved over time, but that the initial rollout did not allow for adequate consultation.

The report also states that the CHCI may impact on the health of individual children in the short term, intervention in the context of ongoing poor social conditions will have little impact at a population level as children simply get re-infected or continue to live in conditions that promote or exacerbate chronic illness. Case study participants identified poor quality housing as a critical issue.

The Expanded Health Service Delivery Initiative (EHSDI), on the other hand, is an ongoing program that is being built on a rich history of innovation and health system development in the NT. The Australian Government, NT Government and Aboriginal community controlled health organisations (ACCHOs) are playing an active part. The objectives of the EHSDI include improving the quality of remote services, developing regional approaches to planning and delivery of those services and increasing Aboriginal community control and participation in the regional health service planning and delivery.

While the program faces ongoing challenges, the EHSDI’s achievements to date are a cause for celebration. The evaluation report has now been finalised and is expected to assist in strengthening the program delivery in this area. The final report, along with the Evaluation Design Report mentioned above are available on the Department of Health and Ageing website.⁴

Plans for the longer term evaluation of the EHSDI will now be made noting that the Northern Territory AHKPIs will support long term monitoring and evaluation of the program as well as CQI and planning activities. Indicators will enable monitoring of: episodes of care, timing of first antenatal visit, birth weight, immunisation, nutritional status of children (including weight and anaemia levels), and chronic disease management.

3.3 Northern Territory Hospitalisation Data

This section presents data on the long-term trends in hospitalisation for Indigenous children aged 0-14 years living in the Northern Territory. The purpose is to assess whether these children’s health status is changing over time. It is difficult to measure the level of ill-health in the population and hospital statistics are used as a proxy measure of ill-health in the absence of better sources. The hospitalisations data need to be viewed with caution. There are several limitations that should be kept in mind when interpreting the data. These are:

• hospital separation data does not capture the full extent of ill-health in the population. Some sick people will be managed in a primary care setting and some sick people will not seek treatment at all;
• hospitalisation data can also be influenced by the capacity of primary health care to detect and manage conditions at an early stage thus averting a more serious illness that would require hospitalisation; and
• hospitalisation may be influenced by the availability of services or by changes in treatment practices reflecting new technologies and drugs or understandings of disease.

Table 3.1 provides data for an eight year period from 2001-02 to 2008-09 on hospital separations for Indigenous children 0-14 years in Northern Territory public hospitals. The data are for ‘principal diagnosis’, that is, the condition chiefly responsible for the hospital admission. It is also possible to look at the additional diagnoses for each admission. These identify any co-existing conditions that the person had during their stay in hospital. Additional diagnoses are not included in this analysis but will be included in a more comprehensive analysis of NT Indigenous child health data currently in preparation. Caution should be used when only reviewing principle diagnoses as factors such as nutritional anaemia and scabies may be a factor in many hospitalisations even though nutritional anaemia and scabies are relatively infrequent principle diagnoses.

Table 3.1 presents the data as a rate per 1,000 population. The use of rates rather than raw numbers takes account of changes in the size of the population which may be one factor influencing change in the number of hospitalisations occurring over time. The principle diagnoses selected are those that are most relevant to the safety of children and the adequacy of their social and economic environment—housing and nutrition in particular. This group of principal diagnoses accounts for between 50 and 54% of all hospital separations for Indigenous children in the NT in each of the eight years.

Overall, the rate of hospitalisation for Indigenous children remained between about 170 and 190 per 1,000 people for the first seven years. However, it increased in 2008-09 to 215 per 1,000. The main contributors to this increase were diseases of the oral cavity and otitis media. As discussed below, these are most likely the result of increased availability of acute care treatments. The other main contributors to the increase in 2008-09 were respiratory conditions (pneumonia, asthma, and acute upper respiratory infections).

Intestinal infectious disease was the leading principle diagnosis over the time period with a rate of 35 per 1,000 in 2001-02 but declining to 23.9 per 1,000 in 2008-09. Some of this decline may be attributable to a change in coding practice which affects data for 2008-09. Pneumonia was the second most common reason for hospitalisation in 2001-02 with a rate of 23.4 per 1,000. However, this too declined over the time period to a rate of 16.9 per 1,000 in 2008-09 becoming the fifth leading principal diagnosis.

Injury and skin infections remained among the leading causes of hospitalisation across the eight years. Injury hospitalisations increased from 17.3 per 1,000 in 2001-02 to 22.1 per 1,000 in 2008-09. Skin infections increased from 15.1 per 1,000 to 21 per 1,000 in 2008-09. By comparison, malnutrition and nutritional anaemia remained relatively constant over the eight years with rates below 1 per 1,000. Malnutrition and nutritional anaemia accounted for less than 100 hospital admissions per year over the period.

The hospital separation rate for diseases of the oral cavity and otitis media increased twofold between 2007-08 and 2008-09. While the rates of oral disease and ear disease are known to be very high, there is no evidence to suggest a sudden increase in their prevalence in the population during this time period that could account for the observed increase in hospitalisation rates. A more likely explanation is that there was an increase in the availability of acute care services for children with these conditions as a result of increased effort from the Northern Territory Government to respond to the large volume of referrals resulting from the Child Health Check Initiative. This increased effort was supported by Commonwealth funding for specialist dental and ear, nose and throat follow-up care provided through the Northern Territory Emergency Response.

While comparative data are not presented here, it is well known that Indigenous children in the Northern Territory have very poor health status with high rates of ear disease, gastrointestinal disease, respiratory disease, oral health problems and skin disease. The hospitalisation data in table 3.1 suggest that the health status of Indigenous children in the NT (to the extent that it can be measured by hospitalisation rates) has not changed markedly over the eight year period. There are some long term downward trends in hospitalisation for intestinal infectious disease and pneumonia but these are offset by increases in hospitalisation for injury and skin infection. The AIHW is conducting further analysis of these and other data to develop a better understanding of trends in the health status of Indigenous children in the Northern Territory. This will be reported in future Monitoring Reports and other publications.

3.4 Child Special Services

Key developments:

• Since the commencement of the Mobile Outreach Service (MOS) in April 2008 to 31 December 2010 teams have made a total of 530 visits to 86 communities and town camps in 12 eligible HSDAs of the Northern Territory;
• As at 31 December 2010 the MOS Plus employed 24 staff and had teams located in Darwin and Alice Springs;
• From 1 July to 31 December 2010 MOS and MOS Plus teams made a total of 189 visits to 80 communities and town camps across the Northern Territory; provided 347 case-related services to children and/or their family members and delivered 726 non-case related services to service providers and community members;
• As at 31 December 2010, the Centre for Remote Health (CRH) and the Northern Territory DHF had delivered Child Special Services Workforce Training and Development funded activities to 804 participants from the health and community services remote workforce in the Northern Territory.

Background

The Australian Government provided funding to the Northern Territory DHF under the NTER to develop and implement the Northern Territory Sexual Assault MOS to respond to child sexual assault and related trauma in remote communities that had not previously received a service from the Northern Territory’s Sexual Assault Referral Centre (SARC). Through both the 2008-09 Better Outcomes for Hospitals and Community Health and the 2009-10 Closing the Gap - Northern Territory Indigenous health and related services budget measures, MOS Plus is being implemented across remote Northern Territory communities.

The 2009-10 funding expanded the program (now known as MOS Plus) from November 2009. MOS Plus now provides culturally safe counselling and support services in response to any form of child abuse-related trauma, and is being implemented through an Implementation Plan under the National Partnership Agreement on Health Services. The Australian Government’s commitment to funding a therapeutic response to neglect and abuse is complemented by appropriate non case-related services to children and their families and communities. MOS Plus is one of a range of investments that contribute to Closing the Gap in the Northern Territory, and complements the role of many primary health care providers in this challenging area. The program is also intended to increase referral pathways through the development of partnerships with the broader remote health and community services sector. The Implementation Plan, agreed on 18 June 2010, can be accessed on the Ministerial Council for Federal relations website.⁵ The 2009-10 funding also improves access to remote forensic sexual assault services. MOS Plus teams consist of professional counsellors and Aboriginal Therapeutic Resource Workers who provide casework services, community education and professional development services to Aboriginal and Torres Strait Islander children, families and community members in remote Northern Territory.

Child Special Services Workforce Training and Development for Northern Territory health professionals and other service providers funded in 2008-09 was delivered between April 2009 and 30 June 2010. It was delivered by the CRH and the Northern Territory DHF in hub locations as well as a number of remote communities across the Northern Territory. The training was delivered to the remote health and community service workforce to increase their capacity to respond to child abuse and related trauma, including understanding mandatory reporting obligations. Additional funding made available through the 2009-10 Budget increased access to training and workforce development to remote primary health care staff and community based workers

Progress

MOS Plus: From the commencement of MOS in April 2008 to 31 December 2010 teams have made a total of 530 visits to 86 communities and town camps in 12 eligible HSDAs of the Northern Territory. As at 31 December 2010, MOS Plus employs 24 staff, and has teams located in Darwin and Alice Springs. Darwin based teams provide services to the Top End and Katherine regions. Alice Springs based teams provide services to the Central Australia and Barkly regions.

Case-related and non case-related service data available from Northern Territory DHF for 2010-11 indicates that in the six month period 1 July to 31 December 2010, MOS Plus teams made a total of 189 visits to 80 communities and town camps across the Northern Territory, provided 347 case-related services⁶ to children and/or their family members, and delivered 726 non-case related services⁷ to service providers and community members.

As at 31 December 2010, Child Special Services Workforce Training and Development funded activities were as follows:

• Northern Territory DHF delivered 32 training workshops and information sessions to 491 human and community services workforce participants in remote Northern Territory communities; and
• CRH delivered 23 training workshops in regional hubs to 313 health workforce participants from remote Northern Territory communities.

Evaluation of the Mobile Outreach Service (MOS) Projects

The Department has commissioned an independent evaluation of the Northern Territory Sexual Assault Mobile Outreach Service (MOS) and the Northern Territory Mobile Outreach Service Plus (MOS Plus).

The objective of the evaluation is to assess the implementation of the MOS Projects model and their impact on and outcomes for Aboriginal children and young people in their families and communities.

3.5 Drug and Alcohol Treatment and Rehabilitation Services

Key developments

A total of $2.6 million ($1.5 million under the Closing the Gap – Northern Territory – Indigenous Health and Related Services Measure and $1.1 million under the Closing the Gap – Indigenous Drug and Alcohol Services measure) will be provided in 2010-11 to continue the key activities of the NTER. This includes:

• Increasing the drug and alcohol treatment and rehabilitation workforce across six Aboriginal Community Controlled Medical Services and five stand-alone services, including additional registered nurses, social workers, AOD (Alcohol and Other Drug) workers and community support workers located across Darwin, Katherine, Tennant Creek, Alice Springs and Nhulunbuy. In addition, significant achievements have been made through the provision of work opportunities to AOD workers, and local community members, as well as providing professional development to workers and community members in their skill set. The Evaluation of the AOD Response Measure reports that 10 Indigenous people are in the role of AOD outreach workers (at the time of publication).
• Increasing the capacity of six treatment and rehabilitation services throughout Darwin, Katherine, Tennant Creek and Alice Springs; and
• Providing drug and alcohol workforce education and professional development through the NT DH.

Progress

Increasing the AOD Workforce

In the period 1 July to 31 December 2010, organisations continued to work towards developing models of service delivery specific to the requirements of their communities and regions. The creation of employment opportunities targeting Indigenous Australians has been a significant achievement. Difficulties recruiting and retaining staff in some locations remain, although organisations are continuing to actively fill vacant positions in 2010-11. Workforce support and development is essential to building a sustainable workforce and supporting primary health care services to integrate substance use interventions into core health service provision.

Substance Use Treatment and Rehabiliation Services

Additional funding is being provided in 2010-11 to six stand alone substance use treatment and rehabilitation services across the Northern Territory to enhance capacity and continue services provided in 2009-10.

The services which are receiving additional funding in 2010-11 to enhance capacity and continue services provided in 2009-10 are located across the regions of Darwin, Alice Springs, Katherine and Tennant Creek.

Workforce Support and Development

In 2010-11, Northern Territory DHF is being funded to deliver a range of workforce support and development initiatives. These include continuation of the AOD Clinical Director position, which supports the AOD workforce through the provision of professional advice, mentoring and co-ordination, and workforce training and education activities. These activities complement existing investment in the AOD sector across the Northern Territory under recent Council of Australian Governments (COAG) Initiatives.

Evaluation of the Alcohol and Other Drugs (AOD) Response Measure

Origin Consulting and Bowchung Consulting were engaged through an open tender process in August 2008 to undertake an independent evaluation of the AOD component of the Measure. The Review has now been finalised and is publically available on the Department of Health and Ageing website⁸.

The Review found that appropriate AOD services were available when the initial alcohol restrictions were introduced under the NTER, the AOD Response was implemented in a culturally appropriate manner and there is now greater workforce capacity to assist people requiring AOD services in the Northern Territory. The Review also reported that the AOD component has strengthened the health system’s response to AOD issues in the Northern Territory through the expansion of a skilled workforce and clinical guidance from the role of the Clinical Director.

The Review noted that additional support for the Indigenous AOD sector was required and recommended strategic planning between the Australian and Northern Territory Governments for future investment, improving training opportunities for workers across AOD and related services, broadening the representation of the sector in decision making mechanisms, and improving the quality of the residential rehabilitation services.

The information contained in this Review will continue to inform the Commonwealth’s future planning for investment in the AOD sector of the Northern Territory.

3.6 Food security and community stores

In order to provide food security to communities, it is essential that governments at all levels improve the capacity of stores operators and boards in Indigenous communities to soundly manage the business of a store to ensure the continuous supply of a good range of reasonable quality food to communities.

The way community stores operate and the quality of food they provide is critical to the Australian Government’s efforts to improve the lives of Indigenous people through the Northern Territory Emergency Response (NTER).

A licensing system was put in place for community stores in prescribed areas in the Northern Territory. Stores that are licensed are able to participate in the income-management arrangements.

Key developments

• At 31 December 2010, a total of 92 community stores have been licensed.
• A total of 176 visits to community stores were undertaken from 1 July to 31 December 2010, which included assessments for store licensing and case management visits.
• In the period 1 July to 31 December 2010 no community store licences were revoked.
• In November 2010, Cultural and Indigenous Research Centre Australia (CIRCA) was engaged to undertake an evaluation of the licensing of community stores in the Northern Territory. They found that stores licensing has helped people have better access to healthy and affordable food in their communities. However, the report also noted some concerns around the high cost of food and governance practices at some stores. The report is available on the FaHCSIA website⁹.

