Continuity and change in the Community Development Employment Projects Scheme (CDEP)

The Community Development Employment Projects (CDEP) scheme is an example of an Indigenous‐specific program that combines community development and labour market program elements. This paper describes the nature of CDEP employment in 2008 and the extent to which it changed between 1994 and 2008. The paper also compares a selection of economic and social outcomes of CDEP participants with those of persons who were employed outside of CDEP, unemployed and not‐in‐the‐labour‐force (NILF) in 2008 and the extent to which these associations changed between 1994 and 2008. This paper also aims to assess the extent to which CDEP participation is consistent with the community development objectives of the scheme. The analysis shows that the nature of the jobs in which CDEP participants work and the experiences it provides to workers have changed little despite substantial changes in underlying policy settings. CDEP participation is associated with the maintenance of language and culture as well as facilitating an ongoing connection to traditional lands. Participation in the scheme is associated with better social and economic outcomes compared to those of the unemployed or those NILF, but much worse outcomes than those for people working in non‐CDEP employment.     

Gambling in Australian Indigenous communities: the state of play

Gambling has both positive aspects and negative effects for Australian Indigenous gamblers and families. While traditional card games organised by the communities themselves have been found to have important social value, there is increasing evidence that commercial gambling such as gaming machines (‘pokies‘), casinos and TAB betting has a range of far‐reaching negative social and economic consequences for Indigenous population groups. However an understanding of participation by Indigenous people in contemporary gambling is still undeveloped and is dominated by western concepts. The cultural distinctiveness and complexity of Indigenous Australia create profound conceptual and methodological difficulties with the potential to distort the research process and outcomes, as well as policy solutions. The current lack of understanding also impacts on the cultural relevance and effectiveness of service provision for Indigenous gamblers, their families and communities.     

Importance of Land,family and culture for a good life: Remote Aboriginal people with disability and carers

Worldwide health and social outcomes of Indigenous people are poorer than those of non-Indigenous. In Australia, the Indigenous population experience disability at more than twice the rate of the non-Indigenous population, and a quarter live in geographically remote areas. The challenges associated with accessing services and supports in remote communities can impact on a good life for Aboriginal people with disability. Interviews were conducted with Aboriginal people (An angu) with disability and family carers from remote Central Australian communities and service workers. Thematic data analysis determined factors An angu viewed as essential to living a good life: connection to their Lands, being with family and engaging in cultural activities. Workers' support for a good life involves “Proper Way” help and an understanding of An angu culture. Three culturally relevant strengths-based concepts are important in supporting An angu with disability to live a good life: being connected to the Lands and family, sharing together and working together.     

Indigenous land and sea management programs: Can they promote regional development and help “close the (income) gap”?

Throughout the world, there is growing recognition of the important role Indigenous people play in natural resource management and conservation. Indigenous Land and Sea Management Programs (ILSMPs; which provide funds to Indigenous people to support Indigenous land management activities) are also known to generate social and economic benefits, although relative few of these co‐benefits have been quantified. Using northern Australia as a case study, we analysed data on ILSMP expenditure within three regional input–output tables, learning more about the size and distribution of their associated regional economic benefits. We found ILSMPs make a significant contribution to regional economies—with multipliers commonly exceeding that of other key regional industries such as agriculture and mining. We also found ILSMP expenditures make a larger contribution to Indigenous household incomes than they do to non‐Indigenous incomes—thus helping to close the (income) gap. They will continue to do so, provided the proportion of ILSMP money spent on Indigenous (compared to non‐Indigenous) incomes does not fall below a threshold amount. Rather than finding evidence of a trade‐off between socio‐ecological and financial/economic goals, our results suggest ILSMPs, known for their ecological importance, can also make a vitally important contribution to economic development in rural areas.     

Policy approaches to addressing Aboriginal social inclusion in South Australia

The concept of social inclusion has been influential in shaping many aspects of social policy in Australia over the past decade. In SA the Rann Labor government established a Social Inclusion Board in 2002, which made an important contribution to development of the SA Strategic Plan that framed SA policy directions under that government. This article considers the relevance of the concept of social inclusion for addressing the disadvantage experienced by Aboriginal South Australians. It examines the SA Social Inclusion initiative and some national measures such as the Overcoming Indigenous Disadvantage and Closing the Gap initiatives and discusses the appropriateness of the methodology adopted. A number of issues are addressed: the extent of Indigenous involvement in setting targets and devising programs to achieve improved social outcomes, the relevance of the targets identified, and the problem of overlapping policy initiatives at state and national level obscuring the measurement of change against specific indicators. A particular concern is that the social inclusion approach embedded in these policies pays too little attention to the priorities and preferences of Aboriginal people and interprets ‘inclusion’ in ways that assert the cultural paradigm of non‐Indigenous Australians.     

