Northern Territory Emergency Response (NTER)
Monitoring Report
Perceptions of the NTER
A significant proportion of the public commentary of the NTER and on Indigenous policy in general involves discussion of the views of Indigenous people affected. Despite this focus there is only a limited amount of research that entails the systematic and rigorous collection of the views of Indigenous Australians about policy and its impact.
There are two significant reports available that provide information on the views of Indigenous Australians on the NTER – a research report undertaken by CIRCA on behalf of the NTER Review Board and a report commissioned by the Central Land Council. Both reports show that views are mixed and do not lend themselves to simple conclusions. It is worth noting, in this context, that just like any community the views of Indigenous communities cannot be validly obtained by simply asking either a select number of community leaders or by simply holding a large public meeting as many people will not express their personal views in front of others.
CIRCA - Community Feedback on the NTER - Research Report
The CIRCA report which was commissioned by the NTER Review Board is available on the FAHCSIA website. The CIRCA research used a qualitative approach. While qualitative approaches do not necessarily provide an accurate representation of views they allow for a rich exploration of opinions and the factors that shape them. Systematic qualitative methods are also more reliable than less structured approaches.
Consultations were conducted in four communities, namely Ali Curung, Hermannsburg, Nguiu and Galiwinku between August and September 2008. The methodology used in each location varied and was developed in consultation with local partners. In all four locations there was a range of meetings (there was not just one large meeting). In Ali Curung most people were reluctant to be interviewed in large groups.
The report examines what is working, what is not working, unintended consequences and recommendations as to how the measures could be taken forward including getting people’s views on a voluntary model of income management.
In most community consultations there were many that supported the NTER and many that did not. CIRCA concluded that in some communities there is a significant group that support the positive outcomes of the intervention (Nguiu, and Hermannsburg) while in other communities (Ali Curung and Galiwinku) a significant number of people were upset with the nature of the NTER. However, CIRCA also concluded that in most of the community consultations many people talked about the positive impact of the NTER. There were also varied views indeed in some instances women spoke up in opposition to men and elders who opposed the NTER in community meetings.
People caring for others were the most positive about income management, especially women who were caring for young children (older and younger women), larger families and/or people with disabilities. Generally women tended to be more positive than men; however most people (even some who opposed the NTER) recognised the positive impact of income management on children. Single men tended to be the least positive about income management, especially were they did not have child care responsibilities.
Perceptions of the NTER were driven by only a few of the NTER initiatives, and in many cases the overall perception of the NTER seemed to relate to income management. Positive perceptions of income management were mainly related to increases in food consumption, with children being the main beneficiaries, increased saving which has enabled greater purchasing of household goods, ease in paying bills and a reduction in family tension through reductions in humbugging (this was only mentioned by a minority of people). Apart from positive comments about income management, positive feedback was also provided on school nutrition program (Hermannsburg) and improved stock in the community store (Ali Curung).
Negative perceptions of the NTER included the lack of consultation and communication and subsequent uncertainty about what initiatives entailed. There was also negative comment about expectations being raised and not being realised (housing was mentioned). Significant negative perceptions also surround the compulsory nature of income management, There were also complaints about a lack of information and resulting understanding of the system. Other negative perceptions of income management included additional difficulties when travelling, perceived exploitation of older people by carers or nominees as these older people did not understand the system and difficulties in paying large bills and in managing debts. CIRCA noted that there was less consistency when discussing negative impacts of income management as the criticisms identified tended to have effects on small segments of the community, rather than being felt across the board.
Feedback from community members as to how income management could be improved included greater flexibility such as being able to use managed funds in smaller outlets like roadhouses when travelling, a simplification of the process for requesting the movement of funds and for accessing money in an emergency, greater education and assistance and consideration of existing debt contracts.
Responses to a proposed voluntary income management model were mixed. There was support in Ali Curung and Galiwinku but this idea has little appeal in Hermannsburg. While there was some support for a voluntary model In Nguiu most supported the existing compulsory approach. Those who opposed a voluntary model argued that with that approach those who needed it most would be the first to opt out. The notion that communities themselves should decide who should be on income management was usually rejected.
Regarding community safety, the researchers found it was much more difficult to talk about and many participants found it difficult to identify initiatives of the NTER that had had an impact on community safety. This is partly related to the fact in most of the communities chosen there were few new initiatives to directly enhance community safety (of the 4 communities only Galiwinku experienced an increase in police numbers). Despite this a number of community members suggested their community ‘felt safer’ with the main reason being the departure of perceived ‘trouble makers’. CIRCA concluded that given the range of views expressed and the limited visibility of safety initiatives it is too early to be definitive on the impact of community safety measures.
