Secretariat of National Aboriginal and Islander

Child Care

Integrated service delivery for Aboriginal and Torres Strait Islander children and familiesMarch 2012

SecretariatofNationalAboriginalandIslanderChildCareSNAICCthankstheDepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairsforthefundingsupporttoconductthisresearch.

AstrongvoiceforourchildrenandfamiliesSNAICCisthenationalnon‐governmentpeakbodythatadvocatesonbehalfofAboriginalandTorresStraitIslanderchildrenandfamilies.

SNAICCLevel1,252‐260StGeorgesRdNorthFitzroyVictoria3068www.snaicc.org.auPhone:(03)94898099

Researchedandwrittenby:JohnBurton,PolicyOfficer,SNAICC

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TableofContents

1.INTRODUCTION .......................................................................................................................... 42.WHATISINTEGRATEDSERVICEDELIVERYANDWHYISITIMPORTANT? ............ 52.1CONCEPTIONSOFINTEGRATEDSERVICEDELIVERY ........................................................................... 52.2THEIMPORTANCEOFCHILDANDFAMILYSERVICEINTEGRATION..................................................102.3ASPECTSOFEFFECTIVEINTEGRATEDCHILDANDFAMILYSERVICEPROVISION ...........................13

3.THEAUSTRALIANPOLICYCONTEXTFORINTEGRATEDSERVICEDELIVERYFORABORIGINALANDTORRESSTRAITISLANDERCHILDRENANDFAMILIES. ...............174.SIGNIFICANTAUSTRALIANINITIATIVES..........................................................................194.1COMMUNITIESFORCHILDREN...............................................................................................................204.2INTEGRATEDFAMILYSERVICES(IFS)ANDCHILDFIRST(VICTORIA) ........................................234.3MULTIFUNCTIONALABORIGINALCHILDREN’SSERVICES(MACS) ...............................................25

5.INTERROGATINGGOODPRACTICEINAPPROACHESTOINTEGRATEDSERVICEDELIVERYFORABORIGINALANDTORRESSTRAITISLANDERCHILDRENANDFAMILIES..........................................................................................................................................275.1ABORIGINALANDTORRESSTRAITISLANDERENGAGEMENTININTEGRATEDSERVICEDESIGNANDDELIVERY..................................................................................................................................................275.2PARTNERSHIPSFORSERVICEINTEGRATION .......................................................................................345.3COORDINATIONANDFACILITATIONOFINTEGRATEDSERVICESFORABORIGINALANDTORRESSTRAITISLANDERCHILDRENANDFAMILIES..............................................................................................385.4IMPORTANTISSUESRELATINGTOACCESSANDENTRYPOINTSTOINTEGRATEDSERVICESYSTEMSFORABORIGINALANDTORRESSTRAITISLANDERCHILDRENANDFAMILIES.....................415.5UNIVERSALANDABORIGINAL‐TARGETEDSERVICEPROVISION ......................................................435.6SUSTAINABILITYOFINTEGRATIONINITIATIVESINABORIGINALANDTORRESSTRAITISLANDERSERVICECONTEXTS..........................................................................................................................................47

6.CONCLUSION ..............................................................................................................................50REFERENCELIST ...........................................................................................................................53

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1.IntroductionTherehasbeensignificantfocusrecentlyontheimportanceofintegratedservicedeliveryforaccess,outreach,andimprovingoutcomesforvulnerablechildrenandfamilies.IntegratedservicedeliveryisembeddedintheCouncilofAustralianGovernments(COAG)NationalPartnershipAgreementforIndigenousEarlyChildhoodDevelopment,whichdrawsonapriorSecretariatofNationalAboriginalandIslanderChildCare(SNAICC)publication1toadvancethat:

‘Earlychildhoodexpertsadvocateintegrateddeliveryofservices,includingantenatalservices,childandmaternalhealthservices,parentingandfamilysupportservices,andearlylearningandchildcare,asthebestdeliveryplatformtoensurefamiliesactuallyreceivethesupporttheyneed.’2

IntegratedservicedeliveryisalsoamajorelementofCOAG’sInvestingintheEarlyYears—ANationalEarlyChildhoodDevelopmentStrategy,3andProtectingChildrenisEveryone’sBusiness:NationalFrameworkforProtectingAustralia’sChildren2009­2020.4Thelatterdocumentspecifiesthatoneofthekeystrategiesunderoutcome2(‘Childrenandfamiliesaccessadequatesupporttopromotesafetyandinterveneearly’)isto‘Implementanintegratedapproachtoservicedesign,planninganddeliveryforchildrenandfamiliesacrossthelifecycleandspectrumofneed.’5IntegratedservicedeliverymodelshavebeendevelopedandarebeingtrialledandimplementedinAustralia.WhileSNAICCparticipatedintheoriginaldriveforintegratedservicedelivery,therehasbeenlittleAboriginalandTorresStraitIslanderperspectiveontheevolutionofthemodelsofintegratedservicedeliveryandtheextenttowhichtheyrespondtotheneedsofAboriginalandTorresStraitIslanderchildrenandfamilies.Thisisacriticalissuetoensureeffectiveoutreachforvulnerablefamiliesandashiftinimplementationsystemsandpracticetowardsamorepreventativeapproachtochildprotectionandfamilysupport.

1SecretariatofNationalAboriginalandIslanderChildCareInc.(SNAICC)andDepartmentofChildandFamilyStudiesSwinburneUniversity.(2004).IndigenousParentingProject:MainReport,July.2CouncilofAustralianGovernments(COAG).(2008).NationalPartnershipAgreementforIndigenousEarlyChildhoodDevelopment.NationalPartnershipAgreementbetweentheCommonwealthofAustraliaandtheStateandTerritoryGovernmentsregardingIndigenousEarlyChildhoodDevelopment.Retrievedon25January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2008‐10‐02/docs/indigenous_early_childhood_NPA.pdf,p.4.3CouncilofAustralianGovernments(COAG).(2009).InvestingintheEarlyYears—ANationalEarlyChildhoodDevelopmentStrategy,2July.Retrievedon25January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/national_ECD_strategy.pdf.4CouncilofAustralianGovernments(COAG).(2009).ProtectingChildrenisEveryone’sBusiness:NationalFrameworkforProtectingAustralia’sChildren2009‐2020.Retrieved25January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐04‐30/docs/child_protection_framework.pdf.5Ibid.18.

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Thispaperreviewstheliteratureonintegratedservicedeliverymodelsforchildrenandfamilies,firstdefiningtheconceptofintegratedservicedeliveryandhighlightingitsimportanceforchildandfamilyserviceprovision.ItdescribestheAustralianpolicycontext,thenspecificallyinterrogatesapproachestointegrationthatarecriticaltoeffectiveservicedeliveryforAboriginalandTorresStraitIslanderchildrenandfamilies,drawingstronglyonevaluationofleadingAustralianinitiativesinchildandfamilyserviceintegration.ThereviewpresentsasummaryofpromisingapproachesthatareimportanttoinformthedesignofintegratedservicesystemsinAboriginalandTorresStraitIslanderchildandfamilyservicecontexts.IthighlightsthecriticalimportanceofbuildingthecapacityofAboriginalandTorresStraitIslandercommunitycontrolledorganisations(ACCOs)andimplementingapproachesthataretargetedtosupporttheirparticipationinintegratedsystems.

2.Whatisintegratedservicedeliveryandwhyisitimportant?TounderstandtheimportanceofintegratedservicedeliveryinrespondingtotheneedsofAboriginalandTorresStraitIslanderchildrenandfamilies,itisfirstimportanttodefinetheconceptandreviewknowledgeofitscontributiontoeffectiveserviceprovision.

2.1ConceptionsofIntegratedServiceDeliveryByitsnature,integratedservicedeliveryisacomplexanddiverseconcept,takingondifferentmeaningsandrealitiesinthevarietyofservicesectorcontextsandlocalserviceenvironmentsinandacrosswhichintegratedsystemsoperate.Whalleydescribesintegratedchildren’sservicesasnecessarilycomplextorespondtoneedsin‘acomplex,changingandoftenchaoticworld.’6Integrationisbothsystemsandrelationshipbased,andtobeeffectiverequirescollaborativeeffortsatthewhole‐of‐governmentsystemslevel,inregional‐planningstructures,aswellasinservicemanagementanddirectservicedeliverypartnerships.7Definitionsofintegrationinthechildandfamilyservicesectorliteraturecommonlydescribefullserviceintegrationastheendpointonacontinuumofintra‐agency,inter‐agencyand/orinter‐disciplinarycollaboration.8Alongthis

6Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).137Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).158Ibid.17;Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARACY).3;Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.2;Scott,D.(2005).Inter‐organisationalcollaborationinfamily‐centredpractice:Aframeworkforanalysisandaction.AustralianSocialWork,58(2),March.

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continuum,thejourneytowardsintegrationinvolvesincreasinglevelsofcooperation,coordination,informationexchange,jointplanning,responsibilityandaccountability,andthedevelopmentofformalpartnershipstructures.9Asservicesareincreasinglyintegrated,serviceautonomydecreasesandservicesadoptsharedgoalsandtargets;sharedsystemsofmanagementandgovernance;andpoolfunding.10Fullintegrationischaracterisedbythemergingofpreviouslyindependententitiesintoasingle‘integratedentity.’11Withafocusonimprovingaccesstoarangeoffamilysupports,integratedservicesarecommonlydescribedascentredaroundthechildandtheirfamily,12withservicesorganisingtorespondtoneedsinspecificfamilyandcommunitycontexts.13Inthisway,integratedsystemspursuepositiveoutcomesforchildrenandfamiliesasagoalratherthanserviceoutputs,14andtypicallyseektointerveneearly,preventfamilybreakdownandpromotewell‐being.15MooreandSkinnerhighlighttheimportanceofservicedeliverythatisbothintegratedandtiered,basedonapublichealthmodel,16akeyapproachadoptedinAustralianpolicyanddescribedfurtherinsection3below.Whileacknowledgingthevitalimportanceofnationalandwhole‐of‐governmentapproachestoenablingintegration,thisreviewfocusesprimarilyonregionalandlocalservicedevelopment,management,coordinationandpartnershiplevelsofintegration.Attheselevelstheliteraturehighlightstheimportanceoflocalcommunitycontextand‘place‐based’realitiestothedevelopmentofintegratedservicesystems.17Afocusonparticularareasandneighbourhoodsissupportedbyresearchthatidentifiesstronglinksbetweenneighbourhood132;Horwath,J.,andMorrison,T.(2007).Collaboration,integrationandchangeinchildren’sservices:Criticalissuesandkeyingredients.ChildAbuse&Neglect,31,57.9Ibid.10Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.53;Horwath,J.,andMorrison,T.(2007).Collaboration,integrationandchangeinchildren’sservices:Criticalissuesandkeyingredients.ChildAbuse&Neglect,31,55‐69.57.11Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).17;Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARCY).3;Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.2.12Siraj‐Blatchford,I.(2010).Improvingdevelopmentoutcomesforchildrenthrougheffectivepracticeinintegratingearlyyearsservices,CentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.19;Scott,D.(2005).Inter‐organisationalcollaborationinfamily‐centredpractice:Aframeworkforanalysisandaction.AustralianSocialWork,58(2),March,133.13Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.53.14Horwath,J.,andMorrison,T.(2007).Collaboration,integrationandchangeinchildren’sservices:Criticalissuesandkeyingredients.ChildAbuse&Neglect,31,65;14Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.53.15Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).7.16Ibid.15‐16.17Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.53.

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characteristicsandhealthandwell‐beingoutcomes,recognisingtheimportanceoflocalserviceavailability,socialcohesionanddevelopingsocialcapital.18Brechman‐ToussaintandKoglerrefertoanevaluationoftheExtendedSchoolsinitiativeintheUK,notingthat‘themostsuccessfuloutcomesappearedtoberelatedtoagradualshapingofserviceprovisiontoreflecttheneedsofthelocalcommunity.’19Effectiveintegrationhasbeendescribedasworkingfromthestartingpointoffamilyandcommunitystrengths,20anddrawingonthatbasewithafocusoncommunityparticipationandleadershipinthedesignanddeliveryofservicesbasedoncommunity‐identifiedneeds.21Integrationcallsforcollaboration,notjustbetweenserviceproviders,butalsobetweenserviceprovidersandcommunity,inawaythatbuildscapacityforandempowerscommunitymemberstobringaboutpositivechange.22Alcockdescribesthisasamiddlewaybetweentop‐downandbottom‐uppolicydevelopmentthatassertsacommitmenttofamilyandcommunityparticipationwiththeaimbeing‘tochangestructuralconditions…byactivatingagentstobeparticipantsintheprocessofchange.’23AsWhalleydescribes,‘children,parentsandstaffneedtobelievethattheycanchangedifficultsituationsandmakethingshappenintheircommunities.Acentralconcern…istodevelopasenseofagency,whichreflectsself‐esteemandselfconfidence.’24However,Alcocknoteswithcautionthatifparticipationistogenuinelycontributetoempowermentitmustgobeyondaprocedural‘seatatthetable’tobe‘theacquisitionofpoweroverthedecisionsmade.’25

18Edwards,B.etal.(2009).StrongerFamiliesinAustraliastudy:theimpactofCommunitiesforChildren,OccasionalPaperNo25,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).3.19Ofsted2006inBrechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARCY).21.20Scott,D.(2005).Inter‐organisationalcollaborationinfamily‐centredpractice:Aframeworkforanalysisandaction.AustralianSocialWork,58(2),March.133.21Cortis,N.(2008).EvaluatingArea‐basedInterventions:TheCaseof‘CommunitiesforChildren’.ChildrenandSociety,22,112‐123.114;Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1).90;Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2),12;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.42;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010);Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.32;WesternAustralianIntegratedServiceDepartment(2009)inPress,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.9‐10.22Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).12;Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1),87‐96.90.23Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1),87‐96.90.24Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).12.25Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1).91.

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Increasingaccessforchildrenandfamiliesisacentraldrivingphilosophyofserviceintegration,basedonthenotionthatintegratedsystemshavethepotentialtorespondmoreholisticallytochildandfamilyneedsbycombatingservicefragmentationandmakingarangeofchildandfamilyservicereadilyavailable.26Holisticresponsesarefacilitatedbothbysingleintegratedservices,aswellascooperativeactivitiesandcoordinatedreferralsystemsbetweenprovidersthatlinkfamiliestoarangeofsupportsfromasinglepointofaccesstotheservicesystem.27Animportantpointofclarification,notalwaysaddressedintheliterature,isthatwhileintegratedsystemsseektoensureaccesstomultipleservicesthroughsingleaccesspoints,theyaremostaccessiblewheretherearemultipleentrypointsintotheintegratedservicesystem,with‘nowrongdoors.’28Theseentrypointsshouldseektoengagefamiliesbasedon:needsatdifferentpointsthroughoutthelifecycle;practicalandgeographicalaccessconsiderations;andwithafocusonearlyengagementoffamiliesthroughprimaryserviceprovisionthatisuniversallyavailableandattractivetofamilies,forexample,earlychildhoodeducationandcare.29Inthisway,serviceswhichareuniversallyavailableandcommonlyaccessedserveas‘hooks’,drawingfamiliesintotheservicesystemand‘laddering’themtoadditionalsupportsandactivitiesaswantedandrequired.30CulturalappropriatenessofservicesystementrypointsisasignificantissueinenablingaccessforAboriginalandTorresStraitIslanderpeoplesandisaddressedinsection5.5below.31Anappreciationoftheneedformultipleentrypointsiscriticaltothephysicaldesignofintegratedservicedeliverysystemsandsites.Integratedservicesarecommonlydescribedaseitherphysicallyco‐located(sometimescalled‘on‐stop‐shops’)orvirtualnetworkscharacterisedbycloseworkingrelationshipsand

26Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2),31‐32;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.4,10‐11;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).6;Valentine,K.etal.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3.27Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARCY).2;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.53.28Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9;seealso:Daniel,B.(2004).AnoverviewoftheScottishmultidisciplinarychildprotectionreview.ChildandFamilySocialWork,9.255.29Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2).41.30Ibid.31seegenerally:SecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.