Roadmap to recovery: Reporting on a research taskforce supporting Indigenous responses to COVID‐19 in Australia

In April 2020 a Group of Eight Taskforce was convened, consisting of over 100 researchers, to provide independent, research‐based recommendations to the Commonwealth Government on a “Roadmap to Recovery” from COVID‐19. The report covered issues ranging from pandemic control and relaxation of social distancing measures, to well‐being and special considerations for vulnerable populations. Our work focused on the critical needs of Aboriginal and Torres Strait Islander communities; this paper presents an overview of our recommendations to the Roadmap report. In addressing the global challenges posed by pandemics for citizens around the world, Indigenous people are recognised as highly vulnerable. At the time of writing Australia's First Nations Peoples have been largely spared from COVID‐19 in comparison to other Indigenous populations globally. Our recommendations emphasise self‐determination and equitable needs‐based funding to support Indigenous communities to recover from COVID‐19, addressing persistent overcrowded housing, and a focus on workforce, especially for regional and remote communities. These latter two issues have been highlighted as major issues of risk for Indigenous communities in Australia It remains to be seen how governments across Australia take up these recommendations to support Indigenous peoples' health and healing journey through yet another, potentially catastrophic, health crisis.     

Missed opportunity: The NTER and sustainable development outcomes for Aboriginal people in the Northern Territory

This article questions why the Labor Government has failed to fundamentally change the Northern Territory Emergency Response (NTER) which it inherited from the Howard government, in the face of evidence which suggests that it is a development intervention unlikely to bring about sustained change. There are two major problems which this article highlights: the coercive and denigrating approach of the NTER, and its failure to address the need for Indigenous governance to drive lasting Indigenous development. Drawing on global research about the reduction of poverty and evidence about the social and economic development of native nations in other settler states, the article suggests that the NTER has been a missed opportunity for Indigenous development. Better policies would have been to address the barriers which Indigenous people identify as blocking their initiatives for development, and to support the essential work of building effective and legitimate community governance to drive development.     

Interrogating the hybrid economy approach to Indigenous development

In the contemporary debate about remote Indigenous economic development, Jon Altman's hybrid economy approach is the major alternative to the dominant neo‐liberal perspective. Altman's approach emphasises the continuing customary economic activity of remote‐living Indigenous Australians and their legitimate aspirations to live and work on their ancestral lands. Based on a close reading of Altman's writings, this paper analyses the hybrid economy model – which is grounded in Altman's observations of outstation life in Arnhem Land – and the approach to economic development Altman derives from it. It makes explicit the numerous assumptions underpinning the hybrid economy approach to Indigenous development. Some of these assumptions are more controversial than others. It is argued that while Altman's approach celebrates the unique skills and contributions of culturally‐connected Indigenous people, it is predicated on a pessimistic assessment of the likelihood of mainstream education and employment ‘closing the gap‘.     

Understanding how deficit discourses work against implementing participatory approaches in Australian Indigenous policy

One of the few things that everyone can agree on with respect to Australian Indigenous policy is that repeated government experiments aimed at improving Indigenous well‐being in Australia and particularly in remote Australia have failed. Outcomes remain poor and are, if anything, deteriorating in a number of areas. Critics have characterised the history of Indigenous policy as a series of failed policy experiments. The latest experiment in the quest to improve outcomes involves attempts to move away from the usual rational‐technical approaches, toward participatory approaches or “partnerships”. However, governments are struggling to implement these innovations. Self‐evidently, the Closing the Gap policy is grounded in deficit discourse. This paper examines how this discourse works within the existing Indigenous policy world to create possibly irreconcilable tensions with attempts to introduce participatory approaches. It does this using Logics of Critical Explanation, an interpretive method which allows us to understand how policy actors work within an existing policy world to either replace or augment their norms, values and ideologies to work in the new ways that are asked of them, or to resist innovation and revert to the status quo.     

Redefining viability: Aboriginal homelands communities in north‐east Arnhem Land

The current policy debate about the future of small Indigenous homelands communities in remote Australia is being framed in terms of a narrow economic definition of ‘viability’, with little attention to factors such as the social characteristics of such communities and the health, well‐being, and aspirations of those who choose to live there. The debate is taking place in the absence of comparative socio‐demographic data on these communities as opposed to other kinds of settlements in remote Australia. This paper argues for a broader conceptualisation of viability. It outlines some reasons why governments might consider helping homelands communities to become more economically self‐sufficient rather than starving them of support so that their inhabitants increasingly face a ‘choice’ between a marginalized and impoverished existence on the homelands and recentralisation in larger settlements. The argument is based on an analysis of ethnographic data from north‐east Arnhem Land that demonstrate the social cohesiveness and functionality of homelands communities as compared to larger hub settlements.     