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Central Land Council – NTER: Perspectives from Six Communities
The CLC undertook this research to document the experiences and opinions of Aboriginal people in Central Australia in relation to the NTER. The research was undertaken from February to June 2008 with the assistance of local Aboriginal researchers. The research focussed on the main measures implemented in the first year of the NTER including: income management, housing repairs and maintenance, the abolition of the Community Development Employment Project (CDEP), introduction of store licensing, voluntary child health checks, increased allocation of police resources, the introduction of five year leases, the roll out of Government Business Managers (GBMs) into communities and changes to the operation of the permit system.
This report presents the perspectives of Aboriginal men and women on the NTER measures from six case study communities in Central Australia: Titjikala, Papunya, Yuendumu, Ali Curung, Kintore and Hermannsburg. It is based on a detailed participatory evaluation survey of 141 Aboriginal residents in these communities. The survey questioned participants’ awareness of the NTER measures, feelings on the measures and effect of the measures on them and their community. The survey included a self assessment scale. The community surveys were augmented by 51 semi-structured interviews with other community-based employees or agencies, government agencies and GBMs in survey communities. Additional data was provided by the NTER Operations Centre, Department of Education, Employment and Workplace Relations, and Centrelink.
The research conducted demonstrates clearly the diversity of opinion around the NTER measures across communities, as well as amongst community members resident in a community.
Responses across survey participants were almost evenly divided between people in favour (51%) and opposed (46%) to income management. Gender and age were not significant factors in influencing people’s level of support. However, income type influenced people’s support for income management: people on a wage were most supportive of income management.
Perceived advantages associated with income management included increased household expenditure on food and children, young men contributing to family shopping, and reductions in gambling and drinking. Disadvantages associated with income management included less discretionary cash and restrictions on the use of managed money, blanket coverage being discriminatory, problems with accessing managed money, incompatibility with population mobility, difficulties for aged and disabled people, and perceived cost shifting to Aboriginal people and community staff to deal with the new arrangements.
People reported improved quality of stock in their community stores following the NTER licensing processes. However, in almost all survey communities (except Kintore) the licensing of stores has been perceived to have been associated with increases in store prices.
A large majority (76%) of people expressed support for CDEP while 22% of people supported the abolition of CDEP. People reported that participation has fallen under Work for the Dole arrangements compared with CDEP.
No case study communities had additional police deployed from the NTER. Overall, a large majority of survey respondents (74.8%) reported that they were happy with the current police numbers. However, in Titjikala, the only survey community with no permanent police presence, almost 60 % of people wanted an increased police presence in the community.
A slight majority of people (57%) felt that there was less alcohol consumption in their communities than prior to the NTER with a significant portion (37%) stating that alcohol consumption was about the same on their communities. Reasons given by people surveyed for reduced alcohol consumption include: the introduction of income management, grog running laws and increased policing.
The overwhelming majority of survey respondents (86.4%) reported that they needed better housing in their community. Community support for the NTER Community Clean Up (CCU) program was closely linked to the perceived quality and efficacy of the repairs and maintenance undertaken in communities. At Kintore and Hermannsburg where housing audits have been completed in a timely and consistent way, communities were supportive of the programs.
After some initial concern and uncertainty, most people were supportive of health checks. In some communities clinic staff reported that the NTER health checks were an unnecessary duplication of resources. In other communities, the checks picked up children previously not screened by the clinic. It took more than 11 months for health checks to be undertaken at Ali Curung.
There was little awareness of the 5 year leases in the survey communities. The overwhelming majority of respondents (85%) were opposed to 5 year leases. Reasons for opposition to 5 year leases included: the leases gave government more control over communities, there was no certainty about what would happen at the end of the five years, the leases overrode the rights of traditional landowners, the leases were put in place without any consultation and the boundaries of the leases were perceived to be inappropriate.
In communities on Aboriginal land the overwhelming majority of respondents were opposed to the changes to the permit system (94%). Reasons for maintaining the permit system in its original form included: maintaining the safety of children, stopping unrestricted photography and media access, stopping strangers and unsavoury people entering communities, respect for privacy of people in communities and respect for Aboriginal law.
Nearly all people surveyed were critical of the processes followed in the first year of the NTER. People reported that they were dissatisfied for the following reasons: the lack of information flow, particularly to younger and older people, no consultation on changes, initial fear about what would happen (including use of the army). Slowly, however, a clearer picture has emerged of the shape and extent of different measures on the ground. Generally, the service-based measures, such as health checks, received solid support. People could see the benefits from increased servicing and increased focus on their communities. On the other hand, where rights have been affected or the autonomy of the community challenged, such as the introduction of 5 year leases there has been significant reservation about the intent of such measures and they have received little support.
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