The NTER was originally designed with three phases:
- Stabilisation - the current phase to introduce emergency measures to protect children and make communities safe (year 1);
- Normalisation of services and infrastructure (years 2-5); and
- Longer term support based on the same norms and choices that other Australians enjoy (year 5 onward).
The work of the Taskforce has focussed on the measures in the first phase, although there has been some preparatory work on later phases, particularly through the development of the Strategic Investment Housing and Infrastructure Program (SIHIP).
All emergency measures in the first phase have been progressively implemented in 73 communities of 100 people or more on Aboriginal land and on Community Living Areas (the so called prescribed or NTER communities). Some of the critical and sensitive measures, such as the introduction of Income Management, also apply on outstations and town camps within prescribed areas.
The NTER measures and the responsible Australian Government portfolios have been:
- Welfare Reform and Employment - Department of Human Services (DHS); Centrelink; Department of Education, Employment and Workplace Relations (DEEWR); Department of Families, Housing, Community Services and Indigenous Affairs (FaHCSIA)
- Law and Order - Attorney-General's Department (AGD); FaHCSIA; Australian Federal Police (AFP);
- Enhancing Education - DEEWR and Centrelink;
- Supporting Families - FaHCSIA and DEEWR;
- Improving Child and Family Health - Department of Health and Ageing (DoHA);
- Housing and Land Reform - FaHCSIA and DEEWR; and
- Coordination - FaHCSIA; Commonwealth Ombudsman; Department of Defence.
Australian Government departments have worked with Northern Territory Government agencies, local government bodies and non-government organisations to implement many of the NTER measures.
There were a number of defined activities that supported achievement of these measures. This section of the report addresses some of the key achievements from the perspective of the NTER Taskforce.
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3.1 Welfare Reform and Employment
Welfare Reform and Employment has consisted of two main activities:
- Changing the way welfare payments are made, so that benefits intended for children are used for children and support active school participation; and
- Remote Area Exemptions were lifted and the phased removal of Community Development Employment Projects (CDEP) was introduced to support the transition to real jobs and mainstream employment services.
Welfare Reform
The welfare payment changes were for an initial period of 12 months in each community. In this time, half of all income-support and family assistance payments have been income managed, that is, held back so that the money could be spent only on food, school nutrition, rent and other essential items.
These provisions affect all people (Indigenous and non-Indigenous) who live in prescribed areas of the Northern Territory and who receive welfare payments.
Income management has been applied to all people in these Northern Territory communities to avoid a situation where people are 'humbugged' or threatened to hand over cash. These obligations follow individuals and primary carers even if they move out of the prescribed areas.
As at 11 June 2008, Income Management was in place in 52 communities, associated outstations and seven town camp regions. A total of 13,309 people were being income managed as at 13 June.
It is expected that Income Management will be implemented in all communities by late August 2008.
Employment
The former Australian Government had a policy of phasing out the CDEP program as part of the NTER.
On 10 December 2007, the new Government placed a moratorium on further removal of CDEP from communities while options to better focus the program towards jobs, training and enterprise development were considered. At that time, 16 CDEP organisations and over 2000 CDEP participants had been transitioned off CDEP.
On 30 April 2008, the Government announced its timetable for Indigenous employment reforms. At that time it was announced that as an interim measure the Government would restore CDEP from 1 July 2008 in the 25 prescribed Northern Territory communities and 5 town camp regions where CDEP had been abolished.
While CDEP is being restored, the process of converting CDEP positions supporting government service delivery has been continuing. On 12 June 2008, it was expected that 400 Northern Territory Government and local government positions would be created, and it was expected that 1119 Australian Government funded positions will have been created by 30 June 2008.
The Australian Government has recently released a discussion paper on the future of CDEP and Indigenous Employment Programs.2
There are 43 Community Employment Brokers (CEB) servicing 67 communities and associated outstations.
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3.2 Law and Order
The aim of the emergency measures was to protect children and make communities safe. This measure directly supported this through:
- Putting more police in communities to make people safe;
- Banning alcohol and pornography; and
- Night Patrols.
Police
Police levels have been increased, including secondments from other jurisdictions to supplement Northern Territory police resources, to improve community safety and law enforcement, and to help to prevent violence and anti-social behaviour.
Since the NTER was announced in June 2007, 51 additional police have been deployed: 33 Australian Federal Police an Interstate police and 18 Northern Territory police. At 13 June 2008, there was a new police presence in 18 communities and nine out of ten custodial facilities were operational. The Australian Government has committed funding for 66 Australian Federal Police officers until 2009/10.
Alcohol
The former Australian Government legislated to modify the Northern Territory Liquor Act, creating new obligations, penalties and requirements. The intention was to ban the sale, possession, transportation, and consumption of alcohol on Aboriginal land and to monitor takeaway sales across the Northern Territory.
The new laws have been in force since 15 September 2007.
Some clubs (licensed premises) in communities have been allowed to operate under strict conditions, and existing liquor permits remain, though their operation has been closely examined.
The Australian Government has recently announced an additional activity under this measure. The establishment of a new Substance Abuse Intelligence Desk (SAID), to be based in Katherine, will help improve community safety and law enforcement.
A package of measures has also been developed and rolled out to address the need for increased alcohol and other drug withdrawal, treatment and rehabilitation services across the Northern Territory.
The Northern Territory Government has also made significant legislative changes including extending public restricted (dry) areas in Darwin and Alice Springs and supporting communities in the development of Alcohol Management Plans and Liquor Permit Systems.
Pornography
Since 14 September 2007, the possession of pornographic material has been banned in prescribed areas. The supply of this material into these areas is also banned.
The Australian Government has been working with the Northern Territory Government on training needs for pornography education in Aboriginal communities.