Seeing people in the computer: The role of information technology in remote employment services

Information technologies have been important in the emergence of new forms of control and surveillance of welfare recipients and of those who administer labour market programmes. These technologies have often appeared at the margins of accounts of welfare reform, for example as means of increasing the efficiency or consistency of services, or as constraining frontline discretion. Henman has argued, however, that information technologies need to be analysed not just as administrative tools, but as “non-human actors,” shaping policy development and implementation in ways beyond the intentions of their human creators (Henman, Governing Electronically: E-government and the Reconfiguration of Public Administration, Policy and Power, Palgrave MacMillan). This paper explores the way that the use of government information systems has shaped employment services in remote Australia where over 80 per cent of those included are Indigenous people. The article describes how the production and use of administrative data within employment services have supported and extended the framing of Indigenous people in remote communities as non-compliant and as needing external direction.     

Good learning = A Good Life: Mathematics Transformation in Remote Indigenous Communities

The performance of Australian Indigenous¹ learners is a national concern. The federal government has recognised that health and education are keys to closing the gap between the achievement of Indigenous and non‐Indigenous people and has made health and education a national priority. Through its ‘Closing the Gap’ initiative, the Rudd government is allocating significant amounts of money to redress the poor health and education among Indigenous Australians. In this paper, we discuss an innovation in education that is being implemented in a cluster of remote communities in Western Australia.² The innovation draws on international research that has positively affected mathematics learning, particularly among students who are traditionally excluded from formal schooling. While the research is innovative, the mechanisms that may be the most effectual in bringing about strong mathematical learning for Indigenous Australians are unknown.     

The normalisation of income management in Australia: analysis of the parliamentary debates of 2007 and 2009–10

Initially introduced as part of Australia's Northern Territory Intervention in 2007, Income Management (IM) explicitly targeted inhabitants of remote NT Indigenous communities. IM is a form of welfare conditionality that involves compulsorily ‘quarantining’ at least half of individuals' social security income. It has been heavily criticised for being racist, discriminatory, and a violation of individual rights. The introduction of New Income Management (NIM) in 2010 extended IM beyond Indigenous communities and introduced a new set of eligibility criteria that shifted the focus of IM from Indigenous people to working age recipients of social security income. This in depth study of the early parliamentary debates on the compulsory IM programs traces the patterns of political discourse that led to IM coming to be seen by many policy makers as a normal and legitimate technique within Australian social policy. Situating the IM programs within neoliberal concerns about welfare dependency and active citizenship, this article argues that the introduction of NIM heralded a shift from a conception of IM as part of a focused social experiment targeted at remote Indigenous communities to a potentially mainstream social policy option.     

Undercounts in Offender Data and Closing the Gap Between Indigenous and Other Australians

Closing the gaps between Indigenous and other Australian outcomes is a central concern of contemporary policy. The Re‐Offending Database (ROD), which has been collated by the New South Wales Bureau of Crime Statistics and Research (BOCSAR), offers a unique opportunity to analyse data quality issues in an important source of administrative data for Indigenous people. This paper provides several independent estimates of the population of Indigenous offenders by estimating the number of people with unknown Indigenous status who are likely to be identified as Indigenous in other circumstances. The main finding is that the Indigenous population of offenders is substantially undercounted in administrative data collections. The failure to account for this will understate Indigenous disadvantage or the ‘gap’ between Indigenous and non‐Indigenous outcomes.     

The vexed link between social capital and social mobility for Aboriginal and Torres Strait Islander people

Overcoming the socio‐economic disparity between Aboriginal and Torres Strait Islander and non‐Indigenous Australians is a long‐standing social policy objective: one largely shared by Indigenous people. Achievement will require Indigenous individuals and households to be socially mobile, a process integrally involved with social capital, existing and requisite. The lack of research on Indigenous social mobility or its attendant social capital connections is addressed in this paper through an exploratory analysis of this interaction across three dimensions: distinctive patterns of Indigenous social capital; the transferability of Indigenous social capital; and traversing the social capital divide. The implications drawn, while tentative, indicate that for Aboriginal and Torres Strait Islander people the intersection of the processes of social mobility and social capital is vexed, and contains hazards and costs not fully shared by socially mobile non‐Indigenous households. The Indigenous‐specific factors of a gendered professional class, the identity–social capital link, and Indigenous labour market circumstances all indicate that more research and a more nuanced understanding of Indigenous social mobility is necessary. Social policy recommendations include broadening the concept of cultural leave to include bonding social capital obligations, especially for women, and re‐evaluation of how to support Indigenous career trajectories and transferable skill sets.     