Background

The NTER brought in a licensing scheme for community stores. The aim was:

• to improve the range and quality of groceries available in communities; and
• to make sure stores are well managed and able to take part in the income management arrangements.

There are longstanding concerns about the management of stores and the quality of food available in some remote stores. The community stores licensing process addresses these concerns by setting standards for food, grocery quality and store governance. Community stores are those that are primarily concerned with the provision of grocery items and drinks. Stores that are solely takeaway food shops or fast food shops are not licensed in this process.

Progress

The Assessment Process and the Application of Legislative Requirements for the Licensing of Community Stores

As at 31 December 2010 there were 92 licensed community stores in the Northern Territory. Licenses are issued for up to a period of 12 months (some licences may be issued for a shorter period such as three or six months if significant operational issues are identified during the assessment process that need to be rectified within a specified time).

The NTER Act 2007, as amended, specifies the assessable matters that are taken into account when considering if a licence should be issued to a store operator. In broad terms the assessable matters relate to:

• The store’s capacity to participate in, and where applicable their record of compliance with, the requirements of the Income Management regime;
• The quality, quantity and range of groceries and consumer items, including healthy food and drink, available in the store;
• The financial structure, and retail and governance practices of the store;
• Character of the manager, employees and other persons associated with the business;
• Business structure and governance practises; and
• Other matters relating to food security that are considered relevant.

Section 104 of the NTER Act 2007 states that it is a condition of a community store licence that the holder of the licence must operate the store in a satisfactory manner having regard to the assessable matters.

A community store licence may be revoked or refused if, among other things, there are reasonable grounds to believe the store is in breach of licensing conditions and/or operated in an unsatisfactory manner. When a licence is revoked or refused, Centrelink will also cancel their Income Management agreement with the store. The effect of these actions is that income-managed funds are not able to be used in that store for any purchases.

Monitoring of Community Stores and Support to Community Store Owners and Managers

The Case Management Team within the Community Stores Section works closely with the owners and managers of community stores and other key stakeholders to assist in improving governance and retail practices to maximise efficiencies in the operation of the store and to ensure that business decisions relating to the operation of the store (governance) are sound. 

Case Managers regularly visit communities to monitor stores and to work with owners and managers to improve the capacity of the store, to meet licensing conditions, and to improve retail and governance practices. A total of 133 monitoring visits to community stores were undertaken from 1 July to 31 December 2010.

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4. Economic Participation

This Building Block seeks to ensure that individuals and communities have the opportunity to benefit from the mainstream economy.  Economic participation needs to extend to disadvantaged job seekers and those outside of the labour market.  Welfare needs to promote active engagement, enhanced capability and positive social norms. The Government has developed both specific employment packages in the Northern Territory, as well as implementing nationwide reforms to the Community Development Employment Projects (CDEP) program, the Indigenous Employment Program (IEP), and mainstream employment services so Indigenous Australians acquire the skills they need to get and keep a job.

Income management works by ensuring a proportion of income support and family assistance payments cannot be spent on excluded items, comprising alcohol, tobacco, pornography or gambling goods and activities. Money that is not spent on excluded goods is available to be spent on necessities, including food, housing, utilities, clothing and medical care. There is no restriction on use of the proportion of a person’s payments that is not income managed.

Income management does not change a person's payment entitlements; it only changes the way they receive their payments.

4.1 Expenditure through Income Management

Key Developments

• As at 31 December 2010, there were 16,350 people on income management in the Northern Territory, of these, 15,794 were on the new model of income management and only 556 (3.4%) people were on NTER income management yet to be transitioned or exited.
• Of the 7,877 NTER people who had exited income management by 31 December 2010, 59% (or 4,653)¹⁰ chose to participate in Voluntary Income Management.

Progress

Between July 2007 and 31 December 2010, a total of $463,578,145 million had been income managed and $461,034,303 million had been spent. Most money was spent in stores that primarily sell food (68.4%), on housing costs (9%), in stores that primarily sell clothing and footwear (6.7%) and on store cards available for use at major supermarkets and department stores (2.3%). School nutrition programs accounted for 3% of spending.

At 31 December 2010, the most common income support payments received by income management customers were Newstart Allowance (37.6%), Disability Support Pension (20.9%) and Parenting Payment Partnered (14%). Around a third (35.6%) of income management customers were also Family Tax Benefit (FTB) customers.

New Income Management

Income management was first introduced in 2007 as part of the Northern Territory Emergency Response (NTER). Until the introduction of the new, non-discriminatory model, income management only affected people in receipt of income support or family assistance payments who lived in the 73 prescribed communities, their associated outstations, or any of the 10 prescribed town camp regions of the Northern Territory. Funding for NTER income management and related services ceased at 30 June 2010, in line with the rollout of the new model of income management.  New income management is funded to target individuals at risk in the Northern Territory.  Because new income management has an impact on the lives of a large percentage of people living in the NT, its ongoing progress continues to be reported in conjunction with the NTER measures.

The new model of income management extends to people across urban, regional and remote areas of the Northern Territory aimed at those in most need for support, including those with a high risk of social isolation, poor money management skills, and those likely to participate in risky behaviours. The model is aimed at long-term unemployed, disengaged youth, people considered vulnerable by a Centrelink social worker, or referred by a child protection worker. People can also volunteer if they are not subject to a compulsory measure.  It is also being trialled in parts of Western Australia and Queensland. From 1 July 2012 income management will also be extended to five new locations across Australia as part of the measures announced in the 2011-12 Budget.

Implementation of the new scheme commenced in the Northern Territory on 9 August 2010 in the Barkly region. Zone 2 – Alice Springs, Katherine, East Arnhem land and other outback areas, commenced on 30 August 2010, with the remaining zones commencing on 20 September 2010 (outback areas) and 4 October 2010(Darwin and Palmerston).

The rollout involved the transition of existing NTER income management customers to the new scheme, the exit of existing NTER customers who are not eligible for the new scheme and the commencement of new income management arrangements for eligible customers who have not previously been affected, including residents of the cities and towns.

The proportion of a person’s income support payment that is income managed is generally 50%, but rises to 70% in cases where a child protection issue is involved.

The child protection measure is as an additional tool for the Northern Territory Department of Children and Families in their work with families, with a particular focus on neglect cases. Under this measure, Northern Territory child protection workers will: determine whether or not income management would be helpful to a particular individual/family; make a referral to Centrelink to income manage an individual/family, and then determine how long the child protection income management is to be applied ranging from three to 12 months.

Income management measures are designed to ensure that money is available for life essentials, and to provide a tool to stabilise people’s circumstances, easing immediate financial stress. Income management also limits expenditure of income support payments on excluded items. The new scheme is aimed at people who are likely to benefit from income management, with exemptions from income management available under the Parenting/Participation Measure for people in full-time study, people with a sustained history of workforce participation, and parents who can demonstrate proper care and education of their children.  People will also be able to volunteer for income management.

To provide greater support to people who are income managed, the Government has allocated over $50 million to expand financial literacy initiatives, as part of the income management model. This will include access to matched savings incentives, financial counselling and other financial management support services.

4.2 BasicsCards¹¹

The BasicsCard is a PIN-protected card which uses the existing EFTPOS system and enables people to easily access their income managed funds and is available for use at over 4,500 merchants nationally. The BasicsCard may be used to purchase any items available through an approved merchant, except for excluded items.

Key Developments

• As at 26 November 2010, 97.9% (16,994 out of 17,362) of all income managed customers had an active BasicsCard.
• As at 26 November 2010, customers have spent over $254 million using the BasicsCard, primarily at stores that mainly sell food (69.4%) and clothing (16.1%).

Progress

Of the 149,962 BasicsCards that have been issued since September 2008, 103,077 were replacement cards. Of these, lost cards accounted for the majority (80.4%), followed by damaged (11.5%) and stolen cards (3.6%). Since April 2010, when the second version of the BasicsCard was released, 22% of transactions have failed, with the remainder being successful. Of the failed transactions, 70% are due to insufficient funds, with the remainder due to one of the following reasons: invalid pin entered; card used on a terminal not activated for BasicsCard; stolen card that has been cancelled; and the transaction exceeded the daily withdrawal limit.

Issues

From 1 July 2010 everyone who had a BasicsCard was successfully transitioned to the new BasicsCard with its added security including the person’s name, PIN APPROVAL ONLY and No Signature Authorisation all printed on the card. Merchants were also successfully transitioned to accept the new BasicsCard. In response to feedback from people on income management, eligibility for merchants has been expanded to include toy stores and the list of excluded goods now includes home brew kits and concentrates.

Since the introduction of the BasicsCard, outages to the EFTPOS system highlighted the need to ensure that comprehensive contingency arrangements are in place when customers are not able to use the BasicsCard. Centrelink and FaHCSIA have mechanisms in place to ensure that people on income management have alternative ways to access their incomes managed funds during outages.

Determining a customer’s BasicsCard balance has been a major issue for some stores. The BasicsCard balance issue can be burdensome for stores when customers do not know their balances as customers often try to purchase more than they can afford.

People can check their BasicsCard balance via the Income Management Line (13 2594) which is available 24 hours a day, 7 days a week. People can also phone the 1800 number (1800 057 111) which is free from home phones. There are facilities available in Centrelink offices for customer to check their BasicsCard balance at no cost to the customer. Customers can also find out their balance by accessing the Centrelink website (www.centrelink.gov.au).

Community stores and some other stores have hot-linked phones which provide direct access to the Income Management Line to check their BasicsCard balance and to speak to a Centrelink Customer Service Adviser if required.

Future strategies include the installation of a limited number of BasicsCard kiosks which will be installed in urban areas in WA and the NT in 2011 and investigation of balance on receipt options.

4.3 Income Support

Individuals are assessed for income support against a standard set of criteria. Age, family and financial circumstances are the main considerations when assessing a person for income support.

People aged 16 to 64 will be assessed against the working age benefits such as Newstart Allowance, Parenting Payment (Single or Partnered) and Youth Allowance.

People 65 and over are predominantly assessed for the Age Pension.

People who are of working age but for caring or health reasons are unable to participate in the labour force will be considered for a benefit such as Carer Payment or Disability Support Pension (DSP).

The number of income support recipients in NTER prescribed communities increased by 15% between December 2009 and December 2010.

In the same period, the number of Disability Support Pension recipients increased by 34%, Carer Pension recipients increased by 26%, Parenting Payment Partnered recipients increased by 15%, Newstart recipients increased by 14% and Youth Allowance recipients increased by 33%.

The number of recipients receiving the Age Pension declined by 4%.

Much of the growth in payment recipients among those aged 16 to 64 has been a result of proper claiming of entitlements. Previously low levels of access to information about income support payments, and low levels of on the ground contact with Centrelink, had reduced the claim rate among many groups, and saw many eligible recipients not on payment.

Many of the new income support recipients have previously not been receiving any payment, rather than as a result of transfers between payments.

Much of the increased on the ground service activity by Centrelink has been driven by the implementation of income management.

In addition, more than 1500 jobs facilitated by employment service providers have been created during the period from December 2009 to December 2010.

Data Descriptions

4.4 Job Placements

Key developments

• Between I July 2010 and 31 December 2010, the number of Job Placements in the prescribed communities was 908.
• Job placements during the 1 July 2010 to 31 December 2010 period were 6% higher compared with the previous six month period.

Analysis of indicator

The above data series is a measure of successful job referrals made by the previous Job Network and Job Services Australia providers for job seekers (Indigenous and non-Indigenous) who resided in a prescribed community at the time of the job referral. Job placements for the period 1 January 2010 – 30 June 2010 were 55% higher compared with the equivalent six month period for 2009 (which was the commencement of the new Job Services Australia contract). Placement may have occurred after 30 December 2010. It is not a complete measure of job placements that have occurred in these communities, nor does it capture all placements into positions that have been created as part of the CDEP conversion Jobs Package - only those where a Job Services Australia provider has played a role in the job brokerage process. 

4.5 Work Experience

Analysis of indicator

Table 5 provides a breakdown of the Work Experience activities for job seekers in the 73 prescribed communities. It should be noted that, due to recording issues, the data significantly under report the number of job seekers who have participated in CDEP as a Work Experience Activity.

There has been a significant increase in participation in Work Experience activities between the 6 months to 1 January 2011 compared with the 6 months to 1 January 2010.

As at 31 December 2011, there were 8,167 job seekers on the Job Services Australia active caseload in the 73 prescribed communities. Of these job seekers, 3,354 (41%) were participating in a Work Experience activity. At 1 January 2010, there were 9,163 job seekers on the Job Services Australia active caseload in the 73 prescribed communities. Of these job seekers, 2,347 (26%) were participating in a Work Experience activity.

At 1 January 2011, there were 2,801 job seekers in the Work Experience Phase of the Job Services Australia active caseload in the 73 prescribed communities. Of these job seekers, 1,719 (61%) were participating in a Work Experience activity. At 1 January 2010, there were 2,434 job seekers in the Work Experience Phase of the Job Services Australia active caseload in the 73 prescribed communities. Of these job seekers, 1,099 (45%) were participating in a Work Experience activity.

The new Employment Services has a greater focus on job seekers obtaining work experience. Job seekers can participate in Work Experience at any time, and each Stream will include a Work Experience Phase tailored to the needs of individual job seekers. In this Phase, Jobs Services Australia providers will facilitate Work Experience Activities for job seekers which will enhance their chances of finding employment and provide ongoing assistance through regular contact with providers. Job seekers can undertake Work Experience Activities if the provider and job seeker believe it will benefit them. Job seekers with activity test and participation requirements are required to be undertaking at least one compulsory activity, which could, for example, be a Work Experience Activity or job search, on an ongoing basis.

Job Seekers are able to undertake a range of Work Experience Activities including:

• Work for the Dole activities, including Full-Time Work for the Dole activities (it is anticipated that Work for the Dole activities will continue to be the primary means of undertaking Work Experience);
• Green Corps environmental activities;
• Part-time study (for example through PPP and other accredited vocational training);
• Part time or casual paid employment;
• Brokered unpaid work experience placements;
• Voluntary work in the community and not-for-profit sector;
• Paid or unpaid work in social enterprises;
• Drought Force farm-based activities;
• Defence Force Reserves;
• Placement in other Australian Government or state government labour market or appropriate training or skills development programs, including Language Literacy and Numeracy, and Indigenous programs such as CDEP; and
• Participation in non-vocational programs and services (where appropriate).

Job seekers receiving income support who participate in Work for the Dole, Full-Time Work for the Dole, Drought Force and Green Corps activities, are eligible to receive a supplement of $20.80 per fortnight to assist them in meeting the additional costs of participation.