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referralpathwaysbetweendifferentservicesandservicesites.32Co‐locatedcentres,whileprovidingadvantagesforserviceinteractionandsingle‐siteaccesstoarangeofservicesforfamilies,33canalsocreateaccesschallengeswhenservicesarebroughttogetherinalocationthatfamiliescannoteasilyreach.34Thesechallengesareexacerbatedinregional,ruralandremotelocationswithspread‐outpopulations.35Creativityisrequiredinthedesignofservicesintheseareastoensurethataccesstointegratedservicesiswidelyavailable.Pressetalsuggesttheideaofa‘hybrid’modelofserviceintegrationthatcombinesaspectsofco‐locationwithvirtualservicenetworks.36Outreachtovulnerablefamiliestoengagethemwheretheyare,athome,andoutsideofintegratedservicecentresisalsorecognisedasvitaltoconnectingfamiliestoservices.37Integratedchildandfamilyserviceshavesometimesbeenconceivedofashavingthegoalofuniversal,‘whole‐of‐population’serviceprovision.38AsMooreandSkinnerdescribe,‘Therearegoodgrounds,bothempiricalandtheoretical,foradoptingauniversalapproachtoserviceprovision,strengtheningtherangeofuniversalservicesandprovidingadditionalservicesinresponse‐basedfashion(accordingtoemergingneedsratherthanrisks).’39Leigh,however,recognisesthattherealityofcomplexanddiverseneedsmeansthatitisnotpossibletointegrateallservicesforallpeople,andthatprioritisationofneedandtargetedgroupsisnecessaryforintegratedservicesystemsdevelopment.40WhileRogersandMoorecontendthat‘adaptationshouldbepossibletomeetadditionalorspecialistneedsfromwithinauniversalsystem,’41theiranalysisdoesnotaddresstherealitythattargetingservicesinanAboriginalandTorresStrait32Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).17.33Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).10;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).17.34Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).17.35Ibid.36Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.6.37Tunstill,J.,Blewett,J.,andMeadows,P.(2009).EvaluatingthedeliverybyActionforChildren,oftargetedfamilysupport,SynergyResearch&ConsultingLtd.12;Siraj‐Blatchford,I.(2010).Improvingdevelopmentoutcomesforchildrenthrougheffectivepracticeinintegratingearlyyearsservices,CentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.27;Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.21‐22;MMoore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9.38Seegenerally:Moore,T.G.(2008).Rethinkinguniversalandtargetedservices,CentreforCommunityChildHealth.39Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).8.40Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.24‐25.41Rogers,R.,andMoore,T.(2003).TheEarlyYearsProject:Refocusingcommunitybasedservicesforyoungchildrenandfamilies:ALiteratureReview,CentreforCommunityChildHealthandRoyalChildren’sHospital,Melbourne.8.

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IslandercontextisnotonlyaboutrespondingtopovertyanddisadvantageexperiencedbymanyAboriginalandTorresStraitIslanderpeoples,butalsoaboutensuringthatimportantaspectsofculturallyappropriateserviceprovisionandcommunity‐controlareconsideredandincludedinservicedesignanddevelopment.42Theseimportantissuesareaddressedinfurtherdetailinsection5.5below.Intheabsenceofthisanalysis,thereremainstheriskthattheuniversalandinclusiveserviceprovisionthatMooreadvocates43couldbeimplementedinamannerthatisexclusiveofAboriginalandTorresStraitIslanderneedsandaspirations,creatingbarrierstoserviceaccessforAboriginalandTorresStraitIslanderpeoplesandfrustratingtheconcurrentgoalofculturallyaccessibleservicesystemsthatheidentifies.44

2.2Theimportanceofchildandfamilyserviceintegration

Whiletheliteraturehassignificantlyaddressedthetheoreticalimportanceofserviceintegration,fewaccountsdrawonoutcomes‐basedevaluation.Bothestablishingthemeansofevaluatingintegrationandcollectingevidenceofthelinksbetweenintegrationandchildandfamilydevelopmentandwell‐beingoutcomesrequiresfurtherattention.Siraj‐BlatchfordandSiraj‐Blatchfordidentifythatthereisalongwaytogoindevelopingevidence‐basedunderstandingofeffectiveserviceintegration,andthatthereiscurrentlyalackofconsensusaboutwhattheindicatorsofsuccessare.45MooreandSkinnerprofferthatthedirectoutcomefociofintegratedservicedeliveryare‘accesstoafullrangeofservices’and‘promptresponsestochildandfamilyproblems’,46ratherthanwell‐beingoutcomeswhich,despitebeingconsequential,arelonger‐termanddifficulttolinkdirectlytoserviceintegration.47Measuringoutcomesisfurtherhamperedbythediversityofapproaches,acknowledgingthatthisdiversityisdesirable;48thereisno‘one‐sizefitsall’approach,andtheimportanceofcommunitycontextremainsparamountasdescribedinsection2.1above.49

42FordiscussionofthelinkbetweenculturallyappropriateserviceprovisionandaccesstoservicesforAboriginalandTorresStraitIslanderpeoples,SecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.43Moore,T.G.(2008).Rethinkinguniversalandtargetedservices,CentreforCommunityChildHealth.7‐8.44Ibid.12;45Siraj‐Blatchford,I.(2010).Improvingdevelopmentoutcomesforchildrenthrougheffectivepracticeinintegratingearlyyearsservices,CentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.30‐31.46Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).6.47Valentine,K.,Katz,I.,andGriffiths,M.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.6‐7.48Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.8.49Ibid.

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Manyarguethatthecomplexityofchildandfamilyneedsrequiresacomplexityofresponse.50AsValentineetaldescribe,‘‘joinedupproblems’require‘joinedupsolutions’.’51Somecontendthatthecomplexityofneedsisincreasinginlinewith‘rapidsocietalchange’thatiscontributingtoworseningdevelopmentaloutcomes.52Worseningoutcomesarecommonlylinkedtoproblemsofservicefragmentation,andaservicesystemthatishardforfamiliestoaccessandnavigate.53Fragmentationincreasestheriskthatfamilieswhoneedsupportwill‘fallthroughthecracks,’notreceivingtherightsupportsattherighttime.Serviceintegrationisconceptualisedastheantithesisoffragmentation,enablingcohesionandcontinuity,orwhatissometimesreferredtoas‘seamless’and/orholisticserviceprovision.54RogersandMoorerefertotheanalysisofHarbinandWestwhoidentifiedthat‘ingeneral,themorecomprehensiveandcohesivethesystem,thebettertheresultsforchildrenandfamilies.’55Integrationcanreduceduplication,suchthatfamiliesarenotfacedwithundergoingmultipleassessmentsandtellingtheirstoryrepeatedlyinordertoaccesssupport.56Pressetaldescribethatintegratedservicesalsopromotebothhorizontalandverticalcontinuityallowingmovementacrossservicesatonepointintime,andappropriateserviceresponsesovertime.57CitingCorteretaltheydescribethat‘continuitycanmeanfewertransitionsforthechild,morerecognitionofthe

50Valentine,K.,Katz,I.,andGriffiths,M.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).1.51Valentine,K.,Katz,I.,andGriffiths,M.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3.52Moore,T.G.(2008).Rethinkinguniversalandtargetedservices,CentreforCommunityChildHealth.2;seealsoJenkins,S.(2005).WholeofGovernmentPolicyFrameworkfortheEarlyYears:LiteratureReviewandEarlyYearsprograms,projectsandinitiativesoperatinginTasmania,DepartmentofPremierandCabinet.4‐5.53Brechman‐TousaintandKogler,2010,2;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).1&4.54Valentine,K.,Katz,I.,andGriffiths,M.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3;seealso:Cortis,N.(2008).EvaluatingArea‐basedInterventions:TheCaseof‘CommunitiesforChildren’.ChildrenandSociety,22.114;Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARCY).2.55HarbinandWest(1998)inRogers,R.,andMoore,T.(2003).TheEarlyYearsProject:Refocusingcommunitybasedservicesforyoungchildrenandfamilies:ALiteratureReview,CentreforCommunityChildHealthandRoyalChildren’sHospital,Melbourne.7.56Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARCY).2;Cortis,N.(2008).EvaluatingArea‐basedInterventions:TheCaseof‘CommunitiesforChildren’.ChildrenandSociety,22.11457Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.10.

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child’sindividualneeds,betterandmoreconsistentprogramming,andmoreconsistentexpectationsandsupportfromadults.’58Serviceintegrationisconsideredcriticaltoenablingaccessforthemostvulnerableanddisadvantagedmembersofsociety.59Siraj‐BlatchfordandSirajBlatchfordciteastudybyEgelandandBosquetwhichshows‘thatinterventionswithhigh‐riskfamiliesaremoresuccessfulwhentheyaddressnotonlytheparent–childrelationship,butalsotheotherproblemsparentsface,suchaspoverty,unemployment,poorhousingandsubstanceabuse.’60MooreandSkinneridentifythatcharacteristicsofvulnerablegroupsincludingalackofsocialnetworks,confidence,andfamiliaritywithsystemcultureandlanguage;andmultipleproblemsrequiringassistancefrommultiplesources,meanthattheyaremorenegativelyaffectedbyservicefragmentation.61Thisrealitycanexacerbateexistinginequalities,andisofparticularsignificanceforAboriginalandTorresStraitIslanderpeopleswhoexperiencesignificantlylowerhealthandwell‐beingoutcomesthanthegeneralpopulationinAustralia.62WithintheCanadiancontext,BallhighlightsthatinremoteandregionalareaswithlargeIndigenouspopulations,highturnoverofstaffimpactsonservicememoryandcontinuityofcareforchildrenandfamilieswhoexperiencelong‐termandmulti‐generationaldisadvantages.63However,whereservicesworkinanintegratedway,‘theknowledgeofneeds,goalandservicehistoryofchildrenandfamiliesisretainedandpassedalongwithinacommunity‐basedfamilysupportteam,leadingtocontinuousandbettercoordinatedservices.’64Integrationwithinindividualservices,suchthattheyoperatemoreholistically,isalsoconsideredcrucialinruralandremotelocationsduetothesmallnumberofavailableserviceproviders.65Manyexistingintegrationinitiativesaretargetedinareasofhighdisadvantage,asmeasuresdirectedtoaddressexistinginequalitiesandclosethegapindevelopmentalandwell‐beingoutcomes.66

Thisreviewprimarilyaddressesintegrationofchildandfamilyservices,notingparticularlythestrongfocusintheliteratureonintegratedmodelsofearly58Corteretal,2008inPress,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.10.59Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2).31;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).6.60EgelandandBosquet,2001inSiraj‐Blatchford,I.(2010).Improvingdevelopmentoutcomesforchildrenthrougheffectivepracticeinintegratingearlyyearsservices,CentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.33.61Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).6.62See:SteeringReviewfortheReviewofGovernmentServiceProvision.(2011).OvercomingIndigenousDisadvantageKeyIndicators2011.CommonwealthofAustralia.63Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2).32.64Ibid.65Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).13.66Seeforexample:theCommunitiesforChildreninitiative.

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childhoodeducationandcareservicedelivery.Stronglinkshavebeenidentifiedbetweensupportandinterventioninearlychildhoodandlaterdevelopmentaloutcomes,67leadingmanyauthorstohighlightearlychildhoodasakeysiteforserviceintegrationwiththegreatestpositiveimpactover‐time.68Thisapproachalsoreflectsthefocusonpublic‐healthmodelinterventionswhichseektointerveneearlyandpreventfamilydeterioration,withearlychildhoodeducationandcareconsidereda‘non‐stigmatisedentrypointintoothersupportservices’with‘capacitytoprovidesupport…earlyinthelifecourse.’69Flaxmanetalnotethat:

‘ThisisparticularlyimportantamongIndigenouspeople,sincemanyIndigenousfamiliesandchildrenarelargelydisengagedfromtheservicenetwork.Inmanycases,afamily’sengagementwithachildcareserviceistheonlyconnectiontheyhavetoservicenetworksandforthisreason,referralsbetweenearlychildhoodserviceprovidersandothersupportservicesarecrucial.’70

Economicanalysisrevealsthepossibilityofsignificantreturnonearlyyearsinvestment,andthatascaleofinvestmentweightedtotheearlyyearsismosteffective.71Also,integrationmeasuresareconsideredessentialtoaddressfragmentationinearlyyearsserviceprovisionthatexistsasaresultofthelackofauniversalearlychildhoodeducationandcaresystem.72

2.3AspectsofeffectiveintegratedchildandfamilyserviceprovisionDespitetheonlyrecentlyemergingevidencebaseonoutcomesachievedthroughintegration,apreliminaryunderstandingof‘whatworks’basedonrecentimplementationandevaluationofintegratedchildandfamilyserviceapproachesisavailable.Significantaspectsofintegratedservicedeliverycommonlyidentifiedintheliteraturearedescribedintable1below.Itisbeyondthescope67Mustard(2005)andShonkoff&Phillips(2000)inSimsetal.(2008).“Indigenouschildcarersleadingtheway”.AustralianJournalofEarlyChildhood,33(1),1;Jenkins,S.(2005).WholeofGovernmentPolicyFrameworkfortheEarlyYears:LiteratureReviewandEarlyYearsprograms,projectsandinitiativesoperatinginTasmania,DepartmentofPremierandCabinet.9.68Jenkins,S.(2005).WholeofGovernmentPolicyFrameworkfortheEarlyYears:LiteratureReviewandEarlyYearsprograms,projectsandinitiativesoperatinginTasmania,DepartmentofPremierandCabinet.9;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010);Simsetal.(2008).“Indigenouschildcarersleadingtheway”.AustralianJournalofEarlyChildhood,33(1).69Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.11.70Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).13.71Cunha,F.andHeckman,J.(2006).InvestinginourYoungPeople.FundedbytheNationalInstituteofHealth,theCommitteeforEconomicDevelopment,ThePewCharitableTrustsandthePartnershipforAmerica’sEconomicSuccess.69.72Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).

