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.     

Compulsory Income Management in the Northern Territory – evaluating its impact

Australia has been experimenting with constraining the ways in which welfare recipients can spend their income support payments, limiting their ability to access cash and purchase some products. The policy objectives include to reduce spending on alcohol, gambling, pornography and tobacco in favour of meeting ‘basic’ family needs, especially for children, to limit the scope for financial harassment, encourage pro‐social behaviours, and build financial capabilities. In the logic of the programs these outcomes are expected to be manifest at the individual, family and community levels. The policy has primarily impacted on Indigenous Australians as a result of its geographic targeting, although a recent report has recommended a more stringent version of the program be introduced universally to all welfare recipients other than the aged. The largest of these experiments is ‘New Income Management’ in the Northern Territory, which has had more than 35,000 participants since its introduction in 2010. This article reports on the key findings of the major independent evaluation of New Income Management commissioned by the Australian Government.     

‘Pushing buttons‘: an evaluation of the effect of Aboriginal income management on commercial gambling expenditure

The Northern Territory National Emergency Response Act 2007 was a radical intervention into the lives of Aboriginal residents of the Northern Territory, Australia. One of the intervention's key measures was income management – a scheme designed to limit the range of goods and services that may be purchased with social security payments. The aim of income management was to curb 'anti‐social behaviours' such as excessive gambling and alcohol consumption. In this paper, we specifically test the efficacy of income management in reducing the amount spent on commercial gambling. To achieve this we conduct an interrupted time series analysis with deflated monthly electronic gaming machine (EGM) expenditure data from July 2002 to July 2010 for hotels and clubs in the towns of Alice Springs and Katherine. We find a negative association between income management and EGM revenues for only one gambling venue in each town. However, local complexity in the form of segregated markets along temporal, spatial and racial lines, along with other policy confounders, may obscure the effects of the macro‐policy intervention. We conclude by making suggestions for locally‐based responses to problematic forms of risky consumption that may be more sensitive to local geographies.     

Towards better preparation and support for health and social care practitioners conducting specialised assessments in remote Indigenous contexts

Remote health professionals encounter many challenges associated with delivering care in poorly serviced remote locations and working across cultures. Despite an identified need for the assessment practices of health and social care professionals to accommodate cultural differences, and for staff training in the area, deficits in preparing the remote workforce for assessment remain. This paper combines the results of two qualitative studies to consider current and improved approaches to preparing and supporting staff for conducting assessments in remote and Indigenous settings. Study A focused on aged care assessment practices within the remote Aboriginal context of Central Australia, and Study B focused on the practice for assessing cognition among Aboriginal Australians in the Northern Territory. Our secondary analysis of these combined data sets provides valuable information to improve planning of approaches to preparing staff for assessments in these contexts. We report themes relating to three categories: the assessment workforce, current approaches to preparing assessment staff, and cross‐cultural knowledge/skill. We discuss which areas require more detailed attention to prepare staff for this work – such as critical reflection and cultural safety – as well as how this may best be achieved – such as through the inclusion of cultural supervisors in practitioners' supervision models, and in follow‐up components to workshop models.     

Access to justice for Aboriginal People in the Northern Territory

This article discusses research in the Northern Territory on Aboriginal civil and family law needs. It is based on focus group discussions and interviews with legal services providers and other associated organisations. The article argues that key areas of legal need involve discrimination, housing, child protection, social security, credit/debt and consumer law problems. It further argues that welfare conditionality, particularly as embodied in the NT Intervention and subsequent Stronger Futures policies, has exacerbated the need for legal assistance and advocacy for Aboriginal people.     

Losing localism,constraining councillors: why the Northern Territory supershires are struggling

Local government reform in Australia's sparsely settled Northern Territory resulted in the emergence of large, remote area, regional shires in 2008. This paper outlines the history of remote area local government in the Northern Territory since ‘self-government’ in 1978 and compares these new large supershires with the more dispersed system of local government which preceded them. It argues that the large remote area shires are struggling to be accepted by their predominantly Aboriginal constituencies due to two significant changes in ideas. The first is a loss of the ideas of localism and self-determination, which sustained the previous generation of smaller, dispersed local governments. The second is the rise of the idea that the roles of elected councillors in local government should be constrained and those of appointed staff enhanced. The paper questions the wisdom of both these changes in the particular context of remote area, predominantly Indigenous, local government.     