Night Patrols
Night patrols are being set up and recruitment is occurring.
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3.3 Enhancing Education
Education is being enhanced through:
- More teachers;
- Additional classrooms;
- the Accelerating Literacy program and Quality Teaching Package; and
- breakfast and lunch programs in schools.
Teachers
Funding over four years was provided to the Northern Territory Government to recruit an extra 200 teachers. The first 19 teachers will commence work in classrooms in remote communities at the start of Semester 2 2008.
Classrooms
The rollout of additional classrooms across a number of remote communities is being progressed by the Northern Territory Government.
Literacy and Teaching
The Accelerating Literacy Program and the Quality Teaching Package are being implemented jointly through an integrated approach negotiated with Northern Territory education providers. Quality teaching and accelerated literacy are to a large extent inseparable in terms of delivering improved education outcomes in remote Indigenous communities.
Breakfast and lunch
The School Nutrition Program aims to improve school attendance and engagement by providing breakfast and lunch to school-aged children. Most of the cost has been met by parents through income management.
At 11 June 2008, School Nutrition Programs were in place in 49 communities and associated outstations and seven town camp regions.
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3.4 Supporting Families
The Supporting Families element includes:
- repair and construction of children's services and family support such as Mobile Child Protection Teams, crèches and playgroups;
- Child at Risk Workers for Northern Territory Child Protection Services;
- Safe places for families escaping family violence; and
- Youth diversionary activities.
The Australian Government has provided funding to the Northern Territory Government to recruit additional child protection workers to establish a mobile child protection team. One child protection coordinator and seven Mobile Child Protection Team (MCPT) workers commenced on 28 April. The aim is to recruit a total of ten experienced child protection workers.
The Northern Territory Government has commenced a recruitment process to engage Remote Aboriginal Family and Community Workers (RAFCWs) to deliver liaison and support services to Indigenous families and communities. A total of nine full-time and two part-time RAFCWs are being recruited. It is expected that the staff identified for the positions in the seven Top End communities will commence in the last week of June and that the staff for the Central Australian communities will commence in July.
Eight safe places have been built in seven communities. Given the concerns over the contamination of containers, occupancy will not begin until testing shows that all of the containers are safe.
Programs to curb alcohol and drug abuse and anti-social behaviour among young people in Northern Territory remote communities received an injection of funds from the Australian Government. Twenty-one projects, including repairs and improvements to sporting facilities and structured training programs, aim to teach young people vocational and life skills and build pride and self confidence through healthy, safe activities and increased participation in constructive community life.
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3.5 Improving Child and Family Health
The key activities that support achievement of this measure include:
- Providing health checks and follow up treatment and care for Indigenous children; and
- Expanding drug and alcohol treatment and rehabilitation services across the Northern Territory to support individuals and communities affected by the new alcohol legislation.
At 13 June 2008, Child Health Checks (CHCs) had been undertaken in 70 communities: 47 by CHC Teams and 23 by Aboriginal Medical Services/Northern Territory Department of Health and Community Services. The estimated total number of CHCs as at 13 June, including Medical Benefits Scheme (MBS) checks, was approximately 11,000. This number allows for double counting of CHCs and MBS Item 708 data. This represents a total coverage rate of children of 64%.
Follow-up Ear, Nose and Throat (ENT) specialist treatment has been provided to children in Central Australia. Audiological assessments of 669 children have been completed, 46 have received ENT surgery with 227 children receiving non-surgical ENT follow-up treatment.
Non-surgical dental services have been provided to 350 children.
A block of dental surgery commenced at Katherine Hospital from 10 June with up to 40 children expected to receive surgery.
As indicated in 3.2 above, a package of measures has also been developed and rolled out to address the need for increased alcohol and other drug withdrawal, treatment and rehabilitation services across the Northern Territory.
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3.6 Housing and Land Reform
Activities that contributed to achieving this measure include:
- Acquiring five year leases; and
- Community clean ups.
Leases
The acquisition of five year leases, and the resumption of special leases for town camps, was intended to facilitate security of tenure and access for the repair of buildings and infrastructure, to help to address overcrowded and sub-standard housing. The leases are also linked to establishing reformed tenancy arrangements for better housing.
New property and tenancy management arrangements are being introduced for public housing in 64 prescribed communities where the Australian Government holds five year leases. The Northern Territory Government will oversee the administration of the new arrangements, which will be based on their Remote Public Housing Management Framework.
Community clean-ups
The former Australian Government began a program to clean up communities and make repairs to houses, with help from local people.
Community people have been encouraged to do most of the work. This has included picking up rubbish; painting; sweeping out houses; cleaning up community areas; removing old car bodies; and digging trenches for pipes or holes for posts. All materials have been provided, as well as tradespeople to help with urgent repairs.
The community clean up program has commenced in 66 remote communities. 2905 properties have been surveyed and have had 'make safe' repairs completed and 2561 minor repairs have been completed.
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3.7 Coordination
The deployment of Government Business Managers (GBMs) was a key activity supporting achievement of this measure.
GBMs have been the single face of the Australian Government at the local community level. Some have been servicing more than one community. At 13 June 2008, there were 51 GBMs servicing 72 communities. The remaining community is serviced by the Alice Springs Indigenous Coordination Centre.
The GBMs:
- have been providing the key liaison and consultation point in communities, including communicating the NTER measures at the local level, engaging with Traditional Owners and elders, and working collaboratively with other government representatives (including at the Territory and local levels);
- have been managing and coordinating the day-to-day activities of staff from different Australian Government agencies in the community; and
- have been providing feedback on progress and local issues and concerns to government and to the NTER Operations Centre. Their knowledge and information has been guiding coordinated government action and decision making that is tailored to the particular needs of a community.