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ofthisreviewtoprovideafulldescriptionofdetailedaspectsofintegrationwhicharemanyandvaried,andthosedescribedbelowarebroadercomponentswithmanysub‐componentsrequiringconsiderationinthedesignanddeliveryofintegratedservices.Table1–AspectsofEffectiveIntegrationofChildandFamilyServicesIntegrationAspect

Description

Sharedvision Organisationsandprofessionalsclearlyidentifyandworktowardsasharedvisionbasedonpositiveoutcomesforchildrenandfamilies.Commitmenttothissharedvisionmanifestsinasharingoforganisationalandprofessionalstrengthsandresourcestoenablethepursuitofsharedgoals.Asharedvisionprovidestheplatformforsharedresponsibilityandaccountability.73

Community‐basedandowneddesignanddelivery

Broadandflexiblegovernmentframeworkssupportandenablethedevelopmentofflexibleandinnovativecommunity‐basedresponsestolocallyidentifiedneeds.74Familiesandcommunitiesparticipateindesign,deliveryandevaluationofintegratedservices.Governancestructuresenableparticipationforlocalorganisations,theirstaffandthebroadercommunity,promotingbroadlysharedownershipofinitiatives.75Communitydevelopmentapproachescontributetoempowercommunitiesandbuildsocialcapital.76

73Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARACY).83;Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.31;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9.74Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.4,29;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9‐11.75Cortis,N.(2008).EvaluatingArea‐basedInterventions:TheCaseof‘CommunitiesforChildren’.ChildrenandSociety,22.114;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.4,42;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9‐11;Leigh,J.(2008).EvaluationoftheStrongerFamiliesandCommunitiesStrategy2000‐2004:Improvedintegrationandcoordinationofservices,RMITUniversityCircle.31;Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).12.76Rogers,R.,andMoore,T.(2003).TheEarlyYearsProject:Refocusingcommunitybasedservicesforyoungchildrenandfamilies:ALiteratureReview,CentreforCommunityChildHealthandRoyalChildren’sHospital,Melbourne.9.

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Assessmentofcommunitystrengths,needs,andservicegaps(assetmapping)

Existingcommunityservices,strengths,andneedsaremappedandtakenaccountofinthedevelopmentofintegrationinitiativesthatdrawonlocalstrengthsandaddressgapsinlocalservicedeliveryandcapacity.Broadcommunityandstakeholderparticipationinassetmappingprocessescontributestounderstandingofandresponsivenessofintegratedservicestolocalneeds.77

Leadershipandfacilitation

Leadershipisapivotalfactorinfacilitatingintegrationand‘requiressophisticatedskillsinmanagingchange,buildingsustainablechangeindailypractice,andprogresstowardlongtermgoals.’78Oneleadermaybeinstrumental,butpromotingsharedleadershipiscritical.79Inparticular,integrationinitiativescanbenefitgreatlyfromidentifiedandfundedfacilitationandcoordinationrolesthatcansupportandenabletheprocessesrequiredforpartnershipdevelopmentandintegration.80AsPressetaldescribe,‘progresstowardintegrationwasconsiderablyenhancedwhenfundingwasavailabletoemployacoordinatorfortheintegratedservice,andimpededwhensuchpositionswerecutback.’81

Genuinepartnerships

Partnershiprelationshipsbetweenagencies,professionals,governmentandcommunityunderpineffectiveserviceintegration.Partnershipencompassesthecomplexrelationalprocessthatseekstobuildtrustandunderstandingwhileaddressingchallengingissues,suchaspowerimbalanceandreconcilingcomplexdifferencesofcultural,personalandprofessionalperspectives.Attentiontothetimeandprocessesrequiredforbuildingstrongrelationshipsiscriticaltoanyendeavourthatseekstoincreasecollaboration.82

77Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).39‐40;Brechman‐Toussaint,M.,andKogler,E.(2010).Reviewofinternationalandnationalintegratedservicemodelsforyoungpeopleinthepreadolescentandadolescentyears:Benefits,barriersandenablers,AustralianResearchAllianceforChildrenandYouth(ARACY).83.78Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.44.79Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).10;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.44.80Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.44;KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.32;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9.81Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.44.82Horwath,J.,andMorrison,T.(2007).Collaboration,integrationandchangeinchildren’sservices:Criticalissuesandkeyingredients.ChildAbuse&Neglect,31,63‐64;Press,F.,Sumsion,J.,andWong,

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Designforoptimalaccessforandengagementofchildrenandfamilies

Increasedserviceaccessforandengagementofchildrenandfamiliesarerecognisedaskeygoalsofserviceintegrationinitiatives,83andmeasurestopromotethesegoalsarecriticalcomponentsofintegratedservices.Importantservicedesignaspectsthatimpactaccessibilityinclude:locationandtransportavailability;84culturalsafetyandappropriateness;85multipleservicesystementrypointswith‘nowrongdoors’;86availabilityandaccessibilityofinformationaboutservices;87andcoordinatedreferralpathwaysforseamlesstransitions,andholisticandpromptresponsestofamilyneeds.88

Genuinelocalpartnershipsarewidelyrecognisedasacoreaspectandenablingfactorforeffectiveintegratedservicedelivery,anditisthereforeworthwhileexaminingtheconceptinmoredepth.AsAlcocknotes,thepolicydrivetowardspartnershipsforintegratedservicedeliveryhasnotfullyengagedwith‘thecomplexcontextualproblemsofturningthegoodidealsofpartnershipintogoodpracticeintherealworld,’andgovernmentsfacethecontinuingchallengeof

S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.24;SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.83Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2),31‐32;Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.10‐11;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).6;Valentine,K.etal.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3.84Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).10;Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9.85Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).10‐11.SecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.10‐12.86Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).9;seealso:Daniel,B.(2004).AnoverviewoftheScottishmultidisciplinarychildprotectionreview.ChildandFamilySocialWork,9.255;SecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.10‐11.87Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).8.88Valentine,K.etal.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.3;Ball,J.(2010).CenteringCommunityServicesAroundEarlyChildhoodCareandDevelopment:PromisingPracticesinIndigenousCommunitiesinCanada.ChildHealthandEducation,2(2),42.

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‘movingbeyondtherhetoricofjoining‐up.’89SNAICChasrecentlyresearchedprinciplesandpracticesthatunderpingenuinepartnershipdevelopmentinAboriginalandTorresStraitIslanderservicecontexts,andtheseapproachesareconsideredinsection5.2below.90PrinciplesofpartnershipdevelopmentidentifiedbySNAICCthroughcasestudybasedresearcharebroadlyreflectiveoftheaspectsofeffectiveserviceintegrationdetailedintheliterature,reflectingtherealitythatgenuinepartnershiprelationshipsarerequiredtoenableintegration,which,asdescribedabove,isbothasystemsandastronglyrelationalendeavour.PartnershipprinciplesidentifiedbySNAICCthatapplywithinandbeyondAboriginalandTorresStraitIslanderservicecontextsinclude:commitmenttodevelopinglong‐termsustainablerelationshipsbasedontrust;anaimtoimprovelong‐termwellbeingoutcomesforchildrenandfamilies;sharedresponsibilityandaccountabilityforsharedobjectivesandactivities;respectforlocalknowledge,skillsandleadership;valueforprocesselementsasvitaltopartnershipdevelopment;addressingunequalrelationshipsandstructures;andanopennesstoworkingdifferently.91

3.TheAustralianpolicycontextforintegratedservicedeliveryforAboriginalandTorresStraitIslanderchildrenandfamilies.TheCouncilofAustralianGovernments’(COAG)NationalIndigenousReformAgreement(NIRA),detailsthebroadcommitmentandtargetsthatAustralianGovernmentshaveundertakentoworktowardsthegoalofclosingthegapinIndigenousdisadvantage.92AccesstoearlychildhoodservicesisapriorityoftheNIRAandtheimportanceofintegratingservicestoachieveNIRAgoalsisstronglyrecognised.IntegrationisoneofsixprinciplesthatunderpintheapproachtoservicedeliveryforAboriginalandTorresStraitIslanderpeoplesandisdetailedinscheduleDoftheNIRA:

‘Integrationprinciple:ThereshouldbecollaborationbetweenandwithinGovernmentsatalllevels,theiragenciesandfundedserviceproviderstoeffectivelycoordinateprogramsandservices.Inparticularattentionistobegivento:(a)articulatingresponsibilitiesbetweenalllevelsofgovernment;(b)identifyingandaddressinggapsandoverlapsinthecontinuumofservicedelivery;(c)ensuringservicesandprogramsareprovidedinanintegratedandcollaborativemannerbothbetweenalllevelsofgovernmentsandbetweenservices;(d)ensuringservicesandprogramsdonotsetincentivesthatnegativelyaffectoutcomesofotherprogramsandservices;and(e)recognisingthatacentrallyagreed

89Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1).89.90See:SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.91SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.6.92CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.

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strategicfocusshouldnotinhibitservicedeliveryresponsesthataresensitivetolocalcontexts.’93

Thisprinciple,togetherwithothersidentifiedintheNIRAprovideasolidframeworkandstartingpointforinterrogatingtheapproachtointegrationinAboriginalandTorresStraitIslanderservicedeliverycontexts.Theseprinciplesareconsideredthroughoutthefollowingsections.Applyingthisapproachmorespecificallytothechildandfamilyservicesector,TheNationalFrameworkforProtectingAustralia’schildrenadoptsapublichealthmodelandaimstointegrateservices‘acrossthelifecycleandspectrumofneed.’94Thisapproachseekstoreducetheincidenceofchildabuseandneglectthroughaprimaryfocusonpreventativesupportsforallchildrenandfamilies,95basedontheassumptionthat‘byprovidingtherightservicesattherighttimevulnerablefamiliescanbesupported,childabuseandneglectcanbeprevented,andtheeffectsoftraumaandharmcanbereduced.’96Amajorinitiativeaimedatpromotingthegoalthat‘Indigenouschildrenaresupportedandsafeintheirfamiliesandcommunity,’andimplementingastrategyofexpandingserviceaccess,istheestablishmentof38IndigenousChildandFamilycentres.97TheintentionforthesecentrestobesitesforintegratedearlyyearsservicedeliveryisdescribedintheCouncilofAustralianGovernments(COAG)NationalpartnershipagreementforIndigenousearlychildhooddevelopment:

‘TheChildrenandFamilyCentreswillprovideadynamicmixofservices,responsivetocommunityneeds,andincludechildcare,earlylearningandparentandfamilysupportservices.TheoperationsoftheChildrenandFamilyCentrewillbeunderpinnedbyintegrationoftheirmanagement,governanceandservicesystems.CommunityengagementwiththeChildrenandFamilyCentresisintegraltotheirsuccessfulimplementation.’98

Notionsofcommunityengagement,participation,andleadershipindesignanddeliveryaboundinAustraliangovernmentpolicyframeworksforAboriginalandTorresStraitIslanderchildandfamilyservicedeliveryandserviceintegration.99

93Ibid.94Ibid.18.95Ibid.12.96Ibid.17.97Ibid.17;ThenumberofChildandFamilyCentresbeingestablishedhasincreasedfromtheminimumof35identifiedintheFramework,to38Centresthathaveeithercommencedoperationorareunderdevelopment.98CouncilofAustralianGovernments.(2009).NationalPartnershipAgreementforIndigenousEarlyChildhoodDevelopment.CommonwealthofAustralia.99CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf;CouncilofAustralianGovernments(COAG).(2009).ProtectingChildrenisEveryone’sBusiness:NationalFrameworkforProtectingAustralia’sChildren2009‐2020.Retrieved28March2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐04‐

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TheprinciplesdetailedintheNIRAformthebedrockoftheAustralianGovernmentcommitmenttoeffectiveserviceintegrationforAboriginalandTorresStraitIslanderpeoples.Thiscommitmentshowsinprinciplepotentialforrealisingimportantaspectsoftherighttoself‐determinationofAustralia’sIndigenouspeoples.100However,thefailuretoeffectivelyimplementthiscommitmentmeansthattherehasbeenlimitedsuccessinempoweringandbuildingthecapacityofAboriginalandTorresStraitIslandercommunitiestoparticipateandleadintegratedservicedelivery,asisexploredintheremainderofthisliteraturereview.

4.SignificantAustralianinitiativesAsnotedabove,thereisadearthofevidenceinrelationtotheimpactsofserviceintegrationonchildandfamilyservicedeliveryforAboriginalandTorresStraitIslanderpeople.However,twosignificantgovernmentchildandfamilyserviceinitiativeswithintegrationelementshavebeenevaluated,andcanshedlightonaspectsofintegrationrelevanttoAboriginalandTorresStraitIslanderservicedelivery.ThesearetheFaHCSIAfundedCommunitiesforChildren(CfC)initiativeandtheChildFIRST(ChildandFamilyInformation,ReferralandSupportTeams)andIntegratedFamilyServices(IFS)initiativeoftheVictorianDepartmentofHumanServices(DHS).ThisreviewdrawssignificantlyontheevaluationofthesetwoinitiativesaskeyevidencetoinformtheagendaforserviceintegrationofservicesforAboriginalandTorresStraitIslanderpeoples.IntheAboriginalandTorresStraitIslanderearlychildhoodeducationandcaresector,Multi‐functionalAboriginalChildren’sServices(MACS)havebeenrecognisedasaleadingmodelinintegratedandholisticfamilyserviceprovisionandarealsodescribedbelow.Oneofthechallengesofthisliteraturereviewisnottoconflate‘servicedelivery’with‘integratedservicedelivery’whenconsideringevaluationmaterialsfromtheseparticularAustralianinitiatives.Itisimportanttorecognisethatwhiletheseinitiativeshavepursuedsignificantlevelsofintegration,theyarenotexamplesofserviceintegrationperse.Assystemsandmodelstheyenvisagevaryinglevelsandtypesofintegration;theyprovidesomescopeforlocaliseddesignofintegrationapproaches;andimportantlytheyvaryinthelevelofintegrationwithindifferentservicesites.Ultimately,thedistinctionisdifficulttomaintainandtosomeextentunclearasoutcomesaredependentonthequality,availabilityandaccessibilityofserviceprovision,whichmayresultfrom

30/docs/child_protection_framework.pdf;CouncilofAustralianGovernments.(2009).NationalPartnershipAgreementforIndigenousEarlyChildhoodDevelopment.CommonwealthofAustralia.100Therighttoself‐determinationisdefinedintheUnitedNationsDeclarationontheRightsofIndigenousPeoplesasarightbyvirtueofwhichIndigenouspeoples‘freelydeterminetheirpoliticalstatusandfreelypursuetheireconomic,socialandculturaldevelopment.’AustraliaendorsedtheDeclarationin2009;UnitedNationsDeclarationontheRightsofIndigenousPeoples,GARes61/295,UNDocA/RES/61/295(2007)

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integrationelementsandmanyotheraspects,withthedirectlinksbeingchallengingtoestablishandmeasure.101

4.1CommunitiesforChildrenTheCommunitiesforChildreninitiativewaspartoftheStrongerFamiliesandCommunitiesStrategy(SFCS)2004‐2009implementedbytheDepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA),andnowcontinuesaspartoftheFaHCSIAFamilySupportProgram.Materialsconsideredinthisreviewareprimarilythosethatcontributedtothecomprehensive2009evaluationoftheinitiativeandfocusontheperiodofimplementationpriortothatreview.TheCommunitiesforChildreninitiativewastargetedatintegratingservicestoimproveoutcomesfordisadvantagedchildrenandfamilies:

‘TheCfCinitiativeaimedtosupportpositivechilddevelopmentindisadvantagedareasthroughaneffective,comprehensiveandintegratedsystemofearlychildhoodservices,andafocusonbroadsystemsofrelationshipsandnetworksinthewholecommunitytoimprovecommunity‘child‐friendliness’(thatis,community‘embeddedness’orsocialcapital).’102

Thespecificaimsoftheinitiativewereto:

• ‘Improvecoordinationofservicesforchildren0to5yearsandtheirfamilies;

• Identifyandprovideservicestoaddressunmetneeds;• Buildcommunitycapacitytoengageinservicedelivery;and• Improvethecommunitycontextinwhichchildrengrowup.’103

SitesforCommunitiesforChildrenwerechosentakingintoaccountconsiderationssuchasanalysesofdisadvantage(Socio‐EconomicIndexesforAreas),thenumberofchildreninthecommunity,andthenumberoffamiliesreceivingtheFamilyTaxBenefit.Urban,regionalandremotesitesweretargeted.104GenerallyCfCsiteshaveahigherproportionofAboriginalandTorresStraitIslanderchildrenthaninthegeneralpopulation,with2006figures101Valentine,K.etal.(2007).EarlyChildhoodServices:ModelsofIntegrationandCollaboration,TelstraFoundationCommunityDevelopmentFund,AustralianResearchAllianceforChildren&Youth,November.5;Siraj‐Blatchford,I.(2010).Improvingdevelopmentoutcomesforchildrenthrougheffectivepracticeinintegratingearlyyearsservices,CentreforExcellenceandOutcomesinChildrenandYoungPeople’sServices.27‐31.102Edwards,B.etal.(2009).StrongerFamiliesinAustraliastudy:theimpactofCommunitiesforChildren,OccasionalPaperNo25,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA),p.29.103Ibid.P.vii.104Muir,K.,Katz,I.,Purcal,C.,Patulny,R.,Flaxman,S.,Abelló,D.,Cortis,N.,Thomson,C.,Oprea,I.,Wise,S.,Edwards,B.,Gray,M.,andHayes,A.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA),p.44.