Interconnections among Homelessness,Family Separation,and Mental Health: Implications for Multi-Sectoral Social Services

This qualitative study explored the interconnections among the phenomena of homelessness, family separation, and mental health and substance abuse issues within the social services, geographic, and infrastructure context of northern Ontario. In-depth semi-structured interviews were conducted with thirteen participants. Findings revealed the effects of colonization in the form of poor and overcrowded housing conditions in the northern First Nations, difficulties in obtaining affordable and suitable housing in northern towns and cities, reliance on the scarce social services for survival, and valiant attempts to cope with the cold climate of northern Ontario. All participants reported multiple and intergenerational experiences of separation from family due to involvement of child welfare system, placement in residential schools, death of family member(s), flooding, and epidemics. Participants described their lifelong struggles with mental health and substance abuse issues. All three phenomena were tied together in various configurations of causes and consequences. The implications include the need for critical examination of the historical policies and practices, early intervention for mental health and substance abuse issues, greater support for youth transitioning out of care, creation of a continuum of housing options, collaboration across multiple social services sectors, and incorporation of Indigenous worldview and practices in the mainstream services.     

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.     

RESEARCHING GAMBLING WITH ABORIGINAL PEOPLE

Socio-economic impact studies can present methodological problems, especially when the focus complex or value-laden. As well, the context of such studies can also influence their complexity, for example if they involve research among young people or particular cultural groups. These problems are compounded when the research methods used are themselves culturally-based or impose cultural assumptions and practices on the research. This paper is intended to offer some reflections about researching gambling among Aboriginal communities in the Northern Territory of Australia. It is not reporting any findings about this research, as it is still ongoing and will not be completed until 1998. But at this stage, the researchers are in a position to offer some observations about the strengths and limitations of research methodologies for a project such as this. We conclude that lessons arising from such observations and reflections are worth considering in other research projects, whether about gambling of other activities among different cultural groups.     

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.     

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.     

Blind‐sided by Basics: three perspectives on income management in an Aboriginal community in the Northern Territory

Income management was introduced into the Northern Territory in 2007. Despite much rhetoric around evidence based policy making and constant reviewing of income management, there has been little grounded research about Aboriginal responses at the community level to this new institution. In this article I report on the operations of income management from a longer term perspective, working with Kuninjku people and retail outlets in the Maningrida region in Arnhem Land. My argument is that from a local perspective income management is just one of a suite of new measures that have been introduced to alter the norms and values of people to correlate more closely with Australian mainstream norms. This view is based on participant observation rather than direct questioning. Income management is a low priority issue for the Kuninjku people in the current policy maelstrom that seeks to shift policy from ‘self determination’ back to a form of assimilation now heavily influenced by a neoliberal ideological agenda. Local responses vary from indifferent acceptance to resistance. I ponder the crucial policy question, how can we allow substantial financial resources to be squandered in unhelpful income management when they could be deployed productively to enhance wellbeing for Indigenous Australians?     

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.     

The public problem of ‘Aboriginal gambling‘: winning the struggle for an urban space

Gambling by Aboriginal people is increasingly identified as a significant public problem in Australia, eliciting responses mainly concerned with measurement and harm minimisation. We adopt the utilitarian philosophy of John Dewey to critically examine the way this ‘problem’ is socially constructed. We recast our roles as pragmatic researcher‐activists in the ongoing struggle to have Aboriginal practices taken seriously We draw particularly on the work of a group of senior Yolnu Aboriginal consultants and re‐present their story of gambling alongside other research on the Aboriginal use of urban gambling spaces. This helps us develop a nuanced explication of the public problem, one that challenges existing discourses and proposed solutions. We identify an Aboriginal space being produced within existing casinos which is only supported reactively by government and casino owners, and met with anxiety by community service providers. We propose the radical idea of Aboriginal urban gambling venues as indicators of what is needed for a successful, state‐supported, socially inclusionary and non‐exploitative space for Aboriginal people, and what obstacles may stand in the way of achieving this. Through this process, we assess how, as participant researchers, we can help to reformulate of the public problem in a way that is more closely aligned to Aboriginal needs and aspirations.     