4.6 Financial Penalties

A Participation Report is a report submitted by an employment service provider to Centrelink when a job seeker fails to meet a participation requirement. The report is processed by Centrelink, who then discuss the matter with the job seeker to determine if they have a reasonable excuse for failing to meet a requirement.

If a job seeker fails to meet a requirement and a provider has been unable to contact the job seeker to discuss the reason/s why, the provider can use their discretion and submit a Contact Request (instead of a Participation Report) to Centrelink if they believe formal compliance action is not the most appropriate path to take. Centrelink receive the Contact Request, establish contact with the job seeker and book a re-engagement appointment with the job seeker’s provider. Job seekers do not incur penalties (financial or otherwise) through Contact Requests.

Eight week non-payment penalties referred to in the table below are applied to job seekers who:

• Voluntarily leave a job without a reasonable excuse or are dismissed due to misconduct;
• Refuse to commence or accept a suitable job; or
• After a Comprehensive Compliance Assessment, are found to be persistently non-compliant (i.e. they are deliberately avoiding their obligations). Comprehensive Compliance Assessments were introduced on 1 July 2009 – prior to this job seekers incurred an automatic eight week non-payment penalty after three applied participation reports in a 12 month period.

A No Show No Pay failure occurs when a job seeker fails to attend or engages in misconduct at an activity (e.g. Work for the Dole) or a job interview. Job seekers lose one tenth of their fortnightly income support payment for each No Show No Pay failure applied

A Reconnection failure occurs when a job seeker fails to meet a reconnection requirement (e.g. fails to attend a reconnection appointment with their employment services provider). Job seekers lose one fourteenth of their fortnightly income support payment from the date of when they failed to meet their initial reconnection requirement until they comply with a further reconnection requirement.

Analysis of indicator

A new job seeker compliance framework was introduced on 1 July 2009. The new arrangements take a fairer approach to job seeker engagement, ensuring any barriers to participation are considered and job seekers receive the right help, rather than the previous approach of an automatic eight week non-payment period once a number of failures to participate had been recorded.

There was no direct financial penalty prior to July 2009 (i.e. No Show No Pay) for not attending a required activity, failure to attend a job interview or behaving inappropriately at a job interview. Rather, these failures would incur a participation failure. Three participation failures would inturn lead to an 8 week non-payment period.

The old and new compliance frameworks are not directly comparable, especially in the context of the other (smaller) penalties. Under the old system, three applied failures of any type (e.g. failing to attend an appointment or activity) within a 12 month period automatically resulted in an eight week non-payment period.

Under the new system, three applied failures of the same type (i.e. three applied No Show No Pay or three applied connection/reconnection failures) within a six month period trigger a Comprehensive Compliance Assessment, which is conducted by Centrelink with a job seeker. If Centrelink deem that a job seeker has been persistently non-compliant, then the job seeker may incur an eight week non-payment penalty.

Contact Requests are another new feature of the compliance framework introduced on 1 July 2009. For the period 1 July to 31 December 2010, there have been 3768 finalised Contact Requests compared with 3612 finalised Contact Requests for the period 1 January to 30 June 2010. The Contact Requests represent over 48% of the combined Participation Report & Contact Request total in the NTER prescribed areas. This shows that providers are using their discretion not to take compliance action approximately half of the time and instead are asking Centrelink for help to contact and re-engage the job seeker.

The data in Table 4.4 shows that penalties are being applied against job seekers without reasonable excuse for failing to meet a requirement. The number of financial penalties which job seekers in NTER prescribed areas have incurred has increased under the new compliance framework compared with the old compliance framework.

Furthermore, the data also shows that in each 6 month period from 1 July 2009 onwards there has been a significant increase in the number of penalties being applied. This increase in the applied number of penalties is consistent with the increase in applied penalties in other parts of the country.

The increase in the number of applied penalties is due to an increase in the number of Participation Reports being submitted by employment services providers, as well as an increase in the proportion of these Reports being applied by Centrelink.

4.7 Off-benefit outcomes

Date Notes

The data on off-benefit outcomes presented in this report are not directly comparable with off-benefit outcomes data in previous reports. The off-benefit outcomes data in this report follows the progress of persons in receipt of Newstart Allowance (NSA) or Youth Allowance (other) (YA(o)) at 1 July in a given year in moving off income support for at least 13 weeks over the next six months. The previous reports examined off-benefit outcomes in relation to persons in receipt of NSA or YA(o) at any time over the six month periods.

Table 4.5 compares the number of persons in receipt of NSA or YA(o) on 1 July 2010 with those for 1 July 2009 who exited income support in the following six months. An exit from income support occurs when a recipient exits income support and remains off payment for at least 13 weeks.

For the purpose of this analysis a maximum of one exit is counted for an allowee in the period of analysis. Allowees can be on NSA or YA(o) and participating in CDEP.

As this analysis is based on the allowee’s community at 1 July, the exit from income support may have occurred outside their community.

Analysis of indicator

The data in Table 4.5 show no change in the number of exits between 2009 and 2010. There was little change in the proportion of recipients who exited these allowances in the comparable six month periods. 14.1% of the 6,817 NSA and YAL(o) recipients at 1 July 2010 exited these payments in the six months to December 2010 compared with 14.2% of the 6,758 NSA and YAL(o) recipients at 1 July 2009 who exited income support in the six months to December 2009.

As many exits are for unknown reasons it is not possible to make a reliable assessment of how many exits are related to employment outcomes.

4.8 Increase literacy and numeracy

Language, Literacy and Numeracy Program

Key Developments

• Between July 2010 and December 2010, there have been 384 referrals to the Language, Literacy and Numeracy Program. The total number of referrals during 2010 to the LLNP has been 497 and of those referrals 54 eligible job seekers have commenced training.

Data Notes

Please note information being reported from 2009-10 relates to funding provided as part of NTER for additional 162 places over 3 years as announced in the 2009-10 Budget. The 2009-10 referral data are not directly comparable with earlier periods as the LLNP training delivery, number of places and funding has changed substantially. These changes are leading to improved LLNP outcomes for Indigenous clients under NTER as noted below.

Analysis

Difficulties in engaging Indigenous communities in the initial roll out of the LLNP have been used to inform the community-based model. The rate of referrals over the 2009-10 financial year is an indication that the ground work for engagement led to improved participation rates.

As at 31 December 2010, the total number of referrals during 2010-11 to the LLNP (under NTER) has been 384 and of those referrals 54 eligible job seekers have commenced training.

The level of Indigenous engagement has decreased (18%¹²) during the first half of 2010-11 in LLNP when compared to previous data (33% in 2009-10). This decline can be attributed to a number of factors such as: personnel change within the contracted organisations, community unrest in Yuendemu, cultural challenges for trainers in Hermannsburg and lack of training facilities and trainer accommodation in Galiwinku.

There were a number of lessons learnt from the earlier service model (2007 to 2009) that led to increased engagement in 2009-10. Once the challenges identified above have been addressed, it is expected that the level of engagement will once again rise to what it was in 2009-10.

These models are expected to be replicated in other communities with a view to achieving better outcomes across the Program.

Overview of LLNP NTER

The Government has provided funding of $3 million over three years from 2009-10 for an additional 162 LLNP places for Indigenous Australians across nine Indigenous communities under the Northern Territory Emergency Response (NTER).

Priority Indigenous Communities will be targeted for service delivery of LLNP training using a community-based model. The model aims to facilitate strong community engagement, utilising existing infrastructure and generating successful training outcomes through improved client participation and retention rates. A key feature of these community-based projects is the conduct of upfront scoping activities to determine which communities are likely to experience greatest success from a LLN training project and to assist initial engagement with the community, relationship building with community stakeholders, employers and other training and service providers, to develop partnering arrangements, determine training logistics and develop innovative training and delivery strategies to meet the needs of the community.

4.9 Community Development and Employment Projects (CDEP) program

The CDEP program will assist indigenous job seekers by delivering Services and Projects in two streams; the Work Readiness and the Community Development.

• Work Readiness Stream—assists job seekers to develop their skills, to improve their chances of obtaining employment, outside of the CDEP program through Training and Work Experience.
• Community Development Stream—supports and develops Indigenous communities and organisations through community development projects as well as funding for Development and Support initiatives based on Community Action Plans.

The overall objective is to strengthen Indigenous communities and support Indigenous people in remote areas through community development and participation opportunities that develop skills, improve capacity, work readiness and employability and link with local priorities.

Key developments

• In the period between 30 June and 31 December 2010, CDEP services in the NT were delivered by a total of 27 CDEP providers throughout the entire reporting period.
• In the period between 30 June and 31 December 2010, CDEP participant numbers in the NT decreased by approximately 4.8%. At 1 July 2010 there were 4,667 active CDEP participants. At 31 December 2010 the total number of CDEP participants in the NT was at 4,443.

Background

Reforms to the CDEP program were introduced on 1 July 2009. This has changed the nature of the program, with all New Participants in the program being in receipt of appropriate Income Support, not CDEP participant payments. Participants who were on the program on or before 30 June 2009 had their eligibility to receive CDEP participant payments grandfathered (subject to continued eligibility) until at least 30 June 2011. On 9 December 2010, Ministers Macklin, Arbib and Plibersek announced a further extension of CDEP participant payments until 1 April 2012 with transition to income support ongoing until 30 June 2012. Between 1 April 2012 and 30 June 2012 CDEP participant payments will be phased out on a community by community basis as all CDEP participants will be moved onto income support.

Prior to reforms being introduced on 1 July 2009, the CDEP program had become a destination for many of its participants rather than a pathway to employment and economic independence. It also provided an ongoing wage subsidy for many Indigenous people working in government service delivery or private sector enterprises when they should have been properly employed and paid a real wage.

The reforms to CDEP sought to address these issues and to date, 2241 permanent and ongoing Indigenous jobs have been created. This comprises of 1755 positions supporting Australian Government service delivery and 486 positions supporting local Government service delivery from former CDEP positions. These include jobs in schools, child care, ranger services, municipal services, sport and recreation and aged care. Many former CDEP participants are now employed in these positions.

The CDEP program provides unemployed Indigenous people in remote communities with projects and services that meet their communities needs and give them the opportunity to improve their job skills.

Since 1 July 2009, CDEP has been available only in remote communities with limited and emerging economies. The NT Transition Payment ceased on 30 June 2008. On 10 December 2007 the Federal Minister for Indigenous Affairs announced a moratorium on any further transitions of CDEP providers in the Northern Territory. On the 30 April 2008 the Government announced the reintroduction of the CDEP program in all Northern Territory communities. A transition payment is not required as only new participants commencing on CDEP from 1 July 2009 will be on income support.

CDEP providers work in partnership with DEEWRs employment services and Indigenous employment program providers. Employment service providers work with individual job seekers to develop Employment Pathway Plans (EEP).

Progress

• CDEP providers who are implementing the Government’s reforms continue to be supported, including through regional workshops, trialling the implementation of an approach to continuous improvement and through Development and Support funding for the implementation of Community Action Plans.

Looking forward

The focus of the CDEP program is now on developing employability through work readiness services and community development projects. Business development is no longer a performance indicator of the CDEP program (2009-12).

4.10 Youth in Communities (YIC)

Key Developments

• A total of twenty-one projects have been funded to provide youth worker services, youth diversion activities and infrastructure projects in all Remote Service Delivery sites in the Northern Territory (NT) and across 36 NT community locations in total¹³.
• The YIC interim evaluation has commenced. The consultant is commencing site visits to selected communities in March 2011, with the report due for completion in August 2011.
• A project worker has been engaged to deliver professional development and mentoring to YIC service providers.

Progress

• More than 2,000 Aboriginal youth in the NT have been provided a service under this Program.
• Significant progress has been made towards the recruitment of 27-30 youth workers and 27-30 Indigenous youth worker trainees.
• The YIC infrastructure projects have an expected completion date of end 2011.

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5. Land Tenure

5.1 Five Year Leases

The Australian Government currently holds five-year leases over 64 Northern Territory Emergency Response (NTER) communities by operation of the Northern Territory National Emergency Response Act 2007 (NTNER Act). These leases were acquired to facilitate the administration of the NTER, providing security of tenure and prompt access for the delivery of services, repair of buildings and development of infrastructure in communities. Twenty-six of the leases commenced on 18 August 2007 while the balance of 38 leases commenced on 17 February 2008. Regardless of their start date, all five-year leases will expire in August 2012.

Key developments

Rent

On 24 October 2008, the Australian Government asked the NT Valuer-General to determine reasonable amounts of rent to be paid by the Commonwealth for the five-year leases that had been compulsorily acquired under the NTER.

• Rent payments for the two five-year leased communities on the Tiwi Islands (Milikapiti and Pirlangimpi) commenced in the week beginning 27 September 2009.
• Following consultations with the Northern and Central Land Councils, the Valuer-General provided rent determinations for the remaining communities in May 2010.
• On 25 May 2010 the Australian Government started paying rent to the Northern and Central Land Councils for the benefit of the Aboriginal land owners of the remaining 45 five-year leased communities on Aboriginal Land Rights (Northern Territory) Act 1976 land. The rent payments were backdated to the commencement of the leases, and include all rent payable for the period up until 1 April 2010. The payments will continue to be made on an annual basis until the leases expire in August 2012.
• There are an additional 16 five-year leased communities that are known as community living areas.  Rent payments have commenced for one of these communities and the Department is currently working with the Northern and Central Land Councils regarding arrangements for the remaining communities.

The Redesign of the NTER

In June 2010, the NTNER Act was amended by the Social Security and Other Legislation Amendment (Welfare Reform and Reinstatement of the Racial Discrimination Act) Act 2009. The amendments included the following additions to the five-year leases measure:

• The clarification of the objectives and permitted use of the five-year leases.
• A requirement that the leases be administered in a way that respects Aboriginal culture; and
• An obligation that the Government negotiate voluntary leases in good faith if requested by the land owner.

The Government has developed clear guidelines, the Northern Territory National Emergency Response (Land Use Approvals) Guidelines 2010 (Land Use Approval Guidelines)¹⁴, to govern the land use approval process to ensure the transparent allocation of lots. These guidelines are a legislative instrument which came in to force on 30 December 2010.

Background

The underlying title of the land is not affected by the leases. Aboriginal land owners still own the land. All existing arrangements have been retained. People using the land immediately before the commencement of the five-year leases have continued to do so.

The Government is responsible for approving new and changed uses of land in five-year leased communities.

Government Facilities within NTER Communities

The five-year leases have been used to underpin NTER measures including:

• the installation of Safe Houses;
• the improvement of conditions through the Community Clean-Up Program;
• the installation of Night Patrol bases; and
• the installation of GBM accommodation complexes.