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indicatingthattheproportionofIndigenouschildrenaged0‐5intheoriginal45CommunitiesforChildrensiteswas9.0%.105AsMuiretalnote,

‘ThelogicmodelofCfCindicatedthatoutcomesforchildrenandfamiliesdependednotonlyonthenumberandtypeofservicesdeliveredinthecommunity,butalsoonhowservicesandactivitieswerecoordinated.AmajoraimofCfCthereforewastoimprovelocalservicecoordinationandcollaboration.’106

Increasedcollaboration‘wasoneofthemostsignificantachievementsoftheinitiative.’107KeyfactorsinthesuccessoftheCfCprogramwerethat‘familiesandchildren’sservicesworkingeffectivelyasasystem’wasstatedasanexplicitgoalfrominceptionoftheinitiative,targetedfundingwasprovidedtosupportandencouragecollaborativeactivities,andFacilitatingPartnersplayedacommittedroleinutilisingfundingforthisspecificpurpose.108Activitiesunderthisgoalaccountedfor9%ofexpenditure,butactivitieswithinotherpriorityareasalsohadsignificantcollaborativefociorcomponents,andonly11%ofactivitieshadnopartnerinvolvement.109InmostsitesCfCwaseithertheonlycollaborativeservicedeliveryprograminthecommunityortheonlyprogramwithspecificfundingforintegratedservices.110AsMuiretalhighlight,‘Coupledwiththeplace‐basednatureoftheinitiative,thismeantthatmostCommunityPartnerswerewillingtocollaborateandtoallowtheFacilitatingPartnertotakethelead.’111Ineachsiteanon‐governmentorganisationactsasaFacilitatingPartnerandestablishesaCommunitiesforChildrenCommittee.TheCommitteeismadeupofrepresentativesfromabroadrangeofstakeholdersfromthelocalcommunity112andisresponsiblefordecidingonaStrategicPlanthatidentifiesstrengthsand

105Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices.StrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA),p.47.106Muir,K.,Katz,I.,Purcal,C.,Patulny,R.,Flaxman,S.,Abello,D.,Cortis,N.,Thomson,C.,Oprea,I.,Wise,S.,Edwards,B.,Gray,M.,andHayes,A.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).19107Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14108Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).24109Ibid.110Ibid.111Ibid.112DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).(2011).‘CommunitiesforChildren’.Lastmodified6July.Retrievedon23January2012fromhttp://www.facs.gov.au/sa/families/progserv/communitieschildren/Pages/default.aspx.

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assets,andtheneedsandservicegapsofchildreninthecommunity.113TheFacilitatingPartneristhenresponsiblefortheoverallmanagementoftheCommunitiesforChildrenatthatparticularsite,includingfundingallocation,114andimplementationandongoingmonitoringofthestrategicplan.115FacilitatingPartnerscontractlocalserviceproviderstobeCommunityPartnerstodeliverspecifiedactivities.116KeyaspectsoftheCfCdesigninclude:

• Afocusoncommunityparticipationinthedesignandimplementation.AsMuiretalhighlight,‘ThestructuresembeddedinCfCensuredconsultationswereconducted,andtheseconsultationswereakeystrengthoftheinitiative.’117

• Arangeofservices,suchas‘homevisitingearlylearningandliteracyprograms,earlydevelopmentofsocialandcommunicationskills,parentingandfamilysupportprograms,childnutrition,andcommunityeventstocelebratetheimportanceofchildren,familiesandtheearlyyears.’118

TheNationalEvaluation(2004­2008)oftheStrongerFamiliesandCommunitiesStrategy2004­2009reportedthat‘CfChadsmallbutpositiveeffectsonanumberofoutcomesforfamilies,childrenandcommunities.’119Thepositiveeffectsincludeimprovementsinparenting,employmentlevels,participationincommunityserviceactivities,socialcohesion,andreceptivevocabularyachievementandverbalability.120TheCommunitiesforChildreninitiativedidnotappeartosignificantlyimprovethehealthoffamilies.121MuiretalnotethesuccessofpartnershipsintheCommunitiesforChildreninitiativewhere‘betweenJuly2006andDecember2007,89%ofCfC‐fundedactivitieswereconductedinpartnershipsconsistingoftwoormoreorganisationsorgroups.’122Collaborationbetweenstafffromdifferentservicesandcoordinationbetweenserviceshadalsoimprovedbetween2006and113SocialPolicyResearchCentre.(2005).StrongerFamiliesandCommunitiesStrategy:NationalEvaluationFramework,fortheDepartmentofFamilyandCommunityServices,December,p.6n2.114DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).(2011).‘CommunitiesforChildren’.Lastmodified6July.Retrievedon23January2012fromhttp://www.facs.gov.au/sa/families/progserv/communitieschildren/Pages/default.aspx.115SocialPolicyResearchCentre.(2005).StrongerFamiliesandCommunitiesStrategy:NationalEvaluationFramework,fortheDepartmentofFamilyandCommunityServices,December,p.6n2.116Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).4.117Ibid.40.118DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).(2011).‘CommunitiesforChildren’.Lastmodified6July.Retrievedon23January2012fromhttp://www.facs.gov.au/sa/families/progserv/communitieschildren/Pages/default.aspx.119Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).P.x.120Ibid.121Ibid.P.x‐xi.122Ibid.P.ix.

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2008.123

4.2IntegratedFamilyServices(IFS)andChildFIRST(Victoria)ChildFIRSTisaVictorianinitiativeimplementedbytheDepartmentofHumanServices(DHS).TheinitiativeispartofanIntegratedFamilyServicessystemandactsasanintake,referralandassessmentservice,providinglinkstootherservices.ThisinitiativeisparticularlysignificanttothispaperbecauseofthewaysinwhichpartnershipswithAboriginalCommunityControlledOrganisations(ACCOs)havebeendeveloped.ThetargetgroupforChildFIRSTandIntegratedFamilyServicesarechildrenandyoungpeopleandtheirfamilieswhoareviewedasvulnerableoratriskofenteringtheChildProtectionsystem.124AccordingtotheKPMGChildFIRSTandIntegratedFamilyServices–FinalReport:

‘Thisstrategyfocusesonredesigningtheservicessystem,integratingFamilyServiceswithinsub‐regionalcatchments,andproviding(withineachcatchment)avisiblepointofcontact,coordinatedintakeandprioritisationofclientneed.’125

TheobjectivesofChildFIRSTandIFSare:

• ‘creationofapointofentryintoalocalservicenetworkwhichallowsIFSservicestoreceivereferralsandundertakeassessmentsinrelationtovulnerablechildrenandfamilies

• provisionofanintegratedresponse,whichidentifiesneed,addressesriskandsupportsthechangingneedsofchildren,youngpeopleandfamilies

• prioritisationandearlierinterventionwiththemostvulnerablechildrenandfamilies,includingwherechildrenhavebeenexposedtomultipleandco‐occurringrisksfactorsand/orcumulativeharm.’126

EachChildFIRSTservicesitswithinaChildandFamilyServiceAlliance,whichareestablishedwithineachsub‐region.TheAlliancesarecomprisedofrepresentativesfromChildFIRST,DHS(includingChildProtectionandDepartmentalstaff),IntegratedFamilyServicesandACCOs.ThestatedaimoftheAlliancesisto‘generatesharedresponsibilityforat‐riskchildrenandfamilieswithinthecatchment,andenableearlierinterventionanddiversionfromChildProtection.’127TheroleoftheAllianceistomanagetheoperationalrequirementsofChildFIRST,todevelopandimplementcatchmentplanningandto‘coordinatelocalservicesandfosterlocalnetworkswithallrelevantuniversal,secondary

123Ibid.19‐21.124KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.19.125Ibid.1.126Ibid.9127Ibid.1.

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andspecialistservices.’128Suchprovidersmayinclude‘familyviolence,drugandalcoholservices,andmentalhealthservices.’129AcentralfocusofChildFIRSTistoincreasetheaccessibilityforanduptakeofchildandfamilyservicesbyAboriginalfamilies.Toenablethis,collaborationwithandinclusionofACCOsasactiveAllianceparticipantsisacentralstrategy.Aboriginalorganisationsare‘supportedtotakealeadindesigningservicesandensuringtheirculturalresponsivenesstoAboriginalchildrenandfamilies.’130AnenablinginitiativeadoptedbysomecatchmentsistheemploymentofanAboriginalLiaisonWorker,arolewhichinvolvesconsultationandadviceforallreferralsofAboriginalchildrenandfamilies,andalsoinvolvesinputintoassessment,planningandinterventionphases,andprovidinginsightintootherrelevantareas.131TheKPMGChildFIRSTandIntegratedFamilyServices–FinalReportfoundanumberofbenefitsarisingfromtheChildFIRSTandIntegratedFamilyServices.Theseincluded:

• TheroleofChildFIRSTas‘aneffectiveplatformforsharedresponsibilityandintegratedandcoordinatedservicedelivery.’132

• Improvedrelationshipsbetweenuniversalandsecondaryservices,with‘astrongerimperativetoworkcollaboratively,soastobettersupportoutcomesforclients.’133

• Improvedvisibilityofservices,evidencedbyincreasingreferralsfromeducation,health,police,andotherhumanservices.

• Improvedaccessibility,with‘substantiallymorefamilies(includingmoreAboriginalfamilies)receivingservices.’134

• ‘Greaterevidenceofcoordinatedintake,allocation,servicedeliveryanddemandmanagement.Thisisofferingsignificantbenefitstofamilies…(including)equityofaccessandbettermatchingofservicestofamilies’needs.’135

• EarlierinterventionresultinginlessChildProtectioninvolvement.136Vitally,the2011evaluationreportrevealsthatthisapproachtointegrationhasshownsuccessinpromotinganddevelopingpartnershipsand‘moresystematicconnectionbetweenAboriginalandmainstreamorganisations.’137Thereportdescribes:

‘ThemostsignificantchangesincethedevelopmentofreformshasinvolvedtheformalengagementofACCOsasAlliancepartners…ACCOs

128Ibid.129Ibid.51.130Ibid.46.131Ibid.49.132Ibid.2.133Ibid.134Ibid.135Ibid.136Ibid.137Ibid.46

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arenowmoreconsistentlyinvolvedingovernancemeetings,decision‐makingandplanningfortheneedsofchildrenandfamilies…Wherethisworkseffectively,theoutcomehasbeenamoresystematicconnectionbetweenAboriginalandmainstreamorganisations.’138

GenuinepartnershipdevelopmentbetweenmainstreamandAboriginalandTorresStraitIslanderorganisationsisidentifiedinthisliteraturereviewandtheKPMGevaluationreportasacentralcriticalfactorforincreasingserviceaccessibilityforAboriginalandTorresStraitIslanderchildrenandfamilies.139Therefore,theIFSandChildFIRSTmodelisconsideredinthisreviewasaleadingpracticemodelforserviceintegrationthatconsidersandisresponsivetotheneedsofAboriginalandTorresStraitIslanderchildrenandfamilies.

4.3MultifunctionalAboriginalChildren’sServices(MACS)OneofthekeyAboriginalandTorresStraitIslanderintegratedservicemodelsistheMultifunctionalAboriginalChildren’sServices(MACS).TheMACSmodelwasconceivedintheearly1980s,withtheinitialaimbeingtoprovideanintegratedapproachtochilddevelopmentinordertoimprovethelivesofdisadvantagedAboriginalchildreninaculturallyrelevantsetting(asopposedtosimply‘childminding’).140OneofthecentralprinciplesbehindtheoriginalMACSphilosophyisthat:

‘Aboriginalfamiliesshouldhaveaccesstoadiverserangeofmultifunctionalchildren’sservicestomeettheirneedsandthoseoftheirchildren.Thismustbeachievedthroughtheco‐ordinationofGovernmentandnon‐GovernmentservicestomaximisetheuseofresourcesandprovidearangeofCommunity‐identifiedserviceoptions’141

TheservicesprovidedvariesdependingonthecontextofeachMACS:

‘MACSarenot‐for‐profitcommunitybasedservicesfundedtomeettheeducational,socialanddevelopmentalneedsofAboriginalandTorresStraitIslanderchildren.Longdaycareisprovided…witheachMACSprovidingatleastoneotherformofchildcareoractivity,suchasoutsideschoolhourscare(OSHC),playgroups,nutritionprogramsand/orparentingprogramsbasedonlocalneeds.’142

However,whilsttheinitialdesignofMACSadvancedanintegratedservicedeliverymodelprovidingarangeofprogramstomeettherangeofearly

138Ibid.139Ibid.140MultifunctionalAboriginalChildren’sServices(MACS)NationalPolicyMay1992inBond,D.(2000).MultifunctionalAboriginalChildren’sServicesNationalReport.SecretariatofNationalAboriginalandIslanderChildCareInc.(SNAICC),December,AppendixA,p.5.141Ibid.13.142DepartmentofEducation,EmploymentandWorkplaceRelations(DEEWR).(2010).MultifunctionalAboriginalChildren’sServices(MACS)andCrèches.TheAuditor‐GeneralAuditorReportNo.82010‐11PerformanceAudit,p.9.