Explaining Social exclusion: Towards Social Inclusion for Indigenous Australians

Current policy often focuses on ‘Overcoming Indigenous Disadvantage’ by simultaneously addressing multiple deficits that many Indigenous people experience relative to other Australians. International literature often frames such issues in terms of the contested concepts of social exclusion and social inclusion. This paper attempts to analyse what Indigenous social inclusion might look like in a plural society such as Australia. In addition to contextualising Australian policy in broader debates, this paper also briefly introduces several relevant theories of justice, diversity and Indigenous rights to provide a theoretical framework for conceptualising social inclusion. The article concludes with some reflections on some practical suggestions to move the debate forward. In principle, enhancing Indigenous social and political participation in policy design should both increase inclusion and reduce disadvantage by enhancing the effectiveness of programs that have a substantial Indigenous client base.     

Aboriginal and Torres Strait Islander employment policy and Welfare to Work: The Community Development Programme and the need for new narratives,new alliances and new institutions

The way Australian federal governments have approached Aboriginal and Torres Strait Islander employment and welfare policy over the last two decades has been a paradigmatic example of what not to do in policymaking. In the absence of effective engagement or consultation, a series of decisions under Coalition and Australian Labor Party governments have had a range of negative consequences for Aboriginal and Torres Strait Islander peoples. These changes – centred around the closure of the Community Development Employment Projects (CDEP) scheme and implementation of the Community Development Programme (CDP) – have resulted in increased unemployment, inadequate support for job creation, a dramatic over‐application of income penalties to social security recipients and reduced capacity in many community organisations. This article argues that these outcomes constitute policy failure, especially given that genuine engagement with Aboriginal and Torres Strait Islander people could have prevented many of these consequences. It then turns to an exploration of three ways in which Aboriginal and Torres Strait Islander people are responding to such policy failure: through promotion of new narratives, new alliances, and new institutions. The study concludes that while we should avoid “specious hope”, there is room for optimism in a renewed push for Aboriginal and Torres Strait Islander sovereignty.     

Broken circles to a different identity: an exploration of identity for children in out–of-home care in Queensland, Australia

Child protection manuals and literature emphasize that developing a sense of identity is one of the most important elements in achieving good outcomes for children in out-of-home care. Yet, the very issue of identity raises questions that many child protection workers are ill-equipped to answer. In practice, life story book work based on developmental theories has been utilized by child protection workers and foster carers as a response to a sense of 'lost identity' for children in out-of-home care. However, Indigenous and psychological concepts of identity may have little in common.
Current theories of identity development in children lack evidence from the children and young people themselves in informing these notions, which have been criticized as adult-centric. Developmental theories may also be problematic for children from non-Western cultural groups. This research was undertaken in a regional area of Queensland, Australia where the majority of children in the child protection system who are identified as Indigenous, come from two or more cultural backgrounds. The research presented in this paper firstly explores identity issues for children and young people in foster care from their own perspective using narrative art therapy. Secondly, the research views identity from the perspective of professionals working in child protection and out-of-home care.     

The complexities of cultural support planning for Indigenous children in and leaving out‐of‐home care: the views of service providers in Victoria,Australia

Indigenous children and young people are over‐represented at all stages of the Australian child protection system. Policy and legislative initiatives exist in the state of Victoria, Australia aiming to support the connection between Indigenous children and young people in state care and their culture and community. This exploratory research involved focus group consultations with seven child and family welfare agencies to investigate the impacts, barriers, benefits and limitations of cultural support planning for Indigenous young people in, and leaving care in, Victoria. Findings indicated that cultural planning was of value when it could be completed. However, various shortcomings of current systems were identified including limited resourcing of Aboriginal Community Controlled Organisations to generate plans and provide direct and secondary consultation services to implement plans, difficulty gathering information for plans and some Indigenous young people expressing disinterest in connecting to their culture and community. Complexities in the relationships between the Indigenous and non‐Indigenous agencies that aimed to support Indigenous young people in care were also acknowledged. Participants identified a number of strategies to improve outcomes, such as facilitating better relationships between agencies, promoting opportunities for ongoing cultural training for staff in mainstream agencies and improving the resourcing of Aboriginal Community Controlled Organisations to deliver planning and to support cultural connections.     

Can increased educational attainment explain declining Indigenous fertility?

Prior research shows that Aboriginal and Torres Strait Islander women are more likely to have children and have more children, on average, than non-Indigenous women. However, like those of the total Australian population, fertility rates of Indigenous women have been declining since the 1970s. The decline has been more significant in recent years. Between 2006 and 2016, an increasing proportion of Indigenous women postponed childbirth from their teens into their 20s and 30s, leading women to have fewer children over their lifetimes. During the same period, there was a rapid increase in educational attainment among the Indigenous population. This paper examines educational gradients in fertility among Indigenous women and whether the observed fertility decline is linked with the increased educational attainment. Using data from the 2006, 2011 and 2016 Australian Census of Population and Housing and applying a shift-share decomposition analysis, we find that education has been a big driver of falling fertility rates in non-remote areas. In remote areas, education has had a much smaller effect (except for youngest women).