The five-year leases also underpin housing refurbishments in 52 communities under the Strategic Indigenous Housing and Infrastructure Program (SIHIP) and reformed property and tenancy management arrangements.

Land Use Approvals

As leaseholder the Australian Government (through FaHCSIA) has a range of responsibilities including the management of five-year leased land. Prior to the five-year leases:

• Neither Land Councils nor landowners were involved in the day-to-day regulation of land in townships;
• the NT Government’s Department of Lands and Planning performed town planning functions, allocating administrative lots, but it was not its role to consider land tenure arrangement; and
• A large proportion of those occupying land did so with no legal basis.

FaHCSIA continues to progress land use approvals using the process established from 1July 2008 where all parties seek Australian Government approval (through FaHCSIA) for proposed new and changed uses of five-year leased land. The Land Use Approval Guidelines have enhanced the land use approval process. The result is a consistent and transparent process of allocating land to provide certainty to users. Parties using land immediately before the commencement of five-year leases have not been required to seek approval to continue using those areas, as existing arrangements were generally retained.

In processing land use requests, FaHCSIA undertakes a number of steps including obtaining planning comments, considering any competing claims to the land, and seeking information on community views through the relevant GBM. In addition, the Land Use Approval Guidelines require FaHCSIA to consider whether the proposed use of the land will improve the delivery of services in Indigenous communities in the Northern Territory and whether the proposed use is likely to promote economic and social development. Under the Land Use Approval Guidelines, FaHCSIA must also consider the potential impact of the proposed use on existing interests in the land and the potential impact of the proposed use on sacred sites. FaHCSIA must also consider whether to impose conditions on the proposer in relation to use of the land.

For the six month period from 30 June 2010 to 31 December 2010 inclusive, FaHCSIA received requests for approval to use approximately 551 areas of land. FaHCSIA approved approximately 414 applications for land use in the same period. The number not approved does not represent rejected approvals. Rather this may reflect approvals which are pending, were withdrawn by the applicant or found to be not applicable; for example where a section 19 lease is in place or the area of land fell outside the boundaries.

Where longer term use is envisaged, parties are encouraged to negotiate longer term leases with land owners. Longer term leases over five-year leased areas will not take effect until approved by the Minister for FaHCSIA. Once approved by the Minister for FaHCSIA, the areas will be excluded from the five-year leased area.

Permits

In summary, the current status in relation to permits is as follows:

• Government employees and contractors do not require a permit to perform relevant duties;
• All those involved with the NTER including the above and also including medical teams and volunteers do not require a permit for the period of the NTER;
• The public can access common areas of 52 major communities;
• The public can reach the 52 major communities by air, sea and public road;
• The public require permits for all non-public roads; and
• The public still require a permit to visit the vast majority of Aboriginal Land.

The permit system controls access to Aboriginal land held under the Aboriginal Land Rights (Northern Territory) Act 1976.  Except in specific circumstances it is an offence to enter or remain on any Aboriginal land without a permit.  The Aboriginal Land Act (NT) allows the Northern Territory Land Councils, traditional owners, and in some cases, the NTG to issue and revoke permits.  The police have the power to remove people where they are in violation of permit requirements.

The 2007 NTER legislation package made changes to the permit system removing the necessity to obtain permits for certain people in certain circumstances. 

Government employees and contractors no longer require a permit to enter Aboriginal land in the NT to perform relevant duties.  This change took effect with the commencement of the NTER legislation in August 2007.  In addition, all those involved with the NTER, including medical teams and volunteers, do not require a permit for the period of the NTER.

Further changes introducing limited public rights of access took effect from 17 February 2008.  As a result, common areas in 52 major communities are now accessible by members of the public without the need to obtain a permit if arriving by air, sea or public roads.

The day to day operation of the permit system remains the same as before the NTER took effect.  The issuing and revocation of permits remains a matter for the Land Councils, traditional owners and the police as required.  The process for responding to a person who is in violation of the permit requirements (by contacting the relevant Land Council and/or the police if necessary) is also unchanged, and the police still have the power to remove people where they are in violation of permit requirements.  The government has encouraged people wishing to access Aboriginal land to continue to contact the relevant Land Council regarding visits to communities even in relation to areas where a permit is not strictly required.

5.2 Long term Leasing Arrangements

The Australian Government has committed to ensuring secure land tenure arrangements are in place before making substantial investment in fixed assets like housing or other buildings or infrastructure on Indigenous-held land.  This policy has now been agreed to by all relevant State and Territory Governments through COAG National Partnership Agreements on Remote Indigenous Housing and Indigenous Remote Service Delivery.

Long term leases have been finalised or agreed to in 14 of the 16 the National Partnership Agreement on Remote Indigenous Housing (NPARIH) communities receiving major capital works. These include township leases for Wurrumiyanga (Nguiu) and the Groote Eylandt region communities (Angurugu, Milyakburra and Umbakumba). Housing precinct leases have been finalised for the communities of Gunbalanya, Galiwinku, Gapuwiyak, Maningrida, Milingimbi, Ngukurr and Wadeye. The communities of Hermannsburg, Lajamanu and Numbulwar have agreed in principle to a housing precinct lease.

Secure tenure arrangements are in place in all 18 Alice Springs town camps allocated to receive work under the NPARIH. The NPARIH housing and infrastructure work continues to progress across the town camps.

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6. Safe Communities

This Building Block involves improving family and community safety through law and justice responses, victim support, child protection and preventative approaches.  Addressing related factors such as alcohol and substance abuse will be critical to improving community safety, along with the improved health benefits.

The impact of violence and other crime comes at an enormous cost to families, and in particular women and children. Providing a safe and stable home environment for children is also a critical foundation for making inroads into areas like education, health and employment.  The Government has focused on a number of connected aspects to improve community safety, including increased child protection and support for families, addressing family violence, providing youth diversionary activities, increasing police numbers and facilities, providing legal services and addressing the impact of alcohol and drugs.

Monitoring and evaluation: Review of Policing in Remote Indigenous Communities in the Northern Territory

There have been two evaluations undertaken of Policing in Remote Indigenous Communities in the Northern Territory.¹⁵

In November 2009, the Commonwealth and Northern Territory Governments commissioned the Allen Consulting Group to undertake an Independent Review of Policing in Remote Indigenous Communities in the Northern Territory.¹⁶ The review was published in April 2010 and outlined a number of recommendations for future strategies for policing in the Northern Territory.

The review methodology involved a four pronged approach – community consultations, stakeholder consultations, a literature and desktop review of existing Australian and international ‘best practice’, and the development and application of modelling and analysis. This yielded both quantitative and qualitative data which was used to review the current level of policing, the anticipated future requirements for remote policing, and develop a framework to determine the resourcing levels required in future.

The review evaluated the current level of policing in remote communities including service delivery standards (measured by response times and levels of accessibility), the current strategies of delivery options (rapid response options, hub and spoke models and community based policing models), the current amount of cultural training and development available to police, the access to and capacity of specialist officers and cross-services support, and the resourcing levels required.

Included in the review was an evaluation of the current effectiveness of the Northern Territory Police Remote Service Delivery strategy in providing adequate coverage to remote communities (including the Themis stations), the current and future funding bases for remote policing in the NT, the role of community engagement in preventative policing activity, the cross service capabilities available in remote communities (including Mobile Child Protection Teams and psychologists), the effect of resident mobility in Indigenous communities and the future capacity of NT police to meet demands for policing over the next five years.

The key recommendations focus on developing remote community policing service standards that can be applied consistently across all communities, and include the development of standards for night patrols to complement NT policing. A system of monitoring and adherence to these standards is also proposed, as well as the development of a command structure career stream primarily based on small station operations in remote communities. The transition of the current Themis stations into permanent police stations, as well as the provision of overnight facilities to accommodate members during regular patrols to those communities that do not have a permanent police presence is also recommended. It is also proposed mobile police stations that can provide accommodation and operational facilities for police when there is a need to respond to a peak demand for a mobile policing presence that does not justify the high cost associated with permanency be introduced.

There were recommendations for an increase in recruitment and retention targets for female and Indigenous officers, and a locum pool of officers experienced in remote community policing be established to cover any staffing shortfalls. An increased focus on recruiting police that are suited to living and working in remote communities in the long-term would help improve community engagement and community policing outcomes.

The Northern Territory and Australian Government’s have established a Steering Committee to review and implement recommendations. The Northern Territory Police have made progress on recommendations in the areas of service standards, performance monitoring and accountability, training and development. In addition the establishment of a remote policing specialist career stream and command structure, cultural understanding, and the development of an Index of Need.

There is also significant work being done around technological solutions to improve communication systems for remote police officers that will result in a low cost way to increase effectiveness.

6.1 Police¹⁷

Key developments

• Police Presence: At 31 December 2010, there are 62 additional police deployed to remote communities.
• Upgrade: Five permanent police station upgrades have been funded; Maningrida, Gunbalanya, Ali Curung, Hermannsburg and Yuendumu.
• Overnight Facilities: Four overnight facilities have been installed at Titjikala, Milingimbi, Kaltukatjara (Docker River) and Umbakumba.
• Themis Stations: Eighteen Themis Stations are currently operational in communities.
• Over $50 million dollars has been allocated over three-years (from 2009-10 to 2011-12) to build five new, permanent police stations in the Northern Territory priority areas of Gapuwiyak, Ramingining, Yarralin, Arlparra and Imanpa. The Yarralin Police complex has been completed and was officially opened in April 2011.

Data Notes

The discussion and analysis in sections 6.1 to 6.4 is based on data supplied by the Northern Territory Police and the Northern Territory Department of Justice.

The data includes police involvement in incidents that did not result in offences. For example, responding to complaints or observations of behaviour that either did not involve offending behaviour or were dealt with by dispersing people or other responses that did not involve further police intervention.

The NTER was principally addressed to the safety and well-being of children. It is particularly difficult to collect and report outcomes for this objective; however, some data are available and are reported below. Of course, the short-term impact of the NTER may be to increase reported crime and it is important to ‘see through’ such a short-term effect. If people in the NTER areas are more able to report crimes, then in the long run this is likely to have a positive effect on community safety, as perpetrators will be more likely to be apprehended.

While data on assault and violent crime largely reflects crimes committed against adults, a general normalisation of violence is not good for children or adults and creates an environment in which crimes against children are more likely to occur.

There is significant evidence that violence is normalised in some remote Indigenous communities.¹⁸ Much violence remains unreported in official data and this needs to be kept in mind in interpreting the data provided below.

Sixty two additional police (compared to the number prior to the NTER) have been deployed. The additional police presence meant that the recording of all incidents across all categories rose, particularly in the 18 communities where Operation THEMIS is in place.

The data presented below and in previous Monitoring Reports indicate that there has been a large increase in incidents reported to police and conviction rates since the introduction of the NTER. However, the last Monitoring Report showed that reported crime incidents were stabilising for the January to June 2010 reporting period. This reporting period (the last six months of 2010) has shown a reduction in categories particularly those that relate to assault.

6.2 Alcohol, Drug and Substance Related Incidents

Incidents involving alcohol, substance abuse and drug related incidents continue to be of concern in the NTER communities. Table 6.1 below shows the number of incidents relating to alcohol, substance abuse or drugs over the past three calendar years.

The number of alcohol related incidents recorded by police across the NTER communities increased by 30% between 2008 and 2009, however, between 2009 and 2010 the number of alcohol related incidents decreased by almost 14%.

Drug related incidents increased by 21% between 2008 and 2009 and by 16% between 2009 and 2010 in the NTER communities. In Themis communities drug related incidents increased by 70% between 2008 and 2009 but decreased by 10% in 2010.

Substance abuse incidents increased by 10% between 2008 and 2009 and by 19% between 2009 and 2010. Over 60% of the increase in substance abuse related incidents from 2009 to 2010 occurred in the Themis Communities.

6.3 Domestic Violence Related incidents

There was a 43% increase in domestic violence incidents recorded by police from 2008 to 2009 across the NTER communities, however, there was a small decrease of 6% in incidents from 2009 to 2010.

A significant proportion of domestic violence incidents in the NTER communities are alcohol related (29% in 2010 and 27% in 2009). There were one and half times as many alcohol related domestic violence incidents reported in 2010 compared to 2008.

Confirmed breaches of Domestic Violence Orders remained steady between 2008 and 2009 but increased by 84% between 2009 and 2010 reflecting a similar increase in breaches of Other Orders.

6.4 Assault

Relative to population size there is a high level of assault across the NTER communities and the Northern Territory.

Excluding assaults related to or against children, and assaults that are domestic violence-related, the number of confirmed assault incidents reported to police across the NTER communities increased from 91 in 2008 to 142 in 2009 representing a 50% increase but then dropped to 97 in 2010 (Table 6.4). The number of confirmed aggravated assaults¹⁹ recorded by police in the NTER communities rose 15% from 302 in 2008 to 349 in 2009 but dropped 31% from 349 in 2009 to 240 in 2010. Most categories of personal harm report significant decreases in 2010.

A high proportion of confirmed assault incidents are alcohol related. For example in 2010, 37% of confirmed aggravated assault incidents were alcohol related. This has decreased from the previous year when it was 41%.

The table below shows that the number of assault cases lodged with the courts for offences in the prescribed communities increased 35% between 2007 and 2009 but decreased by 20% between 2009 and 2010.

This has been matched by similar fluctuations in the number of assault convictions for prescribed communities with a 29% increase between 2007 and 2009 and a decrease of 16% between 2009 and 2010. The conviction rate has remained steady from 2007 to 2010 with an initial drop of 9% in 2008 and a return to 69% in 2010. Over the same period, there was little change in the number of assault cases lodged in court for the rest of the Northern Territory. Between 2007 and 2010 the conviction rate for the rest of the Northern Territory increased from 1,271 to 1,465 representing an increase of 12 percentage points.

6.5 Restraining Orders

Applications for, and restraining orders granted have reported similar fluctuations between 2007 and 2010. Applications decreased by 4% in 2008, increased by 40% in 2009 and decreased by 10% in 2010. Restraining orders granted decreased by 13% in 2008, increased by 62% in 2009 and decreased by 9% in 2010.

Instances of sentencing for a breach of a restraining order in NTER communities increased by 4% between 2007 and 2010.

6.6 Sexual Assault

The Northern Territory Department of Justice have provided data on lodgements in court for sexual assault across the NTER communities and the non prescribed areas of the Northern Territory.

The number of lodgements in court for sexual assault offences in prescribed communities increased by 62% between 2007 and 2009 but decreased by 36% in 2010. In the rest of the Territory there was an increase of 18% between 2007 and 2009 followed by a decrease of 27% in 2010. The number of convictions for sexual assault in prescribed communities decreased from 18 in 2007 to 17 in 2010.