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childhooddevelopmentneedswithincommunities,insubstantialfundingovertimehasledtoaparingbackofprograms,143andasubsequentlessenedcapacitytoapplyanintegratedservicedeliverymodel.Asaresult,themajorityofMACSnowlargelyprovidechildcareservicesonly.InsufficientevidenceonthemodeltodescribethecontributionofMACStoeffectiveintegratedservicedeliverymeansthatMACSwillnotbeconsideredindetailinthisliteraturereview.InvestmentinMACSthatenablesthemtoimplementamoreintegratedapproachasdescribedinthisreviewisstronglyrecommended.SuchinvestmentisinlinewiththerecommendationoftwosignificantreviewsofMACSandIndigenousECECservicedelivery.144Ina2011reporttheProductivityCommissionnotedthat:

‘ProgramfundingforMACSislimitedanddecisionstoofferfundingarereviewedeachyear.Evenwhereexistingornewapplicantsmeetthefundingcriteria,itisnotguaranteed.FundingforMACSdoesnottakeintoaccountchangesindemandforservices,withtheresultthattheleveloffundinghasbeenrelativelystableovertime.’145

TheCommissionthereforesuggestsinRecommendation14.3thatgovernmentsprovidemultiple‐yearfundingforAboriginalandTorresStraitIslander‐specificECECservices.146Inasimilarvein,theAustralianNationalAuditOfficenotedin2008that:

‘Increasingthe[MACS]fundingmodeltoaccountfordemographicchangesandvaryinghowthefundingcanbeusedwouldassistserviceprovidersinbettermeetingthechildcareneedsofIndigenouscommunities.Toaidserviceprovidersintheirlongertermplanningforchildcareservicedelivery…DEEWRcouldalsoconsidertransitioningserviceprovidersfromsingletomulti‐yearfundingagreements.’147

TheANAOthereforesuggestsinRecommendationNo.2,Paragraph2.22thatDEEWR‘reviewsitsfundingmodelforMACSandcrèchestoprovidemoreflexibilityinitsapplication.’148

143SecretariatNationalAboriginalandIslanderChildCare(SNAICC).(2011).SubmissionontheEarlyChildhoodDevelopmentWorkforceDraftResearchReport,ProductivityCommission.Melbourne.16144ProductivityCommission.(2011).EarlyChildhoodDevelopmentWorkforceResearchReport.CommonwealthofAustralia;AustralianNationalAuditOffice(ANAO).MultifunctionalAboriginalChildren’sServices(MACS)andCrèches.AuditReportNo.8,2010–11.CommonwealthofAustralia.145ProductivityCommission.(2011).EarlyChildhoodDevelopmentWorkforceResearchReport.CommonwealthofAustralia.352146Ibid.371147AustralianNationalAuditOffice(ANAO).MultifunctionalAboriginalChildren’sServices(MACS)andCrèches.AuditReportNo.8,2010–11.CommonwealthofAustralia.16148Ibid.25

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5.InterrogatinggoodpracticeinapproachestointegratedservicedeliveryforAboriginalandTorresStraitIslanderchildrenandfamiliesThissectioninterrogatesperspectivesonintegratedservicedeliveryforgoodpracticeinchildandfamilyservicedeliveryforAboriginalandTorresStraitIslanderpeoples.Theelementsofintegratedservicedeliveryaddressedinthissectionaredrawnfromthoseidentifiedinsection2above.ThoseselectedarethoseidentifiedasmostimportantandmostrequiringanalysisspecifictoAboriginalandTorresStraitIslanderservicedeliverycontextsbasedontheliteratureandtheavailableevaluationsofleadinginitiatives.Theseareaspectstoconsiderindesignanddelivery,ratherthanbeingprescriptiveofanapproach,recognisingthestrongemphasisintheliteratureontheimportanceofdifferenceinintegratedmodelstoreflectlocalcontextandcommunityconsultation.149

5.1AboriginalandTorresStraitIslanderengagementinintegratedservicedesignanddelivery.

RelevantNIRAservicedeliveryprinciplesforservicesandprogramsforIndigenousAustralians150D9Indigenousengagementprinciple:EngagementwithIndigenousmen,womenandchildrenandcommunitiesshouldbecentraltothedesignanddeliveryofprogramsandservices.Inparticular,attentionistobegivento:(a)recognisingthatstrongrelationships/partnershipsbetweengovernment,communityandserviceprovidersincreasethecapacitytoachieveidentifiedoutcomesandworktowardsbuildingtheserelationships;(b)engagingandempoweringIndigenouspeoplewhouseGovernmentservices,andthebroaderIndigenouscommunityinthedesignanddeliveryofprogramsandservicesasappropriate;(c)recognisinglocalcircumstances;(d)ensuringIndigenousrepresentationisappropriate,havingregardtolocalrepresentationasrequired;(e)beingtransparentregardingtheroleandlevelofIndigenousengagementalongacontinuumfrominformationsharingtodecision‐making;and(f)recognisingIndigenousculture,languageandidentity.D10Sustainabilityprinciple:ProgramsandservicesshouldbedirectedandresourcedoveranadequateperiodoftimetomeettheCOAGtargets…(a)(iii)includingstrategiesthatincreaseindependence,empowermentandselfmanagement...

149Press,F.,Sumsion,J.,andWong,S.(2010).IntegratedEarlyYearsProvisioninAustralia.CharlesSturtUniversity,Bathurst.6;Whalley,M.(2006).LeadershipinIntegratedCentresandServicesforChildrenandFamilies,ACommunityDevelopmentApproach:EngagingwiththeStruggle.ChildrenIssues,10(2).10150CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.

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(c)buildingthecapacityofbothIndigenouspeopleandofservicestomeettheneedsofIndigenouspeople,particularly:(i)developingtheskills,knowledgeandcompetencies,includingindependenceandempowermentofIndigenouspeople,communitiesandorganisations…(iv)ensuringthatprogramsandservicesfosteranddonoterodecapacityorcapabilityofclients;and(v)recognisingwhenIndigenousdeliveryisanimportantcontributortooutcomes(directandindirect),andinthoseinstancesfosteringopportunitiesforIndigenousservicedelivery.D13Accountabilityprinciple:Programsandservicesshouldhaveregularandtransparentperformancemonitoring,reviewandevaluation.Inparticular,attentionistobegivento…(g)supportingthecapacityoftheIndigenousservicesectorandcommunitiestoplayaroleindeliveringservicesandinfluencingservicedeliverysystems/organisationstoensuretheirresponsiveness,accessandappropriatenesstoIndigenouspeople;Whileaspirationsfor‘engagingandempoweringIndigenouspeople…inthedesignanddeliveryofprogramsandservices’areexpressedintheNIRA,151translatingthesegoalsinthecontextofintegratedservicedevelopmentanddeliveryisacomplextask.Theliteraturehighlightsthedangersofintegrationinitiativesthatclaimtoemployacommunity‐developmentapproachbutfailtoputinplacethestructuresandprocessesthatgenuinelyengageandempowerrecipientcommunities.152Withouteffectivecommunityengagementmechanisms,whatarelabelledanddescribedas‘bottom‐up’approachesmayinrealitybewhatSmythdescribesasprogramsthatare‘statefunded,controlledandregulatedalbeitwithinadiscoursethatcelebrateslocalautonomyandothercommunitarianvalues.’153Toenablegenuineengagementthereisarecognisedneedtodrawandbuildoncommunitystrengths,harnessexistingcapacityandbuildadditionalcommunitycapacitywhereitisrequired.Makuwirahighlightsthataprincipledapproachtocommunitycapacitybuildingwillincludeelementssuchascommunityownershipofinitiatives,broad‐basedparticipationindecision‐making,locallydrivenagendas,long‐terminvestment,andpartnershipswithstakeholders.154

151Ibid.152Smyth,J.(2009).Criticallyengagedcommunitycapacitybuildingandthe‘communityorganizing’approachindisadvantagedcontexts.CriticalStudiesinEducation,50(1),February.11‐12;Alcock,P.(2004).ParticipationorPathology:ContradictoryTensionsinArea‐BasedPolicy.SocialPolicy&Society,3(1).91;seealsoMakuwira,J.(2007).ThePoliticsofCommunityCapacity‐Building:Contestations,Contradictions,TensionsandAmbivalencesintheDiscourseinIndigenousCommunitiesinAustralia.TheAustralianJournalofindigenousEducation,36,129‐136.153Smyth,J.(2009).Criticallyengagedcommunitycapacitybuildingandthe‘communityorganizing’approachindisadvantagedcontexts.CriticalStudiesinEducation,50(1),February,9‐22.11.154Makuwira,J.(2007).ThePoliticsofCommunityCapacity‐Building:Contestations,Contradictions,TensionsandAmbivalencesintheDiscourseinIndigenousCommunitiesinAustralia.TheAustralianJournalofindigenousEducation,36.130.

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TheNIRAengagementprinciplereferstoacontinuumofengagementfrominformationsharingtodecision‐making.155Weassertthat,properlyunderstood,andtakingaccountofotherrelevantprinciples,thiscontinuumofengagementcanbedetailedmorebroadlytoincludestagesofinformation‐sharing,consultation,participation,inclusioningovernancestructures,decision‐makingpower,andleadershipandcontrolofservicedesignanddelivery.Thiscontinuumparallelsandrelatestothetime‐basedcontinuumofservicedevelopmentanddelivery,recognisingthatthelevelandqualityofengagementwilldependonitscontinuity,andrequirescommunityengagementatthestartofaprojectandcontinuingengagementthroughoutthelifeoftheproject.Ithasbeenfoundthatcommunityengagementprocessesthatdonotgobeyondinformationprovisionandadvisoryresponsibilitytoincludedecision‐makingpowerforcommunitymembersorlocalorganisationshavebeenineffective.156ThiswasapparentintheCommunitiesforChildreninitiativeinthecaseoflocalcommitteesthatwereunabletoinfluencedecision‐making.157TheevaluationofCommunitiesforChildrenhighlightsanumberofimportantengagementprocessesthatwereemployed,withastrongfocuson‘consultationandinvolvement’ofAboriginalandTorresStraitIslandercommunitymembers,158andadvancestowardscommunity‐basedgovernanceinsomesites.Acommunity‐developmentapproachwassupportedinCfCsitesthroughcommunityassetsmapping,whichassessedbothchildrenandfamilyneedsandcurrentserviceprovisionatthebeginningoftheproject.Thisapproachshowedsuccessinenablingidentificationof,andshapingservicesaroundexistinglocalcommunityneeds,capacityandapparentgaps.159ConsultationwithAboriginalandTorresStraitIslanderorganisations,community‐leadersandserviceuserswasanimportantcomponentoftheCfCapproach,anddescribedascriticalinsiteswithhighproportionsofAboriginalandTorresStraitIslanderpeople.160SignificantoutcomesofcommunityconsultationincludedtailoringofapproachestolocalAboriginalandTorresStraitIslandercultureandcontext;obtainingcommunityapproval;increasingawarenessofprogramsand‘designinganddevelopingprogramsappropriatetocommunityneeds.’161However,theevaluationrecognisedthatasignificantamountoftimewasneededforeffective

155CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.156Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).41‐42.157Ibid.41‐42.158Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).24159Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).39‐40160Ibid.40.161Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).7.

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consultationtobuildtrustandrapportwithAboriginalandTorresStraitIslandercommunities.Flaxmanetaldescribethat‘afour‐yearfundingperiodisinsufficientforconductingwidespread,time‐intensivecommunityconsultation,whichallowsforinputbyadiversityofcommunitymembersandestablishestrustandcommunitysanctionforprogramsandservices.’162InsufficienttimeforcommunityconsultationhadanegativeimpactontheabilityofserviceproviderstoengageAboriginalandTorresStraitIslanderfamilies.163Further,theneedforongoingconsultationandinvolvementofAboriginalandTorresStraitIslandercommunitiesishighlightedbythefactthatsomecommunitymembersbecame‘frustrated,disillusionedanddisengaged’whenthefocusshiftedfromconsultationtoprogramimplementation.164TheflexibilityofservicedevelopmentanddeliverythroughCfCisdescribedasakeybenefit,enablinginnovationandcollaborationatthelocallevel.165Thisisdescribedintheevaluationasakeyfactorthatcontributedtolocalcontrolindevelopingservicesrelevanttolocalcontexts.AsFlaxmanetaldescribe,themodelgavefacilitatingpartnersandcommunitypartners,

‘greatercontroloverwhatservicesweredeliveredandthemannerinwhichthiswasdone.Theyalsosawagreateropportunitytonegotiatemoremeaningfullywithcommunitiesbecausetheyhadabetterunderstandingofthelocalcontextthandidgovernments.’166

Inparticular,thelocalCfCcommitteeswereseenasakeysiteforcommunity‐baseddecision‐makingpowerinservicedesignanddevelopmentthat‘workedwellandhelpedtoempowercommunitymembers.’167Muiretaldescribethatthecommitteesweremosteffectivewhen,‘therewasadiversityofmembers,whenmeetingswereregular,whenmeetingvenueswereaccessibleandappropriate,andwhentherewasjointdecision‐making.’168Furtherbenefitsofthemeetingstructureincludednetworking,relationshipdevelopmentandknowledgesharing.169However,challengesweresometimesexperiencedengaging‘representativesfromdisadvantagedpopulations’,includingAboriginalandTorresStraitIslanderpeopleinthecommitteestructuresand‘theformalityandstructureofmeetingssometimespresentedbarriersforactiveparticipation.’170

162Ibid.8.163Ibid.164Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).40.165Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).7.166Ibid.9.167Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).42.168Ibid.41.169Ibid.170Ibid.42.

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TheCfCevaluationreportsdonotreflectaspecificallytargetedengagementwithexistingAboriginalandTorresStraitIslanderCommunity‐ControlledOrganisations(ACCOs)torecognisetheirroleintheAboriginalandTorresStraitIslandercommunitiesandbuildontheircapacityforservicedelivery,thoughsuchanapproachwasandisundertakeninsomesites,andindeedhasbeenprofiledinatleasttwoCfCsites.171Thefacilitatingpartnermodel,discussedinmoredetailinsection5.3below,createdspaceforfacilitatingpartnerstoengageACCOsascommunitypartnersinservicedevelopmentanddelivery,andcapacitybenefitsdidflowtosmall,community‐basedserviceagenciesasaresultof‘training,mentoringandsupportfromtheFacilitatingPartner.’172However,thisdependedontheapproachofeachfacilitatingpartner,noneofwhomwereACCOsthemselves.Themodelhaslackedthekindoffocussedapproachto‘buildingthecapacityofbothIndigenouspeopleandofservicestomeettheneedsofIndigenouspeople’thatisenvisagedintheNIRAandreinforcedasapriorityintherecommendationsoftherecentANAOreportonCapacityDevelopmentforIndigenousServiceDelivery,whichcalledonFaHCSIAtofacilitatethedevelopmentofawhole‐of‐governmentstrategyforalong‐term,integratedandconsistentapproachtocapacitydevelopmentforAboriginalandTorresStraitIslanderorganisations.173Bycontrast,theChildFIRSTandIFSinitiativesinVictoriahavetakenamorestrategicapproachtoengagingwithACCOsasameansforeffectiveinvolvementofAboriginalandTorresStraitIslanderpeopleandtofacilitatecapacitybuildingthroughtheintegrationapproach.Notably,however,manyoftheseapproacheswerenotnecessarilyenvisagedinthesystemdesign,butappeartohaveevolvedfromChildandFamilyServiceAlliancememberswhohaverecognisedthebenefitsofACCOinvolvementand/orthroughACCOsassertingtheirrole.174StrategiesadoptedbyAlliancestosupportACCOengagementaresummarisedinthetablebelowwhichisextractedfromtheevaluationreport:175

171SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.AppendixA,CaseStudies1and4.172Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).41.173AustralianNationalAuditOffice(ANAO).(2012).CapacityDevelopmentforIndigenousServiceDelivery.AuditReportNo.26,2011‐2012.DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairsDepartmentofEducation,EmploymentandWorkplaceRelationsDepartmentofHealthandAgeing.28.174ForfurtherdiscussionoftheevolutionofACCOinvolvementinChildandFamilyServiceAlliances,refertoSecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.AppendixA,CaseStudy7.Melbourne.175KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.47.