Nexus between drinking patterns,gender and life satisfaction: Some evidence from Indigenous Australians

Excessive alcohol consumption results in a broad range of health problems and other social issues, such as violence, social disorder and family breakdown. As such, alcohol consumption is considered as a critical social policy issue in Australia. In this study, we have used ordered logit models to estimate the probability of an Indigenous person consuming alcohol and to assess the impact of alcohol consumption on self-perceived life satisfaction. A heteroscedasticity-corrected ordered logit model is used to identify the gender difference in such effects. For this purpose, we use the latest National Aboriginal and Torres Strait Islander Social Survey (NATSISS) 2014/2015 data collected by the Australian Bureau of Statistics. The estimation results reveal that age, gender, employment status, income and the experience of unfair treatments significantly affect Indigenous people's (level of) alcohol consumption. The results also reveal that any level of alcohol consumption is linked with reduced overall life satisfaction, which is another reason why prevention of alcohol misuse should be a priority. A significant gender differences in the medium-risk-level alcohol consumption were also observed. These findings could be used as an alcohol prevention message in developing and implementing alcohol prevention strategies and policies.     

Problems in Maori Land Legislation and the Woodward Report

Legislation in New Zealand dealing with Maori land, though well intentioned, has given rise to the twin problems of alienation and fragmentation. Legislation proposed by the Aboriginal Land Rights Commission for the Northern Territory of Australia basically avoids these pitfalls, but there are some clauses that could give rise to some forms of alienation and fragmentation.     

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.     

Ideology,Evidence and Competing Principles in Australian Indigenous Affairs: From Brough to Rudd via Pearson and the NTER

This paper tracks the recent rise of an ‘ideology vs evidence’ discourse as a way of describing good and bad Indigenous affairs policy. It suggests that a more useful way of thinking about Indigenous affairs is the analytic of three competing principles: equality, choice and guardianship. The paper suggests that dominant debates in Indigenous affairs balance these principles and move between them over time. Using a fourfold categorisation of ideological tendencies, it also suggests that different tendencies of thought about settler society and its relations with Indigenous societies occupy different positions in relation to the three competing principles. Finally, using the work of the Northern Territory Emergency Response Review Board as an example, the paper examines the role of evidence in Indigenous affairs. Evidence, it argues, always needs to be contextualised: it is always a part of arguments or debates and needs to be understood in relation to the much larger issue of balancing competing principles.     

“Moving from transactional government to enablement” in Indigenous service delivery: The era of New Public Management,service innovation and urban Aboriginal community development

Over the last 40 years, Aboriginal Community Based Organisations have played a distinctive role in society in relation to urban Aboriginal peoples and their rights to self‐determination and community development in the Australian city of Newcastle. They have proven essential to advocacy, the maintenance of community development, and the creation of new Aboriginal social infrastructure (community organisations, facilities, services, and supporting infrastructure). Autonomy has been empowering for local Aboriginal people. Major reforms to the delivery of government social services, particularly government enablement of a new social service market based on New Public Management principles, threaten this success. This interpretive, qualitative case study illustrates the effects of social service market enablement. It draws on a case study of the effects of social service market enablement on urban Aboriginal Community Based Organisations in Newcastle, showing the antagonistic relationship between social service market enablement and Aboriginal community enablement and development. It ends with a discussion of how Aboriginal community development in this city could be re‐enabled in light of the Prime Minister's arguments in his 2017 Annual Parliamentary Closing the Gap speech providing particular value in the context of policy discussions about moving from transactional government to enablement in Indigenous affairs.     

An Aboriginal community's perceptions and experiences of child neglect in a rural town

Very little is known about how Aboriginal parents experiencing vulnerabilities and communities perceive child neglect, despite Aboriginal families being highly overrepresented in the child protection system. This research investigates the perceptions and experiences of child neglect from Aboriginal parents and human services workers in a rural community. Research methods consisted of community forums and interviews with parents and workers. One community forum developed interview guides and vignettes, and the second discussed and interpreted findings. Between the two forums, in‐depth interviews were conducted with 18 Aboriginal parents and nine Aboriginal and non‐Aboriginal workers. Overall Aboriginal parents perceived child neglect in a similar way to Aboriginal and non‐Aboriginal workers. Violence and substance abuse were main risk factors for child neglect, and intergenerational trauma, racism and discrimination, and feeling powerless were prevalent in the community. The paper concludes that there are little differences in the way Aboriginal and non‐Aboriginal people understand child neglect. Instead it is the difficult circumstances experienced by Aboriginal families that keep parents from actualising their parenting expectations. The implications of these findings when working with Aboriginal families and communities are also discussed.