While Indigenous Australians are over-represented in lodgements in court and convictions for sexual assault it is important to note that most convictions in the Northern Territory relate to offences committed outside the NTER communities.

6.7 Child Sexual Assault

The number of convictions for child sexual assaults committed in the NTER communities in 2007 was 14. In 2008 it was 9, in 2009 it was 10 and in 2010 it was 11. The total number of child sexual assault convictions over 3 ½ years from 1 July 2007 to 31 December 2010 was 38, this compares to a total of 23 convictions in the 3 ½ years prior to the commencement of the NTER (that is from 1 January 2004 to 30 June 2007).

The conviction rate for child sexual abuse is likely to understate the actual level of abuse and it is misleading to view it in isolation.

6.8 Child Abuse

Issues of child welfare go well beyond sexual abuse, indeed, sexual abuse is a subset of behaviours that can have a lasting negative effect on children’s’ future. There is evidence that child neglect is a more common issue²⁰ than sexual assault in the NTER communities. This is confirmed by Northern Territory police data.

The data in Table 6.8 should be treated with some caution as they are based on the assessment of police – child protection authorities may reach a different conclusion.

The total number of reported incidents of child abuse in the NTER communities rose from 224 in 2008 to 269 in 2009 but decreased to 251 in 2010. The vast bulk of these reports across the NTER communities were accounted for by the category ‘child welfare’ (68% in 2010).

The category ‘child welfare’ relates to issues that would generally be considered to be child neglect. There has been a significant increase in the incidence of abuse relating to child welfare across the NTER communities, from 166 incidents in 2008 to 211 in 2009. However, in 2010 incidents dropped to 171, representing a 19% decrease from 2009.

6.8.1 Child Protection Data

Actual child protection data are not available at the NTER community level. However data for 2009-10 are available for Indigenous children across the whole Northern Territory.²¹

In 2009-2010, Indigenous children in the Northern Territory were almost seven times as likely as other children to be the subject of a substantiation of a notification of abuse and neglect.

In the Northern Territory all three of the main child protection indictors for Indigenous children have increased steadily between 2004-05 and 2009-10 (in terms of the rate per 1,000 children). These indicators include the number of children for whom notifications of neglect or abuse have been substantiated after investigation; the number of children who were under care and protection orders and the number of children in out of home care.

The biggest increase has occurred in the rate of substantiation of a notification, which has increased from 13.7 per 1,000 children in 2004-05 to 31.9 by 2009-10.

Substantiations for Indigenous children in the Northern Territory were most likely to reflect neglect (50.1%), followed by physical (20.7%), emotional abuse (21.2%) and sexual abuse (8%).

The increases in the rate at which Indigenous children in the NT are subject to care and protection orders and to out of homecare are more modest. This leads to even more modest increases in the relative greater risk faced by Indigenous children compared to non-Indigenous children in the Northern Territory. For instance, the relative greater risk of out of home care for Indigenous children increased from 2.9 times in 2004-05 to 3.7 times in 2009-10.

Some of the increases are due to legislative and policy changes affecting reporting mechanisms. For example amendments were made to Section 26 of the Care and Protection of Children Act on 20 August 2009 to change the reporting obligations regarding sexual offences involving children. Under the new provisions, registered health practitioners have an additional responsibility to report to the Department of Families and Children or the police if they believe on reasonable grounds that a child aged 14 or 15 years has been or is likely to be a victim of a sexual offence and the age difference between the child and the sexual offender is greater than 2 years.²²

Some of the increases are also likely due to the wider coverage and expansion of child protection services in the Northern Territory following the NTER. For instance, in the first year after the Intervention the rate of substantiation for Indigenous children in the NT increased from 16.8 per 1,000 to 23.7 (between 2006-07 and 2007-08). Such a big increase was not generally observed in the other jurisdictions. Similarly, the most recent report indicates another large increase in the rate of substantiation for Northern Territory Indigenous children (from 24.1 per 1,000 in 2008-09 to 31.9 in 2009-10) that is also not observed in the other jurisdictions.

6.9 Night Patrol Services

Night patrols assist people at risk of either causing harm or becoming the victims of harm in order to break the cycle of violence and crime in the communities. The service patrols local community areas, identifies people who may be at risk of coming into adverse contact with the criminal justice system and takes them to an appropriate place.

Key developments

During the period July to December 2010, the Australian government funded community night patrol service transported approximately:

• 359 people to a recognised safe place*; and
• 49,984 people, to a safe place including referral to other services (but not including to a recognised safe house)*.

*The Department continues to work with service providers to improve the accuracy of data collected by night patrols. This data is incomplete in some areas and does not include all activities of night patrol services.

Background

The Attorney-General's Department provides funding for night patrol services in 80 communities across the Northern Territory, including the 72 of the 73 NTER identified communities, urban Aboriginal living areas in Alice Springs, Tennant Creek and Katherine and other communities affected by the NTER.

Patrols are required to operate at least five nights per week with a minimum of two patrollers on duty at any one time. The night patrol program provides funding to employ more than 350 full time equivalent Indigenous positions, supporting Indigenous employment in the Northern Territory.

Progress

Patrols may periodically become inactive for short periods of time for a number of reasons including cultural or staffing issues.

The Attorney General’s Department continues to support the development and implementation of Memorandum of Understandings (MOUs) between their Service Providers delivering night patrol services and the Northern Territory Police. The focus more recently has been on the roll out of these MOUs at the community level to clarify the different roles and responsibilities of the local police officers and the night patrollers, to achieve a coordinated and complementary response to supporting safer community outcomes. The Department supports local community input into the development of the MOUs to ensure that they are responsive to community needs and encourages a partnership approach to community safety.

Challenges

The Attorney General's Department recognises the challenges associated with continuous improvement of the program. These challenges are evident through: the implementation of an improved performance and financial reporting framework; the focus work on increasing community awareness of the valuable role of patrols; and the building of capacity of patrollers and service providers to develop partnerships with other stakeholders.

Particular challenges exist in the collection of data and in the types of data to be collected, so that the effectiveness of night patrol services is visible. The Australian Institute of Criminology (AIC) were engaged to assist in the formation of a performance and monitoring framework involving an enhanced reporting model to support better data collection. The AIC final report is due shortly.

Looking forward

The Attorney General’s Department is introducing a standardised training program for night patrollers to ensure consistency in provision of the skills needed to effectively perform patrol duties and to enhance career path opportunities for Indigenous people working in night patrol and other community services.

The Department will focus on implementing the recommendations from the recently tabled Australian National Audit Office (ANAO) Performance Audit of the Northern Territory Night Patrols.

The findings in the report will assist in the future effective delivery of night patrols in the Northern Territory.²³

6.10 Safe Places

The main purpose of the Safe Places is to provide a safe place for men, women and children to go when fleeing family violence. A Safe Place can be either a Women’s Safe House or a Men’s Place.

Key Developments

Since April 2009 there have been a total of 1164 clients accessing the Safe Places. These clients include 42 men who accessed Men’s Places, 626 women who accessed Women’s Safe Houses and 496 children who accessed Women’s Safe Houses (accompanying women).

In the period from July to December 2010 a total of 253 clients accessed the Safe Places for crisis accommodation:

• 2 male clients in Men’s Places;
• 151 female clients in Women’s Safe Houses; and
• 100 children accompanying female clients in Women’s Safe Houses.

The majority of Men accessing Men’s Places participate in programs and access the Men’s Place for respite. These numbers are not included in client intakes.

• Since March 2010, 22 Safe Places have been fully operational (including utilities operating); and
• 15 remote communities had new or refurbished Safe Places.

Background

The Safe Places provide a number of functions which include:

• Short term crisis accommodation with some safety planning developed in the Safe Place;
• Group safety and well-being programs, which could include parenting programs, family violence prevention programs, behaviour change programs etc.; and
• Linkages and referrals to counselling, legal and support services.

The Family Support Package was announced in September 2007 as a direct response to recommendation 77B “increase the number of communities with safe house/places for women and children fleeing violence” contained in the “Little Children are Sacred” Report. The three elements of this package respond most directly to the Report’s overall theme of protecting Indigenous children. See table below for opening dates.

Various safe house models were explored to ensure the needs of all victims of family violence are met and that the resulting accommodation and accompanying services provide suitable care. A key feature of the package is to develop a coordinated Indigenous family violence management strategy for a number of Northern Territory communities based around existing services and infrastructure. Leveraging existing support services such as health facilities, schooling, police, and community service, thereby ensuring the elements of the package will provide for sustainable practices and service delivery.

The design of Safe Place complexes was chosen to achieve a balance between aesthetics and securing the safety of the families using them. Community projects to landscape and enhance the appearance of the Safe Place complexes commenced in 2008 and were completed in 2010.

Challenges

Staffing issues require a continuing investment, which is managed by working closely with communities, providing training (Certificate II Training in Community Services, and Certificate II Training in Family Wellbeing) and mentoring, implementing flexible working arrangements and ongoing recruitment.

Progress

As of March 2010 all 22 Safe Places in 15 remote and two urban communities were fully operational. The table below shows the communities where the Safe Places are located and the date they were opened.

In the reporting period, July to December 2010, there were on average 78 positions filled in remote Safe Places, and 77 of these were filled by local Indigenous people. Employing local Indigenous people assists in providing appropriate service delivery, helps to develop the local workforce and builds community capacity, understanding and acceptance.

Safe Place workers provide clients with a place of safety, initial counselling and support, information and referral to other services.

Safe Places generally are staffed by a mix of full time, part time and casual workers. Safe Place workers provide a 24 hour service, comprising daytime opening hours on weekdays and an on-call service overnight and on weekends. All staff members are people living in the community with a clear reputation for non-violence.

Approximately 75% of remote Safe Place workers at 31 December 2010 had held a position for six months or more.

Both Governments are working in partnership to establish Safe Places and deliver long term outcomes.

The Northern Territory Government manages the operations of Safe Places and reports to the Australian Government. The Northern Territory Government supervises the operations of Safe Places and during this period conducted 79 visits to remote Safe Places. Visits are part of a range of continuous improvement and support measures. During visits, the Northern Territory Government supports and assists the progress of Safe Place implementation, consults with community members and staff on a range of issues, liaises with local service providers as well as identifying any capital works requiring attention.

Looking ahead

Funding for Safe Places has been provided until 30 June 2012.

6.11 Mobile Child Protection Team

Investigating reports of child maltreatment and neglect, conducting assessments of children reported to be at risk or harm, and ensuring the safety of the child throughout remote and regional communities across the Northern Territory is the core business of the Mobile Child Protection Team (MCPT).

Key developments

• In the period July to December 2010, the MCPT visited 22 of 73 prescribed communities.
• In the same period, the MCPT was involved in investigating and providing follow up services in 492 matters. From these matters, no children were made subject to care orders.

Background

The Mobile Child Protection Team is a Darwin-based, Territory-wide service operating on a 2-week-out 1-2-weeks-in model whereby staff travel to regional NT Child Protection offices that have identified a need for extra Child Protection staff. 

The primary objective of the MCPT is to:

• Increase the capacity of the Northern Territory Child Protection system to respond to child protection matters, particularly Indigenous children in remote communities;
• Assist staff in local Child Protection offices across the NT with workload issues and case practice (utilising the knowledge and practice expertise of local staff to inform practice with the local people, culture and communities); and
• Build and nurture relationships with key stakeholders and services within the Northern Territory’s Child Protection system.

The MCPT endeavours to provide timely, high quality investigations into allegations of child abuse and neglect or protective concern/s about children and young people; assist Aboriginal families and communities to make decisions about the safety and care of their children; and to contribute to the development of a holistic and sustainable child protection and family support service system to meet the care and protection needs of Aboriginal children.

Essential to successful team operations and enhanced client outcomes is a collaborative case work approach with regional office staff. Regional offices hold expertise and knowledge of the intricacies of the region, the children and families of the area, and operational perspectives and practices of the office. Although it is not always possible for a range of reasons, MCPT best practice would be to complete investigations with a regional office staff member.

Progress

The MCPT have continued to assist the Northern Territory Families and Children (NTFC) Branch of the NT Department of Health and Families offices to respond to reports of children at risk of harm.

During the reporting period the MCPT have continued to cement relationships with key stakeholders through their regular presence at NTFC offices and within remote communities. The team’s regular presence has fostered a strong and collaborative working culture and an increased understanding of the role of the MCPT. Both these factors have been core components to achieving optimum outcomes for children and their families particularly within remote communities.

During the reporting period a permanent manager was appointed to MCPT. This appointment commenced 8 July 2010 but unfortunately the manager resigned for personal reasons and ceased work 5 November 2010. Recruitment for a replacement manager was set in place and it is envisaged that a new manager will commence in early 2011. Acting Senior Manager Top End Services has undertaken the role of MCPT manager in the interim.

The appointment of an acting Team Leader was made in November to facilitate efficient work processes with case allocation to team members, as well as being responsible for the supervision, training and development of a team of staff involved in the delivery of statutory welfare services management.

The Mobile Child Protection Team is distinctive in that it is the only one of its kind. Progress during the past six months has included an analysis and assessment of challenges that are unique to the mobile team. Strategies and solutions to these issues have been identified and are being implemented at the time of writing.

Challenges

The recruitment and retention of staff has been an ongoing challenge for MCPT.
The staff retention and recruitment difficulties are in the same context that NTFC at large continue to face. Towards the end of this period recruitment strategies were changed achieving a positive response. It is anticipated that the team will be fully staffed by early February 2011.

Looking ahead

Funding for the MCPT has been provided until 2012. The next twelve months provides an exciting opportunity for the mobile team to further embed itself within NTFC and build stronger relationships across the broader service systems to provide quality outcomes for children and families.

Monitoring and Evaluation

The MCPT is monitored by NTFC. Evaluations will occur on a yearly basis. Situation Reports are submitted monthly.

6.12 Remote Aboriginal Family and Community Workers

The Remote Aboriginal Family and Community Program (RAFCP) provides a responsive and culturally appropriate child protection service to Aboriginal families living in remote communities by employing, training and supporting local Aboriginal people to work as family workers in their own communities

Remote Aboriginal Family and Community Workers (RAFCW) are Aboriginal staff that live and work in their communities. They have language skills, established relationships and knowledge of the families and clan groups in their community and nearby communities. They have knowledge of Aboriginal culture and law. They are leaders in their communities.

RAFCWs are managed by their Team Leaders who are based in Alice Springs and Darwin. Team Leaders fly into communities to provide support and training to RAFCWs regularly. Staffing of the program consists of one manager, an administrative officer, five team leaders and 15 RAFCW staff in communities.