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Table2–StrategiestosupportACCOengagementinChildandFamilyServiceAlliancesStrategy

Impactandbenefit

FundingforACCOparticipationinAlliance

Promotesgoodwill,empowersfullerparticipation,ensuresconsistencyofleadership,providescapacityforstrategicinput

Flexiblearrangements,e.g.sharingofinformationwhereunabletoattendgovernancemeetings;hostingmeetingsonACCOpremises

RecognisescapacityconstraintsEnsuresmeaningfulinputintoplanning,designandstrategicmanagementofChildFIRSTandIntegratedFamilyServices

EnsuringissuesareconsideredfromanACCOperspective(includingrequirementforinputtoratifydecisions)

Ensuresmeaningfulinputintoplanning,desing,andstrategicmanagementofChildFIRSTandIntegratedFamilyServices

Jointcapacitybuilding,e.g.ACCOsreceivesupportfrommainstreamorganisations(includingprofessionalsupervisionbyFamilyServicesstaff,andaccesstotraininganddevelopment),whileconcurrentlyACCOsprovideculturalconsultationandadvice

EnsuresbothmainstreamorganisationsandACCOsbenefitfromparticipation

ParticipationinlocalIndigenousnetworkgroups

Demonstratesagenuinecommitmenttounderstandingtheculture,historyandpreferencesoflocalAboriginalpeoples,andAboriginalcommunitywelfare

RecognisingthecapacityconstraintsofACCOsandsmalleragencies,Allianceshavedevelopedmechanismstosupporttheengagementofsmalleragencies,includingstructuresforinputondecision‐making,rotationofmeetingvenues,and‘valued,recognisedanddifferentiatedroles’inservicedelivery.176OnesubstantialengagementofACCOsintheintegrationmodelisthroughsecondaryconsultationandadviceroles,includingafundedroleforanAboriginalLiaisonWorkerfromanACCOwithinanumberofAlliances,enabling‘inputduringassessment,planningandinterventionphases.’177ThissignificantmeansofincorporatingAboriginalandTorresStraitIslanderculturalperspectiveswithinintegratedsystemsisdiscussedfurtherinsection5.6below.AllianceswhichhavebeenlesssuccessfulinengagingACCOsalsohighlighttheimportanceofmeaningfulengagementstrategies,aswellasresponsestothecapacityconstraintsofACCOs:

‘SomeAboriginalorganisationsreflectedthatwhiletherearefrequentAlliancemeetings,issuesfortheAboriginalcommunityarerarely

176Ibid.30.177Ibid.49.

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discussed,few(ifany)referralswerereceivedfromChildFIRSTandtherewasasensethattheydidnotfeeltheyhadavaluedandrespectedroleintheAlliance.Further,supportfromtheAlliancewithmanagingdemandsisnotasreadilyrealisedbytheACCOsasbyotherAlliancemembers,becausetheclientbaseisdifferent,oftenpreferssupportfromanAboriginalperson,andACCOstendnottorefuseservicetoacommunitymember.’178

WithinbothCommunitiesforChildrenandChildFIRST,theemploymentofstaffwithlocalcommunityconnections,includingAboriginalandTorresStraitIslanderstaffwasrecognisedasastrategyforincreasingcredibilityforserviceprovidersandengagementwiththeAboriginalandTorresStraitIslandercommunity.179Whilethisapproachhasbeenimportantandshownbenefitforthecommunity,theChildFIRSTandIFSevaluationnoteswithcautionthatthismayhavetheunintendedconsequenceofreducing‘thealreadyscarcepoolofAboriginalstaffavailabletoACCOs.’180ItisalsonosubstituteforthebenefitsofcollaborationwithACCOsthatcouldcontributetocontinuousimprovementforAboriginalandTorresStraitIslanderworkersinmainstreamagencies.181PromisingapproachestoAboriginalandTorresStraitIslandercommunityengagementinintegratedservicedevelopmentanddelivery:

• Communityassetsmappingprocessesthatcontributetoenableservicestobetailoredtolocalcommunityneedsandcapacity.

• AdequatetimetoconsultwithAboriginalandTorresStraitIslandercommunities,identifycommunityneedsanddevelopcommunity‐supportedresponses;andregularandongoingconsultationprocesses.

• SpecificrecognitionoftheroleofACCOsincarryingforwardcommunityneedsandaspirationandleadingdesignanddeliveryofresponses

• DefinedandfundedrolesforACCOswithinintegratedsystems,forexample,culturaladviceandsupportroles,familyengagementrolesandservicedeliveryroles.

• Governancestructuresandprocessesthatincludestrategiestosupportgenuineparticipationinplanninganddecision‐makingbysmalleragencies.

• Flexiblefundingandservicerequirementsthatallowforcommunity‐basedneedsidentificationandcommunity‐baseddesignofserviceresponses

• Localcoordinatingcommitteeswithdecision‐makingpowerandbroadstakeholderinvolvement

• Mutualcapacitybuilding,includingmentoringandtrainingofAboriginal

178Ibid.48.179Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).16;KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.49.180KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.50.181Ibid.

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andTorresStraitIslanderpeopleforskillsdevelopmentandcommunityleadership,andculturalcompetencydevelopmentformainstreamagencies.

• EmploymentoflocalAboriginalstaffbymainstreamagencies,recognisingthedangersthisposesforreducingthebaseofskilledworkersthatACCOscandrawon,andthatitdoesnotsubstituteforcollaborationwithACCOSandcommunity‐wideconsultation.

5.2Partnershipsforserviceintegration

Partnershipisthecentralmantraofserviceintegration,ifnotawelloreasilydefinedconcept,andisincludedormentionedinnighoneverypolicyordiscussionofthetopic.Thebasicconceptionofintegrationasthejoiningup,andincreasinglycollaborativeworkofpreviouslyseparateagencies,professionals,professionaldisciplinesandcommunitystructuresandmembershipinvokesacomplexwebofrelationships.Constantandongoingattentionisneededtotheprinciplesthatunderpinandpracticesthatsupportgenuinepartnershipsiftheserelationshipsthatareintegraltoserviceintegrationaretobesuccessful.TheCommunitiesforChildreninitiativehasbeenmostnotableforcreatingaflexiblepartnershipplatform,bringingorganisationstogetherandestablishinginter‐agencyrelationshipwherepreviouslynoneexistedandstrengtheningexistingrelationships.182Flaxmanetalnote,ingeneral,thatpartnershipswithAboriginalandTorresStraitIslanderorganisationsandcommunitiesenhanceservicedelivery.183ThecontributionofpartnershipstooutcomesisstronglyrecognisedintheNIRAengagementprinciple:‘strongrelationships/partnershipsbetweengovernment,communityandserviceprovidersincreasethecapacitytoachieveidentifiedoutcomes.’184ThebeneficialpurposesofpartnershipsidentifiedintheCfCevaluationreportsinclude:strongerlinkstoandengagementofAboriginalandTorresStraitIslanderchildrenandfamilies;185increasedresourceandinformationsharing;186reducedserviceduplication;187capacitybuildingforlocalorganisationsandcommunities;188identificationof

182Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14.183Ibid.8.184CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.185Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).23.186Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14.187Ibid.188Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).23.

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communityneeds;189andincreasedlegitimacyformainstreamserviceprovidersintheAboriginalandTorresStraitIslandercommunity.190Thislastbenefitraisesimportantquestionsaboutthenatureandbasisoflegitimacyformainstreamservices.Wecontendthatgenuineandsustainablelegitimacy,ratherthantheshort‐termappearanceoflegitimacy,requiresalong‐termcommitmenttothecommunity,andacommitmenttoculturalcompetencedevelopmentbymainstreamagenciesandgovernmentinpartnershipwithAboriginalandTorresStraitIslanderorganisationsandcommunities.WhilecapacitybenefitsforACCOsareidentified,notsignificantlyaddressedintheCfCevaluationstudiesaretheconcurrentcapacitybenefitsformainstreamagencies.FurtherrecognitionisrequiredofcapacityandlegitimacybenefitsbasedonculturalcompetencethataccrueinpartnershipwithAboriginalandTorresStraitIslanderorganisationsandcommunities,aswellasthepre‐requisiteculturalcompetencerequirementsforworkingwithAboriginalandTorresStraitIslanderorganisationandcommunitiesthatarerecognisedinleadingculturalcompetenceframeworks.191TheChildFIRSTandIFSevaluationidentifiesthatwherepartnershipsareworkingwell,mainstreamagencieshave‘takenthetimetounderstandtheissuesfromanACCOperspective’andhave‘demonstratedcommitmenttounderstandingtheculture,historyandpreferencesoflocalAboriginalpeoples.’192ItrecognisesthatstrengtheningtheroleofACCOsinAllianceshascontributedtomutualcapacitybuildingbetweenACCOsandmainstreamagencies.193Theimportanceofculturalcompetenceasacomponentofintegrationinitiativesisanarearequiringsignificantfurtherattentioninthedevelopmentanddesignoftheseinitiatives,recognisingthestrongevidencebasethatidentifiesculturalcompetenceascriticaltoenablingaccesstoandengagementwithservicesforAboriginalandTorresStraitIslanderfamilies.194Thecomingtogetheroffacilitatingpartners,communitypartnersandcommunitiestoworktogetherininnovativeandcommunity‐basedservicedevelopmentinCfCsitesdidnotofitselfcreatesuccessfulpartnerships,195butfundingtosupportthisdidprovideopportunity.Wherepartnershipdevelopmentwassuccessful,itfundamentallychangedrelationships,asFlaxmanetaldescribe:

189Ibid.190Ibid.191SeeSNAICC.(2010).WorkingandWalkingTogether.Melbourne;VictorianAboriginalChildCareAgency(VACCA).(2008).AboriginalCulturalCompetenceFramework.Melbourne.192KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.48.193Ibid.194SeeSecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.195Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).23.

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‘ThecoordinationthatoccurredasaresultofCfCchangedthenatureofrelationshipsbetweenthelocalandthefly‐in/fly‐outservicesfroma‘colonial’tocollaborativeandsupportiveapproach.AsoneCP[CommunityPartner]inaremotesitesaid:[Now]theycomeoutto[visit]us,saying‘Whatdoyouneed?’,ratherthan‘Whyaren’tyou…?’196

OneofthemostcommonlyidentifiedingredientstoenablepartnershipswithAboriginalandTorresStraitIslanderorganisationsandcommunitiesintheCfCinitiativewasadequatetimeforbuildingrelationshipsoftrust.197Thisleadtotheconclusionthatthefouryearfundingperiodwasinsufficient,thatmainstreamagenciesneedtobe‘inforthelonghaul’andthatthereisaneedforincreasedandfocussedfundingandresourcestosupporttheprocessesofrelationshipdevelopmentwhicharetimeandresourceintensive.198TheseprocessesareespeciallysignificantforAboriginalandTorresStraitIslandercommunitiesgiventrustthathasbeendamagedbyhistoricalpracticesofchildremovalandrequiresaslowprocessofrebuilding.199Furtheringredientsarenotsignificantlyaddressedandgreaterattentionisrequiredtothefactorsinfluencingsuccessfulpartnershipsforintegratedservicedelivery.RecentSNAICCresearchprovidesadetaileddescriptionoftheprinciplesthatunderpinrespectfulpartnershipsbetweenACCOs,mainstreamserviceprovidersandgovernmentandpromisingpracticesinenablinggenuinepartnershipdevelopment.Whiletheprinciplesidentifiedarerepeatedintheboxedtextbelow,thepaper,OpeningDoorsThroughPartnerships,200providesfurtherdetailedanalysisofpromisingpracticesthatareenablingtheimplementationoftheseprinciplesinanumberofcasestudiesreviewed,includingwithinanumberofCfCenabledand/orsupportedpartnerships.

196Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14.197Ibid.15;Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).31.198Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).23;Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).15.199Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).15;seealso:NationalInquiryintotheSeparationofAboriginalandTorresStraitIslanderChildrenfromTheirFamilies.(1997).BringingthemHome.CommonwealthofAustralia.200SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.

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PrinciplesunderpinninggenuineandrespectfulpartnershipsinAboriginalandTorresStraitIslanderservicecontexts:201

1. Commitmenttodevelopinglong­termsustainablerelationshipsbasedontrust.

2. RespectforAboriginalandTorresStraitIslanderculturalknowledge,history,livedexperienceandconnectiontocommunityandcountry.

3. Commitmenttoself­determinationforAboriginalandTorresStraitIslanderpeoples.

4. Aimtoimprovelong­termwell­beingoutcomesforAboriginalandTorresStraitIslanderchildren,familiesandcommunities.

5. Sharedresponsibilityandaccountabilityforsharedobjectivesandactivities.

6. Valuingprocesselementsasintegraltosupportandenablepartnership.

7. Acommitmenttoredressingstructures,relationshipsandoutcomesthatareunequaland/ordiscriminatory.

8. OpennesstoworkingdifferentlywithAboriginalandTorresStraitIslanderpeoples,recognisingthatthemainstreamapproachesarefrequentlynotthemostappropriateoreffective.

ThisreviewidentifiesthatAustralianinitiativeswithstrongserviceintegrationfociareyettosignificantlyengagewithdefiningandsupportingtheaspectsofgenuineandeffectivepartnershipsbetweenmainstreamagencies,government,andAboriginalandTorresStraitIslanderorganisationsandcommunitiesthatareneededtopromoteaccessandengagementandqualityofserviceforAboriginalandTorresStraitIslanderpeoples.Thisisanarearequiringconsiderableattention.Theboxedtextbelowpresentssomeidentifiedpromisingapproachesasaverylimitedlist.PromisingapproachestopartnershipdevelopmentforintegrationinAboriginalandTorresStraitIslanderchildandfamilyservicecontexts:

• Flexiblefundingarrangementsprovidingplatformsforcommunity‐basedpartnershipdevelopmentandinnovativepartnershipapproachestoservicedesignanddelivery.

• CommitmentfrommainstreamagenciesandgovernmenttodevelopingpartnershipswithAboriginalandTorresStraitIslanderorganisationsandcommunitiesformutualbenefitsincluding:mutualcapacitydevelopment;genuinecommunitylegitimacy;andengagementofAboriginalandTorresStraitIslanderchildrenandfamilies.

• AttentiontotheculturalcompetencerequiredbothforpartnershipdevelopmentanddevelopedinpartnershipwithAboriginalandTorresStraitIslanderorganisationsandcommunities.

• Fundedsupportfortimeandresourceintensiveprocessesofpartnershiprelationshipdevelopment.

• Longer‐termfundingtosupportthedevelopmentoflong‐term

201Ibid.6.

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relationshipscommittedtolong‐termcommunityoutcomes.