The RAFCP sits within Department of Children and Families (DCF) Regional Services Branch and has offices across the Territory. There are two regional offices one in Darwin and one in Alice Springs and 12 offices in remote Aboriginal communities.

The RAFCP is primarily staffed by Aboriginal people.

Key developments

• In the period July to December 2010 there were 123 referrals generated by individuals and families contacting the RAFCP for help for themselves, for other people and to report child protection concerns in their communities.
• In the same period there were 168 referrals from child protection staff for advice, information and assistance to engage and support clients and their families in communities. Many of these referrals were for ongoing family support to vulnerable and at risk children, young people and families.
• There were also 48 referrals from government and non-government services to the RAFCP. Referrals are received from services that reside in regional centres and have clients in the community; that reside in regional centres but deliver services in the community; and services that reside in the community. There were approximately 228 interactions between the RAFCP and these services.
• Total referrals for this period were 339.

Key responsibilities

The RAFCP works in partnership with DCF child protection staff, and remote services to provide early intervention to communities and to respond to safety issues as they arise within families and the community. They do this in a number of ways:

• By providing a place for children, young people and families to visit in their communities when they need help with the day to day issues that arise in families and in bringing up children;
• By providing a confidential place for children, young people and families to talk about and report concerns relating to the safety and wellbeing of children, young people and families in their community;
• By supporting clients and community people to contact mainstream services including DCF child protection staff, the police, education, housing, Centrelink, drug and alcohol services and other services for help and to advocate for them;
• By providing information and advice to child protection workers to plan interventions, make assessments and respond quicker to safety issues as they arise in the community;
• By case managing clients and their families to provide day to day support;
• By aiding child protection workers and staff from other services to meet with clients and their family to discuss and formulate a plan to address safety issues;
• By working with the police, night patrols, safe places, women’s centres, health clinics, schools, youth centres, sexual assault services, housing, Centrelink and other relevant services to plan interventions, engage and support shared clients and respond to broader community safety issues;
• By delivering and co-facilitating information sessions and programs to DCF clients and the broader community;
• Sitting on interagency reference groups and Aboriginal community meetings; and
• Assisting DCF case managers to talk to clients about the benefits of income management.

Progress

The RAFCP is based in 12 remote communities and operational in 32 communities, not including outstations. There are 15 RAFCW staff.

Five RAFCW staff from the communities of Oenpelli, Borroloola, Nguiu, Kalkarindji, Ntaria and two Aboriginal Team Leaders are enrolled in the Diploma of Child, Youth and Family Intervention and will graduate in May 2011.

RAFCWs provide outreach services and support to nearby communities that share the same language and family connections. The following table provides information on where the RAFCP is based and where it is operational through outreach services.

Service activity indicates:

• That children, young people and families are accessing the program for help as safety issues arise;
• That DCF child protection teams are utilising the RAFCWs to respond to safety issues and strengthen families in remote communities;
• That RAFCWs are working with relevant services with specific families to improve child safety and family capacity to protect and raise children; and
• Aboriginal staff are taking leadership in their communities to address child safety issues and strengthen families.

Looking ahead

In 2011 the RAFCP will increase staffing in existing communities, strengthening DCFs capacity to respond to community needs. In addition it will:

• Establish the program in more remote Aboriginal communities across the Northern Territory;
• Explore career pathway options for remote staff that are performing at a higher level with a view to creating more senior positions in remote communities; and
• Support and encourage all RAFCW staff to enrol in Diploma level courses to enhance their skills, capacity and employment opportunities.

Monitoring and Evaluation

Evaluations occur on an annual basis.

6.13 Legal Services

Key developments

• Between 1 July and 31 December 2010 legal service providers handled approximately 2,761 NTER related matters, comprising 839 advices, 260 duty matters and 1,528 cases.
• Legal service providers undertook 134 outreach visits to communities.

Progress

Statistics are drawn from the Northern Territory Legal Aid Commission, the Katherine Women’s Information and Legal Service, the Top End Women’s Legal Service, the North Australian Aboriginal Justice Agency (NAAJA) and the Central Australian Aboriginal Legal Aid Service (CAALAS).

Providers report that increased demand for legal services can be attributed directly to increased policing, and that this is expected to continue, particularly while there is a strategic targeting of family violence and sexual offenders.

Welfare outreach and community legal education have assisted a large number of clients, particularly women. Centrelink issues around income management and debts, understanding consumer credit and debts, tenancy issues basic services within the communities and alcohol restrictions are the most common issues.

Service providers work closely with State and Commonwealth government agencies and have made a number of submissions to Government including the NTER Review Board. They continue to lobby for changes to NTER legislation.

6.14 Alcohol Restrictions

The Little Children Are Sacred report said that alcohol abuse was ‘destroying communities’ and was the ‘gravest and fastest growing threat to the safety of children’.

The alcohol reform agenda is a significant cornerstone in both the NTER and Closing the Gap in the Northern Territory National Partnership Agreement (CtG NT NPA) in order to protect children, make communities safe and create a better future for Aboriginal people in the Northern Territory.

Under the NTER, new laws were introduced to ban drinking, possessing, supplying or transporting liquor into a prescribed area. On the basis of the existing evidence and the views put forward in the NTER redesign consultations, the Australian Government believes that alcohol restrictions should continue, but that there should be a change of focus from a universally imposed measure to a measure designed to meet the individual needs of specific communities. These community variations will be based on careful analysis of evidence about each community’s circumstances and will be implemented in consultation with the community. Moving to local restrictions will be based on evidence about such matters as the level of alcohol-related harm in a community and whether a community based Alcohol Management Plan (AMP) is in place.

Key developments

• FaHCSIA monitors requests for liquor licence variations and is consulted on these applications.
• FaHCSIA have processed applications from various interests including; the Northern Territory Government seeking a declaration to permit alcohol consumption in Northern Territory Parks and from particular tourism and enterprise operations.
• FaHCSIA has committed significant funding on a number of supply control initiatives, in particular the recovery of liquor licences in Alice Springs. Currently, the Northern Territory Government is in negotiations for the buy-back of three take-away liquor licences in Alice Springs.
• Significant investment has also been applied to support alcohol harm related programs in the Darwin region, targeting young people, community education and family support. In addition, funding has been provided to support the Safe and Sober program in Alice Springs auspiced by Central Australian Aboriginal Congress.
• Funding has also been applied to build on the evidence base in this area of work. This includes funding for research on drinking camps completed by the Menzies School of Health Research, and a longitudinal study on the correlation between price, patterns of consumption and related harm in the Alice Springs region, being undertaken by Curtin University.
• The Northern Territory Government has also introduced legislation to reduce access to alcohol, including the extension of ‘dry’ areas, in some regional centres.

6.15 Alcohol Management Plans

Key developments

• Alcohol Management Plans (AMPs) are in place in Alice Springs, Tennant Creek, Palmerston and Katherine.
• The communities of Katherine and Tennant Creek are working to build on their existing AMPs.
• A liquor supply plan is in place in Groote Eylandt.
• Alcohol Management Plans are being developed and negotiated in; Borroloola, Elliott, Beswick, Barunga, Jilkminggan, Eva Valley (Manyallaluk), Wurrumiyanga (formerly Nguiu), Milikapiti, Pirlangimpi, Wurankuwu (Ranku), Binjari, Maningrida, Gunbalanya, Angurugu, Umbakumba, Ngukurr, Kybrook Farm, Hermannsburg, Laramba, Ali Curung, Titjikala and specific clusters of Alice Springs town camps.
• FaHCSIA has funded a number of programs to address alcohol related harm in Darwin. These programs are targeted at prevention, early intervention and harm minimisation, including ensuring that ‘at risk’ individuals are referred to specialised services and appropriate aftercare. Additionally, funds were provided to expand the Safe and Sober program in Alice Springs which provides ambulatory case management and care coordination for clients with drug and alcohol problems.
• FaHCSIA has provided the NT Department of Justice (NT DoJ) with funding to:

Undertake supplementary activities to reduce alcohol harm. This includes building the evidence base around addressing alcohol related harm. An alcohol data unit was established in the NT DoJ and research projects on best practice social club models, and an evaluation of the East Arnhem AMP are being undertaken. Additionally, a report on drinking camps in the Katherine area was completed; and

Run demand reduction programs, these include: broad scale and targeted community education and awareness programs, a community education awareness campaign on unsafe drinking practices for Alice Springs, and a health promotion film on binge drinking in Groote Eylandt. Additionally, accredited training on alcohol and family violence has been provided to community members of Binjari and Borroloola to support harm minimisation.

• FaHCSIA has committed funding to the NT DoJ to support the expansion of the electronic point of sale identification system to underpin the banned drinkers register. This initiative will be a significant step in monitoring the supply of alcohol in general and in restricting the supply to problem drinkers.
• Funding has been provided to the NT Department of Chief Minister for the buy-back of three take-away liquor licences in Alice Springs. The Northern Territory Government is in negotiations for the licence buy-back.

Background

Alcohol Management Plans (AMPs) assist communities in addressing the harm caused by excessive alcohol consumption through supply reduction, demand reduction and harm minimization. A number of communities have already successfully negotiated and implemented AMPs.

Looking forward

As a long-term aim, the Australian Government will be supporting the Northern Territory Government to increase the number of communities with AMPs.

6.16 Audit of publicly funded computers

This measure aims to protect Aboriginal women and children in remote Northern Territory communities from inadvertent exposure to prohibited and/or violent material on publicly funded computers.

Those responsible for publicly funded computers located in NTER prescribed areas are required to install filters, maintain usage logs and have a user policy in place. Responsible persons are also obliged to ensure an audit is undertaken twice per year and a signed declaration form is returned with the audit.

Key developments

• Investment in new educational materials to inform the value of undertaking audits has resulted in a response rate of 70% being achieved in the November 2010 audit.
• Of the organisations that responded in the November 2010 audit, 63% were fully compliant with requirements in the NTER Act 2007.
• A process was developed for the November 2010 audit to allow the auditing of the Shire Citrix Server, (which encompasses 55 of the 60 Shire sites) instead of auditing individual computers.

Background

The first audit of publicly funded computers in the Northern Territory took place on 2 June 2008. Since then there have been five audits undertaken; November 2008, May 2009, November 2009, May 2010 and November 2010.

Progress

In the lead up to the May 2010 audit, an education program was launched to improve understanding and enhance compliance. Promotional materials including storyboards, booklets, mouse pads and posters were developed and issued to organisations with the audit packs. The communication materials were well received and compliance rates increased from 41% in the November 2009 audit, to 73% in the May 2010 audit.

Booklets and posters developed for the May 2010 audit were again distributed to participating organisations in the November 2010 audit. The material informed organisations of their obligations to undertake the audit and the benefits associated with doing so.

6.17 Substance Abuse Intelligence Desk and Dog Operations Unit

The Substance Abuse Intelligence Desks (SAIDs) coordinate a multi-jurisdictional partnership involving police in the Northern Territory, South Australia and Western Australia, to reduce the supply of licit and illicit substance in the Ngaanyatjarra, Pitjantjatjara and Yankunytjatjara Lands, the Top End and Central Australia. The SAIDs act as focal points for collating intelligence and coordinating policing activities, principally in detecting and disrupting drugs, petrol, solvents, kava and alcohol.

Background

The SAIDs and Dog Operation Units (DOUs) are involved in targeting the trafficking of licit and illicit substances in the cross-border regions of the Northern Territory, South Australia and Western Australia and also in the Top End.

The role of the SAIDs is to:

• Gather intelligence on suppliers and criminal networks;
• Coordinate policing operations in the cross-border region of NT, SA and WA as well as the Top End, targeting traffickers of drugs, alcohol, petrol, kava and other illicit substances;
• Conduct covert and overt enforcement and disruption activities;
• Work with partner agencies including health, youth workers, women’s councils and communities to inform them about the role of the SAID and the dangers of alcohol and substance abuse;
• Promote the Indigenous Family Safety Agenda and youth initiatives; and
• Pursue traffickers under the Proceeds of Crime Act 2002 to strip them of their money and assets.

The FaHCSIA funding specific to the SAIDs and DOUs has allowed the Northern Territory, South Australian and Western Australian Police to develop a greater proactive targeted approach specific to the various forms of substance abuse that are prevalent in remote areas. 

The successes of the SAID and DOU are as a result of high profile enforcement activities in areas that have been identified by SAID intelligence analysis as being known ‘hotspots’ for the trafficking or use of certain illicit substances.  It is not necessarily the case that there has been an increase in the amount of illicit substances and alcohol in remote areas, but that the Police have a greater capacity, including SAIDs/DOUs to identify, manage and target offenders, resulting in significant seizures of illicit substances.  See Table 6.13 for a comparision between outcomes this reporting period and last reporting period.

The SAIDs and the DOUs have developed an extensive intelligence network throughout the cross-border region and beyond.  This network did not exist prior to SAID and now allows for comprehensive information/intelligence sharing across remote areas.  The network also allows officers to work efficiently and proactively in remote areas which would not otherwise be so extensively serviced with such capability particularly in the cross-border region.

The NT Police have been able to provide more Drug Dog handlers and Drug Detection Dogs (DDD) on the front line. This has allowed for greater coverage throughout the Northern Territory.  As the DDD’s have experienced many different work environments, their detection parameters have increased, facilitating Police capacity to locate different types of concealed illegal substances, including cannabis, methamphetamine and kava. The DOU teams are able to target areas such as freight, airlines, passengers, vehicles and all modes of transport.

With the commencement of operations of the Katherine SAID and DOU in early 2009, there has been a significant reduction in the Top End of trafficking in illicit substances, especially kava and cannabis. This has supplemented the activities of the NT Remote Community Drug Desk that was already having an impact across Arnhem Land communities.  The existence of a well resourced SAID and DOU operating from Katherine has greatly enhanced this impact.

The effectiveness of the SAIDs and DOUs has contributed to key outcomes under the National Partnership Agreement (NPA) and to the Closing the Gap agenda. There has been an outstanding level of cooperation between the State/Territory police and the Australian Government. 

Cross-border Justice Scheme and Operations:

The success of the Cross-border project is based on collaborative high level arrangements that have been established between the Northern Territory, South Australian and Western Australian Governments and the subsequent flow on effect.  On a law enforcement level, there is an excellent working relationship between Police management as well as front line Police in the cross-border region.  This includes the ongoing development of operational networks that lead to active and reciprocal information/intelligence sharing at both the strategic and operational levels as well as joint cross-border policing initiatives such as road safety campaigns and targeted drug operations.

Such operational activities can now be conducted without the jurisdictional constraints that may have previously hampered these types of policing activities.

Consequently, there have been a number of persons put before the new Cross Border Court system throughout the region, and the success of this new element of targeted drug operations is now being realised.  Utilising the new legislation to enact this important element of the criminal justice system is in its infancy, but is developing rapidly through high levels of collaboration which complement the efforts of law enforcement in protecting people living in the cross-border region.

The cross-border Justice Scheme is a cross-jurisdictional initiative to counter the effects of inconsistent legislation and policing practices. It is a cooperative arrangement between the Australian, Northern Territory, South Australian and Western Australian governments which allows officials in the cross-border region to deal with offenders from any one of the participating jurisdictions.

State and Territory legislation relating to this agreement has been passed by all three jurisdictions.  The Government is also pursuing amendments to the Service and Execution of Process Act 1992 to support the effective operation of the cross-border justice scheme. There is a Service Level Agreement between each Police Commissioner to deal with day to day operational issues. 

Progress

There are currently three SAIDs located in Alice Springs and Katherine in the NT and Marla in SA. The Alice Springs SAID commenced operations in January 2006, Katherine in February 2009 and Marla in July 2009.

There are three Dog Operation Units which are based in Alice Springs, Katherine and Darwin (covering air and sea ports).

Table 6.10, Table 6.11 and Table 6.12 show the current staffing level for the SAIDs and the DOUs. All employees are sworn NT police officers, with the exception of the SAID administration officer based in Darwin.

Outcomes

The SAIDs and DOUs achieved the following outcomes between July and December 2010.

6.18 Northern Territory Aboriginal Interpreter Services (NTAIS)

The Australian Government through the Attorney-General’s Department provides additional support to the Northern Territory Aboriginal Interpreter Service (NTAIS) in recognition of the increased demand on its services as a result of the Northern Territory Emergency Response (NTER). Funding supports the delivery of interpreter services relating to law and justice matters, and provides free access to interpreters when Indigenous clients visit legal assistance service providers to assist them in understanding their rights and obligations.

Key developments

In the period 1 July to 31 December 2010, for the Northern Territory Aboriginal Interpreter Service (NTAIS):

• 3,439 people sought access to an Aboriginal interpreter; and
• 2,049 trained Interpreters delivered interpreting sessions during this time period. However, as mentioned under ‘Challenges’ below, it is difficult to confirm the proportion of these which are only NTER-related matters.

Progress

There has been an increase of 9.6% in the number of requests for interpreters in this six monthly period, compared to the previous six monthly period.

NTAIS continued to focus on training and professional development for interpreters to address recruitment and retention issues. Training packages have been developed and specialised training provided to interpreters to support the complexity of the work within courts, hospitals and remote housing.

Challenges

NTAIS continues to face difficulties with recruitment and retention of interpreters with literacy and numeracy skills being one of the key barriers. This has particularly impacted the increased need for accredited interpreters for legal proceedings. Specialised legal training is helping to address part of this issue.

Data collection has recently been identified as a challenge for NTAIS, in particular identifying NTER related activities. The Department will work with NTAIS to address these challenges and improve reporting outcomes.

Looking forward

NTAIS will continue to focus on increased levels of service delivery with priorities around training, professional development, recruitment and retention of interpreters. Further challenges more recently identified include the need for training of the appropriate use of interpreters, by the people that use them. Similarly, it is of equal importance to raise awareness of the importance of engaging Indigenous interpreters to ensure access to justice for Indigenous Australians.

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7. Governance and Leadership

This Building Block seeks to promote effective governance arrangements in communities and organisations, as well as strong engagement by governments to promote long term sustainability.  Indigenous people need to be engaged in the development of reforms that will impact on them.  Improved access to capacity building in governance and leadership is needed in order for Indigenous people to play a greater role in exercising their rights and responsibilities as citizens.

7.1 Government Business Managers

Key developments

• As at 31 December 2010, there are up to 56 Government Business Managers (GBMs) servicing 73 prescribed communities as well as Borroloola and town camps in Darwin, Alice Springs, Tennant Creek, Elliott and Katherine. Some GBMs service more than one community due to community size and proximity.
• Several regional workshops were successfully held during the period.
• GBMs and (Indigenous Engagement Officers (IEOs) continued to engage local people on proposed changes to the NTER following extensive community consultations with communities during the previous reporting period.
• GBMs and IEOs facilitated community engagement around a range of initiatives including the development of Alcohol Management Plans and input into the Independent Review of Policing in Remote Indigenous Communities, and have supported and facilitated visits by Community Stores staff.
• GBMs and IEOs provide a central point of contact and coordination for Australian Government agencies on an on-going basis.

Background

GBMs work with the FaHCSIA Northern Territory State Office, Indigenous Coordination Centres, Northern Territory Government and other Australian Government agencies to facilitate community engagement and to provide intelligence to relevant stakeholders on remote service delivery issues. They provide the central point of contact for a range of stakeholders. GBMs are managed and supported by Regional Directors in Alice Springs and Darwin.

GBMs provide support for, staff from across government agencies, at both the Commonwealth and Territory level.

The GBMs’ role is to develop a detailed understanding of the community in which they work, service delivery and funding arrangements, and to work with all relevant agencies in order to assist in improving service delivery. GBMs live in and work in communities, to facilitate the coordination of government services and provide intelligence to agencies on local issues and concerns.

7.2 Northern Territory Indigenous Interpreters

Key developments

Between 1 July and 31 December 2010:

• The Northern Territory Aboriginal Interpreter Service (NTAIS) provided interpreters for 91% of community meetings held about changes to the NTER; and
• Approximately 253 interpreters provided interpreting services in the NTER communities.

Background

In January 2009, FaHCSIA signed a Memorandum of Understanding (MoU) with the Northern Territory Department of Local Government and Housing (now called the Department of Housing, Local Government and Regional Services) to improve communication between government and Indigenous people in the Northern Territory.

Under the MoU, the NTAIS was funded to develop specialist training for Indigenous interpreters on various government initiatives, design and implement a strategy for raising awareness of the importance of interpreting services, and employ interpreters and community liaison/mentor officers.

Building on this initiative, Schedule D in the CtG NT NPA provides $8.085 million from July 2009 to June 2012. This funding assists NTAIS to strengthen interpreter services across the NT, enhancing engagement between Indigenous communities, government agencies, and non-government agencies.

Progress

For the period July to December 2010, eight community liaison/ mentor officers were in place in NTER communities to recruit and support the Community Based Interpreters (CBIs). The CBI positions are an opportunity for local interpreters to take up part or full time employment with career development support from the community liaison/ mentor officers. At the time of reporting, 16 CBIs (10 full-time equivalent) were employed. The community liaison/ mentor officers actively promote interpreting as a career path for local people.

Indigenous interpreters played a key role in major government initiatives during this reporting period. In particular, the use of interpreters at community meetings held between July to August 2010 on changes to the NTER empowered people to ask questions and make comments in their own language. The interpreter role was integral to creating an atmosphere of inclusion and meaningful engagement.

Further, interpreters were engaged by Centrelink Remote Servicing Teams during their visits to communities in relation to the New Income Management (NIM) rollout. These visits followed on from the NTER meetings which had included a briefing on the NIM arrangements.

The NTAIS are developing a comprehensive ‘Introduction to Interpreting’ training package for new interpreters.

NTAIS promotional activity for the period includes the distribution of the ‘Talking Posters’ which promote the use of interpreters, and the development and launch of an Interpreter User DVD.

Challenges

NTAIS has identified challenges they are working through including:

• The pool of interpreters needs strengthening as the demand for interpreter services increases;
• Many people who would be confident interpreters are already employed in other jobs; and
• Individuals previously employed as interpreters have taken up other employment.

Looking forward

Targets for the 2010-2011 financial year include:

• The employment of additional community liaison/ mentor officers to bring the total to 11;
• The employment of additional full-time (or equivalent) interpreters to bring the total to 22;
• Development and delivery of professional training for interpreters, including training on Commonwealth initiatives, as requested; and
• Accreditation of additional interpreters to be completed.

7.3 Community Engagement

Key developments

• As at 31 December 2010 there were 14 Indigenous Engagement Officers (IEOs) in the 15 Remote Service Delivery (RSD) sites and 9 IEOs in the 14 Closing the Gap communities in the Northern Territory.
• A successful national IEO workshop was held in Canberra in November 2010.

Background

The 2009-10 Engagement and Resetting the Relationship Budget measure provided funding for the employment of up to 15 Indigenous Engagement Officer (IEO) positions throughout the Northern Territory, together with funding through the COAG National Partnership on Remote Service Delivery for an additional 15 IEO positions in the Northern Territory.  As of 31 December 2010 there were 23 IEOs with recruitment underway for an additional 7 positions.  

The IEOs act as a conduit between communities and government, promote their community’s role in defining needs, setting goals, and formulating policies and plans, and work with community members to bring about greater community input into government decision-making. 

Training & Development

An Indigenous community engagement training program was developed in partnership with Charles Darwin University. This training was designed using participatory action research methodologies and was successfully delivered to IEOs between January and June 2009.  Since then, IEOs have participated in regular national workshopls and some attended workshops with Government Business Managers. Further training through Charles Darwin University focussing on community engagement and capacity building was delivered in the first half of 2011.

Looking forward

The measure has successfully created local employment opportunities and has helped to forge better community-government relationships. The IEOs provide weekly reports and other valuable information about their communities to government, and the communities in return have gained a better understanding of government initiatives. 

Resetting the Relationship with Indigenous Australians

The government has committed to Closing the Gap in Indigenous disadvantage and improving the wellbeing of Indigenous Australians by building capacity to participate economically and socially and to manage life-transitions through increased engagement, coordinated whole of government policy advice and targeted support services.

Participants from some Closing the Gap communities have attended National Indigenous Leadership Workshops where the focus has been on including participants from RSD sites.  Another 13 leadership/community governance workshops have been held in and for RSD communities in the Northern Territory for 248 participants.

Several other Indigenous Leadership and Governance projects were funded through the NT State Office.

7.4 Commonwealth Ombudsman Support

The Commonwealth Ombudsman’s office is the primary avenue of independent oversight of many Australian Government Indigenous programs. The office conducts outreach visits to NT communities to provide Indigenous Australians with an accessible, independent complaints mechanism. Through this presence in the communities and the complaints received, the office is uniquely placed to also provide information to the responsible agencies about the impact of their programs on the ground. The office is also well placed to assess the effectiveness of multi-jurisdictional and cross-agency working arrangements. The feedback provided enables agencies to adjust and refine their processes and thereby improve the quality of government programs and services.

This reporting period the Ombudusman’s Report includes feedback on housing, new income management and issues associated with accountability of policy and funding agencies for services delivered and the administration of funding agreements with remote Indigenous organisations.

The Ombudsman also conducted an investigation into the use of Indigenous language interpreters during government communication in the Northern Territory which is published on their website.²⁴

The Commonwealth Ombudsman’s Report for July-December 2010 is attached as Appendix B.

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Appendix A - Youth in Communities Project Information

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Appendix B - Commonwealth Ombudsman’s Report

Monitoring Closing the Gap Programs in the Northern Territory
July – December 2010

The Ombudsman’s office has a dedicated Indigenous Unit responsible for providing independent oversight of many Australian Government Indigenous programs in the Northern Territory (NT). Drawing on complaint investigations, information obtained during outreach to Indigenous communities and engagement with a range of stakeholders, the Ombudsman provides feedback to agencies about problems identified in program administration, service delivery issues and the effectiveness of governments working together to achieve outcomes. The Ombudsman also achieves remedies for Indigenous Australians who have individual complaints and problems.

Ombudsman feedback during reporting period

Housing

The Ombudsman has reported in the previous two monitoring reports, and in various other forums, that housing programs and related service delivery are key concerns for people and significant sources of complaints to this office. This remains the case for this period.

Although the Ombudsman’s focus is predominantly on those communities subject to five year leases under s 31 of the Northern Territory National Emergency Response Act 2007, the issues identified in those areas have broader application across the NT. The Ombudsman recognises the difficulties faced by the Commonwealth, Territory and local government departments working in partnership to deliver such large scale housing reforms in the NT. Notwithstanding these challenges, the Ombudsman’s complaint investigations and observations, as well as community and stakeholder feedback, provide an avenue for agencies to be alerted to problems and areas for improvement.

Feedback provided to FaCHSIA in the reporting period has included:

• Payment of rent by remote housing customers who are not subject to Income Management (IM) or who have been exempted from IM – we became aware that with the changes to IM in July 2010, remote housing customers who exited from IM did not have a mechanism by which they could pay their rent. The rent deduction scheme in place for urban housing customers had not been amended to accommodate remote housing customers. This means that remote housing tenants cannot easily pay their rent through Centrepay or third party transfers via Centrelink. It was further evident that some tenants had not been given clear information about their payment options and others were informed that voluntary IM would enable them to easily pay their rent.
• Agencies involved advised that remote customers could pay their rent via direct debit from their bank account or through cash payments to the shire. However, we reiterated that remote customers cannot easily access their banking institutions to make those arrangements and further, as we understood it, the shires did not have adequate systems in place to take cash payments. The agencies involved identified the need for the system to be changed and are taking steps to address the problem. While this issue is being resolved a large number of remote housing tenants have been unable to pay rent and are subsequently concerned about the arrangements, including rent arrears arrangements. We have provided feedback to FaHCSIA about this issue and will continue to monitor the progress.
• Strategic Indigenous Housing and Infrastructure Program (SIHIP) – complaints have continued to highlight concerns about the quality of information and communication by the Government about various aspects of SIHIP. Our feedback has reiterated the need for agencies to have adequate local mechanisms in place for people to access information and obtain assistance with problems as they arise. Often the investigation of a complaint by this office is the only avenue by which a person can access the level of information they require to either understand the housing reforms, navigate their way through the system to get action on a particular issue (such as unfinished SIHIP work, SIHIP inclusions, timings or arrangements for transition housing) or find out how to report a matter or obtain information locally.
• It has also become evident that the lack of detailed information about SIHIP allocations for each community, especially the lack of information about the need to deduct administrative and other costs from each allocation, has led to unrealistic expectations as to the amount of money that would be spent on each house. Consequently, as SIHIP has been finalised in each community we have received complaints that more should have been done for the money that was allocated.
• Remote Rental Framework – we consistently hear concerns from people about their difficulty understanding how rent has been calculated and their responsibilities under the new tenancy agreements. Feedback has focused on the need to use interpreters when discussing these matters with people and when signing key documents, having clear local mechanisms and complaint processes in place for people to raise concerns and looking for repeated and varied opportunities and methods to provide information about the changes to those affected.
• Repairs and maintenance problems – complaint investigations and feedback to FaHCSIA has focused on the need for clarification to be given to community residents about the process and response time standards for repairs and maintenance. We have fed back to agencies that adequate systems for recording and tracking repairs and maintenance requests will assist to address some of the current concerns people raise with us, as will the establishment of local escalation and complaint avenues.