5.3CoordinationandfacilitationofintegratedservicesforAboriginalandTorresStraitIslanderchildrenandfamilies

TheCfCevaluationstudiesrevealthatincreasedcoordinationofserviceswasasignificantoutcomeoftheinitiative.202AsMuiretaldescribe,‘theimprovementsinservicecoordinationandcollaborationweresomarkedthatanumberofstakeholdersintervieweddescribedtheoccurrenceasaculturalchange.’203ChangesincoordinationhavebeenlinkedtoelementsoftheCfCmodelwhichwereabletotranslateawillingnesstoworktogetherintopracticebyproviding‘astructureandsupporttostrengthenpre‐existingnetworks.’204NumerousbenefitsofincreasednetworkingandcoordinationwereidentifiedthroughCfC,including:serviceincreasesthroughgreaterrolloutofexistingprograms;205capacitybuildingthroughresourcesharingandbrokering;206increasedinteragencysupportandreferrals;207breakingdownsilosinearlyyearsserviceprovision;208andminimisingserviceduplication.209Activitiesthatwerefoundtobemosthelpfulinsupportingtheseoutcomesincluded‘jointplanning,exchanginginformationandreferrals.’210AssetmappingthroughtheCfCcommitteethatidentifiedcommunitycapacityandneedsalsocontributedsignificantlytoensurethatagencieswerecomplementingeachotherratherthancompeting.211NotablytherewasanincreaseinreferralsbetweenAboriginalandTorresStraitIslanderorganisationsandmainstreamservices‘whichmeantmainstreamserviceswereabletoworkwithsomeIndigenousfamiliesforthefirsttime.’212Though,referralalonewasnotenoughtoensuretakeupofservicesbyAboriginalandTorresStraitIslanderpeople,andserviceprovidertrustwaskey,213withpartnershipsbeingimportanttoestablishingthattrust.214

202Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).15203Ibid.21204Ibid.205Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).9206Ibid.14207Ibid.14208Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).20209Ibid.21210Ibid.211Ibid.24212Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14213Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).15‐16

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ThefacilitatingpartnerapproachhasbeenrecognisedasakeyenablingfactorforincreasedcoordinationofservicesthroughtheCfCinitiative.215Theroleofthefacilitatingpartnerswasto‘actasbrokerstoengagethecommunityinimplementingtheCfC.’216FacilitatingpartnersactedasintermediariesbetweengovernmentandlocalNGOs,subcontractinglocalcommunitypartnerstoimplementtheactivities.217ThefacilitatingpartnerhadleadresponsibilityforenablingthekeyaspectsoftheCfCmodel,includingarolein,‘coordinatingcommunityconsultationsandservicenetworkingandcollaboration.’218Themodelwasperceivedtohavemanybenefitsforenablingeffectiveservicecoordination,whichwerelinkedtotherolefacilitatingpartnerstookin:

• establishing‘transparentandeffectiveconsultationandcommunicationprocesses’;219

• initiatinginter‐agencytrainingandfacilitatinglearningnetworksandjointproblemsolving;220

• assistingservicestoimplementformalcollaborationprocesses;221• facilitatinglocalcontrolinservicedevelopmentandmeaningful

negotiationwithcommunitiesbasedontheconnectionoffacilitatingpartnerstolocalcommunitiesandtheirunderstandingoflocalcontexts;222

• brokeringandprovidingskillsandresources‘inawaythataddedtothesharedcapacityoforganisationswithintheirsites’;223

• translatinggovernmentbusinessforCfCcommitteesandcommunitypartners;224

• supportingoutsideorganisationstoworkwithAboriginalandTorresStraitIslandercommunitiesasaresultoftheirownestablishedcommunityconnections.225

Thereweresignificantchallengesbothforfacilitationandcoordinationofservicesinremoteservicesites,withMuiretaldescribingthemodelas‘expensive,cumbersomeandburdensomeincommunitieswithveryfew

214Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).14215Ibid.15.216Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).35217Ibid.36218Ibid.35219Ibid.20‐21220Ibid.24‐25.221Ibid.222Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).9223Ibid.15224Ibid.15225Ibid.35

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services,’andsuggestingafocusintheseareason‘buildingthecapacityoflocalserviceprovisionandencouraginglowerlevelcoordinationlikereferralsandinformation‐sharing.’226Therewereproblemsinareaswherenolocalserviceprovidershadsufficientcapacitytomeetthecriteriaforthefacilitatingpartnerroleandtheselectionofanoutsideagencyhinderedsuccess.227SuggestedsolutionstothisproblemthatcouldbeimportantforAboriginalandTorresStraitIslandercommunitieswithloworganisationalservicecapacityincludethefundingofNGOconsortiumsinfacilitatingrolesandthefundingoflargerNGOstomentorsmalleragencies.228TheChildFIRSTandIFSapproachhasincluded,insomecases,adifferenttypeoffacilitationrolethathasshownsignificantpromiseforpromotingsharedresponsibilityforandownershipofprograms.AnumberofAllianceshaveallocatedfundstotheemploymentofanAllianceprojectofficerwhooperatesinanindependentfacilitationandsupportrole.229Theevaluationreportreveals‘criticalcapacitydifferencesbetweenthoseAlliancesthathaveestablishedproject‐officersupport,andthosethathavenotbeenaffordedthisbenefit.’230Theprojectofficeroperatesasa‘sharedresource,effectivelyworkingfortheAllianceasawhole.’231ThisrolehashadsignificantbenefitsforincreasingthecapacityofAlliancestodeveloppartnershipsbetweenmembers,includingincreasedcapacityfor‘catchmentplanninganddataanalysis’and‘strongsupportforkeygovernancemeetings.’232IthasalsoassistedeffectiveengagementofACCOswithintheAlliancestructureinsomeAlliances.233Asanindependentfacilitator,thisrolehasassistedto‘brokerrelationshipsandnegotiatetoachieveanoutcomeinthecommoninterest.’234WhileapproachestofacilitationhaveshownpromiseforincludingAboriginalandTorresStraitIslanderperspectivesinintegratedservicesandengagingAboriginalandTorresStraitIslanderchildrenandfamilies,therehasbeeninsufficientattentiontothespecificqualitiesandapproachesneededtofacilitateservicecoordinationinanAboriginalandTorresStraitIslanderservicecontext.ThisisclearlyevidentintheChildFIRSTandIFSapproachwherestructuresfortheinclusionandparticipationofACCOsappeartohaveevolvedinconsistentlyandindependentlyoftheserviceintegrationmodel,initiatedbyAlliance

226Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).25227Ibid.37228Ibid.229KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.36230Ibid.231Ibid.32232Ibid.233SecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.Melbourne.44‐45.234KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.32

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membersrecognisingthevalueofACCOrolesorACCOsassertingtheirrole.235Attentionisneededbothtotheselectioncriteriaforandup‐skillingoforganisationsand/orpersonnelinfacilitatingroleswithinintegratedserviceinitiatives.WhileFaHCSIAselectioncriteriaforfacilitatingpartnersinCfCimportantlypromotedtheselectionofNGOswithstronglocallinksandacceptanceinthecommunity,236morespecificrequirementsshouldrecognisetheculturalcompetenceneededtoengageeffectivelywithAboriginalandTorresStraitIslanderorganisationsandcommunities,aswellastheskillsandcapacityrequiredtofacilitaterespectfulpartnershipsbetweenACCOs,mainstreamagenciesandgovernment.Initiativesrequiredirectobligationsfornon‐IndigenousagenciesinfacilitatingpartnerorleadagencyrolestoenableandempowerAboriginalandTorresStraitIslanderorganisationsandcommunitiesto‘playaroleindeliveringservicesandinfluencingservicedeliverysystems/organisationstoensuretheirresponsiveness,accessandappropriatenesstoIndigenouspeople’asenvisagedintheNIRAaccountabilityprinciple.237PromisingapproachestocoordinationandfacilitationinAboriginalandTorresStraitIslanderchildandfamilyservicecontexts.

• Independentfacilitationroles,withskilledfacilitatorswhohavethecapacitytobrokerrelationshipsandnegotiateoutcomesinthecommoninterest.

• Partnershipandcoordinationfacilitatorswhohaveahighlevelofculturalcompetenceandknowledgeofprinciplesandpracticesforestablishinggenuinepartnershipsbetweenmainstreamagencies,governmentandACCOs.

• NGOintermediariesensuretherelevanceofserviceintegrationinitiativestolocalAboriginalandTorresStraitIslanderservicecontextsandsupportAboriginalandTorresStraitIslanderorganisationstoparticipateinserviceintegration.

• Tailoredapproachestoservicecoordinationtomeettheneedsofremotecommunitieswithfewservicesandlowinitialservicecapacity.

5.4ImportantissuesrelatingtoaccessandentrypointstointegratedservicesystemsforAboriginalandTorresStraitIslanderchildrenandfamilies.

ThissectionaddressesanumberofcoreaspectsofintegratedservicesystemandservicesitedesignthatareimportanttosupportaccesstoservicesforAboriginalandTorresStraitIslanderpeoples.Issuesrelatingtotheneedforservice

235ForfurtherdiscussionoftheevolutionofACCOinvolvementinChildandFamilyServiceAlliances,refertoSecretariatNationalAboriginalandIslanderChildcare(SNAICC).(2012).OpeningDoorsThroughPartnerships.AppendixA,CaseStudy7.Melbourne.236Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).37237CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.

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deliverytobeculturallyappropriateandtargetedtoenableaccessforAboriginalandTorresStraitIslanderpeopleareaddressedmoresignificantlyinthefollowingsection.‘Soft’entrypointsaredescribedasakeyfeatureofCfCthatenabledaccessforhard‐to‐reachfamilies,includingforAboriginalandTorresStraitIslanderchildrenandfamilies.238Thisapproachinvolvedtheprovisionofservicesininformal,familiarandnon‐threateningenvironments,withexamplesincluding:‘playgroupsinparks,havinghealthprofessionalsattendplaygroups,settingupcommunitycentresonpublicschoolgrounds,’239and‘theuseofnaturalgatheringplaceslikeparksandshoppingcentres.’240OutreachapproacheswereconsideredimportantinCfCfortheengagementofAboriginalandTorresStraitIslanderfamilies,witharecognisedneedto‘goto’families,particularlytobuildinitialtrust.241RemotenesspresentedasignificantchallengeforphysicalaccesstoservicesinCfCsites,withlackoftransporttoservicesitesamajorbarrier.242GarbershighlightsstrategiesthatwereusedtoovercometheproblemofremotenessintheestablishmentofintegratedservicesthroughtheSureStartLocalProgramintheUK.243Inthiscontext,problemsweresimilarlyrelatedtothelackof‘arobusttransportinfrastructureandanaccessiblecommunitycentre.’244Strategiesincluded:providingtransporttothesiteswhereserviceswereprovided;andratherthanconcentratingservicesinonebuilding,capitalisingonanyexistinglocalbuildings.245ThiswasasignificantweaknessoftheCfCinitiativewithinwhichnofundingwasprovidedforcapitalpurchasessuchasvansandbusesthatmayhaveassistedinovercomingtransportproblems.246TheChildFIRSTandIFSinitiativehastakenauniqueapproachinpromotingasingletelephonenumberineachcatchmentareaastheprimaryentrypointto

238Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).12;Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).16;Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).18.239Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).16.240Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).18.241Ibid.19.242Ibid.24.243Garbers,C.etal.(2006).Facilitatingaccesstoservicesforchildrenandfamilies:lessonsfromSureStartLocalProgrammes.ChildandFamilySocialWork,11,April.293.244Ibid.245Ibid.246Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).24.

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theintegratedservicesystem,providingagatewaytoconnectserviceuserswiththemostappropriateresponse.247Theevaluationnotespositivelythat‘theresultantimpactoftheestablishmentofacentralisedentrypointistoincreasethecapacityforservice‐systemnavigation,whilereducingthelevelofcasehandlingandtherequirementforfamiliestorepeattheirstories.’248Concurrently,thoughtovaryingdegrees,therehasbeenafocusonmaintainingconnectionstolocalserviceprovidersandcommunities,andmaintainingaccesstopre‐existinglocalentrypoints.249ThisapproachhasbeenparticularlyimportantforAboriginalandTorresStraitIslanderfamilieswho‘aremorelikelytoapproachthelocalACCO,asthisisaservicethattheyknowandtrust.’250Promisingapproachestodesigningintegratedservicesystementrypoints.

• Establishingsoftentrypointstoservicesystemsininformal,familiarandnon‐threateningenvironments.

• Usingoutreachapproachestogotofamiliesandengagethemwheretheyare.

• Providingtransporttofacilitateaccesstointegratedservicesites,especiallyinremotelocations.

• Establishingmulti‐venueintegratedservicesystemsthattakeadvantageofexistinglocalbuildings,ratherthanestablishingasinglebuildingforintegratedservicedeliveryinremotelocationswithaccessibilityissues.

• Centralisedintakesystems,thatmaintainmultipleandlocalisedentrypoints,includingthroughACCOs,andthatincludeACCOsintheintakeandallocationprocesses.

5.5UniversalandAboriginal­targetedserviceprovision

Asidentifiedinsection2,someoftheliteratureonintegratedservicedeliveryplacesastrongfocusonuniversalandinclusivewholeofpopulationresponses.251Thereisoftenalackofclarityinthedefinitionofanddistinctionsbetweenuniversalandtargetedserviceprovision.‘Universal’commonlyreferstoservicesthatareprovidedtoallpeople,oralternativelytoservicesthatareopentoallpeopletoaccess.CortisetalidentifythatthelatterdefinitionwasthatmostcommonlyadoptedintheCfCcontext.252Targetedservicesarecommonlydefinedasservicesforaparticulargroupofpeople,forexampleaparticularculturalgroup,agegroup,ortargetedclientgroup.253However,thetermisalsousedtorefertospecialistandintensiveservices.254ThisreviewhighlightstheimportanceofservicesthataretargetedforAboriginalandTorres247KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.57248Ibid.249Ibid.250Ibid.58251Seeforexample:Moore,T.,andSkinner,A.(2010).Anintegratedapproachtoearlychildhooddevelopment,CentreforCommunityChildHealth(CCCH)andTheBenevolentSociety(2010).8.252Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).36‐37253Ibid.254Ibid.