Delay in payment of rent in compensation for statutory five year lease communities

Also on our radar is the Commonwealth’s payment of rent in compensation for the 64 statutory five year lease communities. We understand that although money has been paid to the Land Councils for some communities for distribution to traditional owners, in the majority of cases this money has not actually been passed onto to those traditional owners by the Land Councils to date. We understand that the delay in Land Councils releasing payment to the traditional owners is the result of those land councils disagreeing with the amount paid by FaHCSIA. Prior to this monitoring report being released, this office sought advice from FaHCSIA about its plans to address this problem and ensure that payments are provided to traditional owners and not further delayed.

New Income Management

A new model of IM was introduced in the NT in mid 2010. The new model focuses more on the circumstances of individuals and their payments rather than a person’s residence in a prescribed community as per the NTER.

Since the commencement of IM in 2007, this office has received a steady stream of complaints relating to the provision of information to IM customers by Centrelink. Complaint issues have included:

• the need for a greater use of interpreters by Centrelink when explaining and discussing IM with customers
• confusing or inadequate information provided in Centrelink letters
• difficulty in understanding IM Account Statements
• difficulties in accessing balances, transferring funds and changing allocations, and concern that this stemmed from inadequate information about these processes.

Given this common source of feedback, this office conducted some observations of Centrelink’s rollout of new IM in order to get a better understanding of the process and discussions by Centrelink with new IM customers. These observations and other information provided to this office culminated in feedback being provided to Centrelink and FaHCSIA which focused on:

• Centrelink ensuring that complete and accurate information relevant to the individual customer is provided by its officers
• the need for agencies to seek feedback from communities relating to the effectiveness of information delivered at community information sessions
• consistency and quality of information provided to customers.

The Ombudsman has also decided to conduct an investigation into Centrelink’s decision making surrounding new IM. The investigation will focus on Centrelink’s decision-making, reasons and communication about decisions to:

1. place people on IM on the basis that they are vulnerable welfare payment recipients, and
2. refuse to exempt people with dependent children from IM on the basis that they do not pass the financial vulnerability test.

Accountability of policy and funding agencies for services delivered

The Ombudsman has reiterated the need for policy and funding agencies to take responsibility for service delivery outcomes and not just the development of the underpinning policy. Increasingly, the delivery of services is being devolved to contracted service providers, State or Territory governments and other third parties. These arrangements may be on behalf of, or in partnership with, the Commonwealth. Under such arrangements, Commonwealth agencies need to take greater responsibility for ensuring the effectiveness of those arrangements and that policy objectives are being achieved. Agencies need to have appropriate mechanisms in place to:

• monitor outcomes;
• support effective integration between the policy makers and those delivering the services and
• identify and address problems arising in the delivery of services.

The Ombudsman has also reiterated that complaints provide a valuable window into problems and that by adopting a positive and responsive approach to complaints, agencies will be better placed to identify shortcomings and look for systemic issues, lessons and opportunities for broader improvement. Ultimately, proactive engagement with complaints can only improve program outcomes.

Reports

The Ombudsman released a public report into the administration of funding agreements with regional and remote Indigenous organisations. This report arose out of an individual complaint investigation and culminated in five principles which the Ombudsman recommends agencies should consider when managing funding agreements with remote Indigenous organisations. The full report is available at: http://www.ombudsman.gov.au/files/office_for_the_arts_dpmc_admin_of_funding_agreements.pdf

The Ombudsman conducted an own motion investigation into the use of Indigenous language interpreters during government communication in the NT. This investigation found that agencies and their service providers can do more to use interpreters when delivering services to Indigenous people and communities. The report also highlights opportunities to improve staff awareness about working with Indigenous language interpreters and remove some of the barriers to the recruitment and retention of Indigenous interpreters. This report will be released publicly shortly. Once released, a copy of the report will be located on our website.

During this reporting period, we published a report following an investigation into a failure to provide review rights to the Social Security Appeals Tribunal and the Administrative Appeals Tribunal for individuals subject to IM in the NT. The full report is available at: http://www.ombudsman.gov.au/files/FaHCSIA-Centrelink_Review-rights-income-managed-people-NT.pdf

Remedies achieved for individuals

Complaints investigated by the Ombudsman’s Office have resulted in a variety of remedies being achieved for Indigenous Australians in the NT. Remedies have included:

• agencies agreeing to meet with individuals or communities to better explain a policy, service or decision
• agencies reconsidering or reviewing a decision or action taken in respect of a social security payment, housing or community service
• agencies expediting and resolving matters where a problem or delay was identified.

The following three case studies provide examples of the types of remedies achieved by this office for individuals in the reporting period:

Advance payment delay identified and paid – Mr A

During outreach to a remote community in the NT, we received a complaint from Mr A that he had not received payment of a $700 advance which Centrelink had approved. This office investigated this complaint and identified that the approval and processing of the advanced payment coincided with Mr A’s exit from Income Management (IM). Mr A maintained that the advance had not been paid into his bank account.

We ascertained that Mr A had met with a Centrelink officer on 22 September and requested the advance. The Centrelink officer approved and processed the advance and it was paid into Mr A’s IM account that day.

After those transactions, and in accordance with IM changes, the Centrelink officer then exited Mr A from IM. As a result, Mr A was exited from IM but the advance balance remained in his IM account. Mr A was not aware that his advance was in his IM account as he had expected it to be paid into his bank account.

We were initially informed that when a customer exits from IM, Centrelink can only disperse money remaining in an IM account in $200 lots. Despite this, at the time of the complaint, Mr A had not received a $200 instalment. Furthermore, he had also commenced repayment of the advance via deductions from his social security benefit. Centrelink confirmed its error and after further consideration and internal escalation of the matter, Centrelink released the IM account balance in full to Mr A. Centrelink also reinforced with its staff the importance of processing advances after a person has left IM so that the money is allocated to their bank account rather than their IM account.

Housing repair delays escalated and new house allocated – Ms B

During outreach to a remote community over which the Commonwealth has a five year statutory lease, Ms B complained that the requests she had made for repairs to her house had been outstanding for a long period of time. Ms B lived in the house with her partner, four children ranging in age from toddler to teenage and her infant grandchild. Ms B showed the house to our staff who noted, amongst other things, that the internal skirting boards jutted out at dangerous angles, the metal sheeting on the outside of the house stuck out a sharp angles and the shower room was in need of repair.

In January 2010, we raised these repair concerns with FaHCSIA and the NT department that delivers tenancy services on behalf of the Commonwealth in that community. The NT department made enquires with the relevant Shire. Five months later the NT department advised this office that it was not aware of these repair issues until they were raised by this office, but they would now be referred for urgent action. We made further enquiries about the status of the repairs and the whereabouts of a medical certificate relevant to Ms B’s request to be allocated another house. In August, tenancy and asset officers visited the house and rated the above repairs as urgent. While we were initially informed that the medical certificate could not be located and Ms B should lodge a new one, after further questions from our office it was located. Ms B was allocated another house in October but, as at that time, the repairs had still not been carried out.

Ms B’s difficulties appear to be linked to implementation problems following housing reforms in the NT. Noting the multi-jurisdictional environment in which all three tiers of government have various responsibilities, key issues identified include a lack of local complaint mechanisms and responsiveness to issues, the need for adequate escalation pathways, an initial lack of timely service delivery standards and further need for clarification of roles and responsibilities.

Improved treatment of BasicsCard customers by merchant – Ms C

Ms C complained to our office on behalf of other BasicsCard customers in her community. She reported that BasicsCard holders suffer poor treatment by a staff member at the local store. She reported that if people do not have sufficient balances on their cards to purchase their goods, the staff member gets angry at the customer, demands that they leave the store and does not allow them to use other payment methods. Ms C reported that customers are highly embarrassed because the staff member yells at them in front of others. This has caused BasicsCard customers to have to pay the costs of, and take additional time to travel to stores further away to avoid this poor treatment.

We decided to investigate this complaint with Centrelink on the basis that it is responsible for compliance reviews and monitoring of BasicsCard merchants. We recognise that the merchant terms and conditions do not include conditions specifically relating to merchant behaviour and the alleged behaviour in this complaint does not suggest a breach of the terms and conditions. However, this complaint suggested that the merchant may not have been operating in a way which supports the intent of the underpinning IM policy (that is, to assist customers with meeting essential household needs and expenses and providing customers with greater choice and flexibility to access goods and services from a wide range of merchants).

After being alerted to this matter, Centrelink took a proactive and problem solving approach to the matter. Centrelink arranged for senior officers to visit the merchant to discuss the concerns. Centrelink advised that it has an expectation that a merchant will treat customers with courtesy and respect and that in order for a merchant to remain approved for Basicscard, the merchant would need to continue to support the primary outcome of the BasicsCard.

When Centrelink discussed this matter with the store manager, the store manager was very apologetic and was able to identify the staff member as they had previously been counselled for similar behaviour. The store manager undertook to address the issue straight away. Ms C reported that the staff member no longer works at the store and her community now feel comfortable with shopping at the store.

In response to this matter, Centrelink advised that it is discussing with FaHCSIA the need for an additional clause in the terms and conditions to address this scenario and the additional requirement for merchant compliance.

Allan Asher

Commonwealth Ombudsman

11 March 2011

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Abbreviations and acronyms

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List of Tables

• Table 1.1: Crèches
• Table 2.1: Enrolment and Attendance for NTER Schools
• Table 3.1: Number of ENT, Audiology and Dental Follow-Ups
• Table 3.2: Indigenous hospital separation rates per 1,000 population by selected principal diagnosis (excluding dialyses), aged 0–14 years, Northern Territory, 2001–02 to 2008–09(a)(b)(c)(d)
• Table 4.1: Income Support Recipients in the NTER Prescribed Areas
• Table 4.2: Job Placements
• Table 4.3: Job seeker participation in Work Experience activities
• Table 4.4: Financial Penalties
• Table 4.5: Off-benefit outcomes
• Table 4.6: Language, Literacy and Numeracy Program
• Table 6.1: Confirmed Alcohol, Substance Abuse and Drug Related Incidents
• Table 6.2: Domestic Violence Related Incidents
• Table 6.3: Confirmed Breaches of Domestic Violence Orders
• Table 6.4: Confirmed Personal Harm Incidents
• Table 6.5: Assault Lodgements and Convictions
• Table 6.6: Restraining orders
• Table 6.7: Sexual Assault Lodgements and Convictions
• Table 6.8: Police Incidents – Reports of Child Abuse
• Table 6.9: Trend in Child Protection Indicators per 1,000 children in the Northern Territory
• Table 6.10: Safe Places: location and date of opening
• Table 6.11: Staffing levels for the Substance Abuse Intelligence Desks
• Table 6.12: Staffing levels for the Dog Operation Unit
• Table 6.13: Dog Operation Unit – Funded Dogs
• Table 6.14: SAID and DOU outcomes for last reporting period and July - Dec 2010

1. BBF (Budget Based Funded): Funding for BBF early childhood services is provided to assist them to meet key elements of the new National Quality Standards. BBF services provide child care and early learning opportunities to children in areas where the market would otherwise fail to deliver child care, including remote Indigenous communities (not limited to the NT).
2. Last reporting period recorded 69 schools. This included 3 schools that did not deliver the SNP. Children from 3 NTER communities were attending town schools (that are not SNP eligible) and DEEWR facilitated their access to meals at school in conjunction with Centrelink. We have revised the school figures for the current NTER Monitoring Report.
3. http://www.health.gov.au/internet/main/publishing.nsf/Content/Health-oatsih-nter-eval-chci
4. http://www.health.gov.au/internet/main/publishing.nsf/Content/Health-oatsih-nter-eval-chci
5. http://www.federalfinancialrelations.gov.au/content/national_partnership_agreements/health/health_services/Northern_Territory_Mobile_Outreach_Service_Plus_IP.pdf
6. Case-related services do not equate to numbers of children or numbers of child cases.
7. Non case related services include community education and professional development services to Aboriginal children, families and community members. NB All six month case related and non case-related data is derived from summation of quarterly data.
8. http://www.health.gov.au/internet/main/publishing.nsf/Content/health-oatsih-closinggap-reviewalcohol-drug
9. http://www.fahcsia.gov.au/sa/indigenous/pubs/nter_reports/Pages/eval_com_stores_licensing.aspx.
10. More recent Centrelink data indicate that 84 % of this group still remain on the voluntary income management measure. 710 people who have ceased voluntary income-management in this group have done so for a wide range of reasons, including finding paid employment or no longer being eligible for a Centrelink income-support payment.
11. Please note that all BasicsCard data is Australia wide, not NT specific.
12. The referral reporting period was restricted to 1 July to 31 December 2010, however, commencement data includes commencement dates that surpass this reporting period. Providers have 8 weeks to commence a client in training, as stated in the LLNP Guidelines.
13. See Appendix A
14. The guidelines can be found at http://www.comlaw.gov.au/Details/F2010L03358
15. The second evaluation was commissioned by Northern Australian Aboriginal Justice Agency and can be accessed at www.naaja.org.au/documents/Themis%20Report.pdf
16. http://www.fahcsia.gov.au/sa/indigenous/pubs/nter_reports/policing_in_nt/Pages/default.aspx
17. The NTER communities referenced in this section do not include town camps.
18. ABSTRACT Address by the CEO of the Australian Crime Commission, Alastair Milroy, to the 2008 Bennelong Society Conference - 20 June 2008
19. Aggravated assault is defined in s188(2) of the NT Criminal Code Act as an assault where the person assaulted suffers harm and is either: female (when the offender is male), under the age of 16 (when the offender is an adult), is unable to defend himself or to retaliate, is indecently assaulted or is assaulted with threat of a firearm or weapon. (Note: this list is not exhaustive, the full list can be found in the Act)
20. Nettie Flaherty and Chris Goddard, Child neglect and the Little Children are Sacred Report, Children Australia, Volume 33, Number 1, 2008
21. AIHW 2011. Child protection Australia 2009-10. Child welfare series no. 51. Cat. no. CWS 39. Canberra: AIHW.
22. ibid:94
23. http://www.anao.gov.au/Publications/Audit-Reports/2010-2011/Northern-Territory-Night-Patrols
24. http://www.apo.org.au/research/talking-language-indigenous-language-interpreters-and-government-communication.