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StraitIslanderpeoplesasmanyspecificanddistinctculturalgroups,withdistinctsupportneedsthatrequiredetailedconsideration.Cortisetaldescribethattherearestrengthsandweaknessesinbothuniversalandtargetedapproaches:universalservicesmaybelessstigmatising,butcan‘becomecolonisedbyparticulargrouporcliqueswithinthecommunity,andcandetersomehard‐to‐reachfamiliesfromaccessingthoseservices;’targetedservicesfocusontheneedsofaparticulargroupsendingthemessage‘thattheinitiativecaresaboutthemandiswillingtoprovideservicestailoredtomeettheirneeds,’butmaybemorestigmatisinganddeteraccess.255Also,intermsofspecialistandintensiveintervention,animportantconsiderationinserviceprovisionforAboriginalandTorresStraitIslanderpeopleswhoexperiencesignificantlevelsofdisadvantage,isthattheymaynotbeinapositiontoprioritiseuniversalandpreventativeserviceswheretheyarealreadyincrisis,and‘ifbasicneeds,suchasstable,securehousingandadequatelivingconditions,arenotmet.’256AsFlaxmanetaldescribe,‘Ifearlyinterventionandpreventioninitiatives…aretobesuccessfulincommunitiesunderdistresssocialissuesmustalsobeaddressed.’257Thereisadangerinintegrationthatpursuesagoalofuniversalandinclusiveservicedelivery,withoutbeingadequatelycriticalofhowtheapproachmaydevalueorexcludeimportantaspectsofserviceprovisionforparticulargroups.ThisisavitalconsiderationinAboriginalandTorresStraitIslanderservicecontexts.Asiscommonlyidentifiedandwellacceptedintheliterature,theCfCevaluationstudiesfoundthataccesstoservicesforAboriginalandTorresStraitIslanderpeopleissupportedbyservicesystemsandprovidersthatdevelopculturalcompetenceandservicedeliverythatisculturallyappropriate.258FlaxmanetaldescribethatCfCevaluationparticipantsgenerallyagreedthat‘IndigenousspecificservicesofferIndigenousfamiliesasafe,comfortable,culturallyappropriateenvironmentthatiseasiertoaccessandengagewith.’259AtthesametimeFlaxmanetalrecognisethatAboriginalandTorresStraitIslanderfamiliesare‘lesslikelytoengagewithaservicethatisnotculturallytailored,’andthatwhenmainstreamagenciesdidnotdevelopstrategiestoincludeAboriginalandTorresStraitIslanderpeople,theirserviceusedidnotincreaseinlinewithincreasesinserviceprovision.260Whilenotingthat‘IndigenousfamiliesandchildrenaregenerallymorelikelytoaccessIndigenous‐specificservices

255Ibid.256Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).36.257Ibid.258Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).23;seealsoSecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.259Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).11260Ibid.10‐11

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thanmainstreamones’theCfCevaluationalsoidentifiedthatforavarietyofreasons,includingstigmaandfamilydisputes,notallAboriginalandTorresStraitIslanderfamilieschosetousetheseservices.261TheevaluationhighlightedstronglytheimportanceofchoiceforfamiliesbetweenusingAboriginalandTorresStraitIslanderspecificservicesandmainstreamservicestoincreasingaccess.262AsMuiretaldescribe:

Theimportanceofmultipleentrypoints‐thatis,bothtargetedanduniversalprograms–shouldnotbeunderestimated.Accesstobothservicetypeswillincreasethelikelihoodofserviceuse…,helpensurethatfamilieshaveequalaccesstoavarietyofservices…,andassistinbuildingsocialcapital.263

ThesefindingsreinforcetheimportantroleofbothAboriginalandTorresStraitIslanderservicesandmainstreamservicesinculturallysafeandappropriateservicedeliverythatSNAICChasregularlyidentified,264andsupportsimplementationoftheNIRAprinciplesthatrequireattentionto‘recognisingIndigenousculture,languageandidentity’andto‘recognisingwhenIndigenousdeliveryisanimportantcontributortooutcomes(directandindirect),andinthoseinstancesfosteringopportunitiesforIndigenousservicedelivery.’265Intermsoftheapproachtointegration,theyindicatetheimportanceofAboriginalandTorresStraitIslandercommunitiesandorganisationsparticipatinginthedevelopmentanddeliveryofinitiativesthatareappropriatelytargetedtoenableaccessforandmeettheneedsofAboriginalandTorresStraitIslanderpeoples,includingrolesindirectservicedeliveryandsupportingmainstreamagenciestodevelopculturalcompetence.InSNAICC’sview,therecognitionthatmainstreamagenciesandACCOsbothhaveanimportantroletoplayinserviceprovisionforAboriginalandTorresStraitIslanderpeoplesrequiresanincreased,notreducedfocusoninvestmentinAboriginalandTorresStraitIslanderorganisations,whichareoftenatapositionofdisadvantageinrelationtolargerandfinanciallystrongermainstreamagencies.TherecognisedcurrentdearthofcapacityandinadequateinvestmentinmanyAboriginalandTorresStraitIslanderorganisations266requiresthatbuildingthiscapacitybeadistinctandcentralfocusofallchildandfamilyserviceintegrationinitiatives.

261Ibid.11262Ibid.263Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).16264SecretariatNationalAboriginalandIslanderChildCare.(2010).‘TowardsAboriginalandTorresStraitIslanderaccessandengagement:overcomingbarrierstochildandfamilyservices’.Policypaper.2‐3265CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.266AustralianNationalAuditOffice(ANAO).(2012).CapacityDevelopmentforIndigenousServiceDelivery.AuditReportNo.26,2011‐2012.DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairsDepartmentofEducation,EmploymentandWorkplaceRelationsDepartmentofHealthandAgeing;KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.48‐49.

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TheChildFIRSTandIFSinitiativehasprovidedsomeconcretemeasurestoincludeACCOsmeaningfullyinintegratedservicedelivery,whileconcurrentlycontributingtotheimprovementofculturalcompetencyformainstreamagencies.ThreemeasuresthathavespecificallycontributedtoappropriatetargetingofserviceintegrationactivitiestomeettheneedsofAboriginalandTorresStraitIslanderpeoplesare:1.FacilitatingtheinclusionandgenuineparticipationofACCOswithinChildandFamilyServiceAlliances,suchthattheyhavearoleindecisionsabouttheservicedevelopment,allocationofcasesandappropriatesupportsforAboriginalandTorresStraitIslanderfamilieswhoarereferredintothesystem.267Participationissupportedthroughstrategiessuchasthosedescribedintable2insection5.1above.2.EnsuringidentificationandappropriatereferralofAboriginalandTorresStraitIslanderchildrenandfamiliesenteringtheservicesystem:‘thereisnowarequirementforChildFIRSTandIntegratedFamilyServicestoconfirmeachclient’sculturalidentityandofferAboriginalfamiliesthechoiceofworkingwithAboriginalormainstreamorganisations.’2683.TheestablishmentofAboriginalLiaisonWorkerrolesforstaffofACCOstosupportmainstreamagenciesthroughsecondaryconsultationandadviceroleswhereAboriginalandTorresStraitIslanderfamilieschoosetoworkwithmainstreamagenciesorwherethiswasrequiredbecauseofACCOcapacityconstraints.269Theevaluationreportdescribesthat,‘inpracticetheroleenablesinputduringassessment,planningandinterventionphases,andmayofferinsightaboutstrategiesforinitialengagement,sustainingAboriginalfamilyengagementinservices,andfacilitatingaccessandlinkagestootherAboriginalagencies.’270AnimportantaspectoftheserolesisthattheyareindependentlyundertakenbyACCOsrecognisingthesignificantconcernsofACCOsthatwhereAboriginalandTorresStraitIslanderstaffareemployedbymainstreamagenciestheymaylackinstitutionalsupportforcontinuousimprovementasAboriginalandTorresStraitIslanderpractitioners.271QuestionscouldalsoberaisedaboutthecapacityofAboriginalandTorresStraitIslanderindividualstoprovide‘outside’culturaladvicewithintheconstraintsofanemploymentrelationshipwithamainstreamagency.Ingeneral,collaborationwithACCOsthroughtheAlliancestructurehasbeenrecognisedtoprovidemainstreamagencies‘greateraccesstocultural‐awarenesstrainingandresources.’272

267KPMG.(2011).ChildFIRSTandIntegratedFamilyServices–FinalReport,preparedfortheDepartmentofHumanServices,February.47.268Ibid.105.269Ibid.270Ibid.49.271Ibid.50.272Ibid.105.

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PromisingapproachestotargetingintegratedservicedeliverytomeettheneedsofAboriginalandTorresStraitIslanderchildrenandfamilies.

• TargetedapproachesthatrecognisetherolesofACCOsandmainstreamagenciesinculturallyappropriateserviceprovisionforAboriginalandTorresStraitIslanderpeople.

• Multipleservicesystementrypointsforchildrenandfamilies,includingthroughuniversalandAboriginalandTorresStraitIslandertargetedprograms.

• SinglepointsofintakeandcaseallocationthatinvolveACCOsinidentifyingappropriatesupportAboriginalandTorresStraitIslanderchildrenandfamilies.

• Genuineparticipationanddecision‐makingrolesforACCOswithingovernancestructuresofintegratedservicesystems.

• IdentificationofculturalidentityoffamiliesreferredforservicesandprovidingfamilieswiththechoicetoworkwithACCOs.

• SecondaryconsultationandadvicerolesundertakenindependentlybyACCOswherefamilieschoosetoworkwithmainstreamagencies.

• CulturalawarenesstrainingandresourceservicesprovidedbyACCOstomainstreamagencies.

5.6SustainabilityofintegrationinitiativesinAboriginalandTorresStraitIslanderservicecontexts

TheNIRAsustainabilityprincipleforprogramsandservicesofIndigenousAustralians273D10Sustainabilityprinciple:ProgramsandservicesshouldbedirectedandresourcedoveranadequateperiodoftimetomeettheCOAGtargets.Inparticular,attentionistobegivento:(a)servicesystemorientation,particularly:(i)usingevidencetodevelopandredesignprograms,servicesandsetpriorities;(ii)recognisingtheimportanceofearlyintervention;and(iii)includingstrategiesthatincreaseindependence,empowermentandselfmanagement;(b)ensuringadequateandappropriateresources,particularly:(i)settingtime‐framesformeetingshort,mediumandlonger‐termtargetsandoutcomes;(ii)consideringflexibilityinprogramdesigntomeetlocalneeds;(iii)consideringworkforcesupplyandfutureplanning;(iv)consideringsustainingorredesigningservicestobestuseexistingresources,aswellastheneedforprogramsandservicestomeettheCOAGtargets;(v)minimisingadministrativeredtapetoenablegreaterintegrationofprogramandservicedelivery;(vi)ensuringthatprogramsandservicesareefficientandfiscallysustainable;and(vii)ensuringthatinfrastructureisappropriateandadequatelymaintained;(c)buildingthecapacityofbothIndigenouspeopleandofservicestomeettheneeds

273CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.

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ofIndigenouspeople,particularly:(i)developingtheskills,knowledgeandcompetencies,includingindependenceandempowermentofIndigenouspeople,communitiesandorganisations;(ii)supportingIndigenouscommunitiestoharnesstheengagementofcorporate,non‐governmentandphilanthropicsectors;(iii)buildinggovernments’andservicedeliveryorganisations’capacitytodevelopandimplementpolicies,procedures,andprotocolsthatrecogniseIndigenouspeople’sculture,needsandaspirations;(iv)ensuringthatprogramsandservicesfosteranddonoterodecapacityorcapabilityofclients;and(v)recognisingwhenIndigenousdeliveryisanimportantcontributortooutcomes(directandindirect),andinthoseinstancesfosteringopportunitiesforIndigenousservicedelivery.TheNIRAsustainabilityprinciplerecognisesprimarilytheneedforprogramsandservicestobe,‘directedandresourcedoveranadequateperiodoftimetomeettheCOAGtargets.’274Unsurprisingly,themostimportantandcommonlyidentifiedfactornecessarytosupportthesustainabilityofCfCinitiativesforAboriginalandTorresStraitIslanderserviceprovisionwastherequirementforlong‐termandsustainablefunding.AsFlaxmanetaldescribe:

‘Manyrespondentsbelievedthatfuture,long‐termfundingforearlychildhoodservicesinIndigenouscommunitieswasessentialifIndigenousoutcomesweregoingtoimprove.ProgramslikeCfC,withitsfour‐yearfundingcycle,arenotsufficienttoresultinlong‐termpositiveoutcomesforyoungchildrenandtheirfamiliesindisadvantagedIndigenouscommunities.’275

Thedangerthatshort‐terminitiativeswill‘fuelresentmentandmistrust’inAboriginalandTorresStraitIslandercommunities,accompaniedthemistrustthathadalreadydevelopedasaresultof‘thecycleofabortedprogramsandunfinishedpromises.’276Significantly,Flaxmanetaldescribethelikelihoodthatadvancesinpartnerships,coordinationandearlychildhoodinterventionswillnotbesustainediffundingisnotongoing.277Particularlyinremotesitesitwasidentifiedthattherewere‘few,ifany,possibilitiesoffindingalternativefundingsources.’278Aswellastheneedforongoingfunding,realistictimeframesfortheestablishmentofprograms,includingbuildingrelationshipswithcommunitiesandundertakingadequateconsultation,wererequired.279ThiswasparticularlyevidentinsomecaseswhereAboriginalandTorresStraitIslandercommunities274Ibid.275Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).39.276Ibid.277Ibid.41.278Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).46.279Ibid.

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werenotconsultedatall,whichobstructedcommunity‐ownership,successandsustainabilityofinitiatives.280Asnotedabove,issuesofbroadersocialdisadvantageimpactedsignificantlyontheabilityofAboriginalandTorresStraitIslanderchildrenandfamiliestotakeuptheprimarilyearlychildhoodeducationandcarefocussedinitiativesofCfC.Long‐termoutcomescannotbeeffectivelysupportedandsustainedthroughtheseprogramsunless,asMuiretaldescribe,‘familiesreceivelong‐termsupportforserioussocialissuessuchashomelessness,housinginstabilityorpoorlivingconditions,domesticviolence,substanceabuseandmentalillness.’281Thishighlightstheneedforbroadlyfocussedintegrationinitiativesthatincludearangeofservicesthatrespondholisticallytolocalneedsinlocalcontexts,consideringtherecognisedneedformultipleentrypointsbothwithinandoutsideearlychildhoodeducationandcareenvironments,includingoutreachapproaches.282AcriticalaspectofsustainabilityforintegrationinitiativesinAboriginalandTorresStraitIslanderservicecontextsistheeconomicempowermentandcapacitybuildingofAboriginalandTorresStraitIslanderorganisationsandcommunities.Withouttakinganapproachthatincludeslocaleconomicempowerment,initiativescannothopetoimpactlong‐termoutcomesforAboriginalandTorresStraitIslanderchildrenandfamilies,especiallyinregionalandremotelocationswithlimitedeconomicopportunity.TheimportanceofsuchanapproachisrecognisedstronglyintheNIRAsustainabilityprinciplewhichcallsforinitiativeswithattentionto:‘developingtheskills,knowledgeandcompetencies,includingindependenceandempowermentofIndigenouspeople,communitiesandorganisations.’283TheneedforinvestmentinAboriginalandTorresStraitIslanderserviceorganisationsisrecognisedintherecentANAOreportonCapacityDevelopmentforIndigenousServiceDeliveryasaprioritynotjustforeffectiveservicedelivery,butasapolicyobjectiveinitself,insofarasitpromoteslocalgovernance,leadershipandeconomicparticipation,buildingsocialcapitalforAboriginalandTorresStraitIslanderpeoples.284Thisreinforcestheconclusiondrawninothersectionsabovethatallserviceintegration280Flaxman,S.,Muir,K.,andOprea,I.(2009).Indigenousfamiliesandchildren:coordinationandprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).7‐8.281Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).34.282Cortis,N.,Katz,I.,andPatulny,R.(2009).Engaginghard‐to‐reachfamiliesandchildren,OccasionalPaperNo26,DepartmentofFamilies,Housing,CommunityServices,andIndigenousAffairs(FaHCSIA).19;Muir,K.etal.(2009).Nationalevaluation(2004‐2008)oftheStrongerFamiliesandCommunitiesStrategy2004‐2009,OccasionalPaperNo24,DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairs(FaHCSIA).16.283CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.284AustralianNationalAuditOffice(ANAO).(2012).CapacityDevelopmentforIndigenousServiceDelivery.AuditReportNo.26,2011‐2012.DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairsDepartmentofEducation,EmploymentandWorkplaceRelationsDepartmentofHealthandAgeing.17.

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initiativesforchildandfamilyserviceprovisionforAboriginalandTorresStraitIslanderpeoplesrequireastrongerfocussedelementofcapacitybuildingandempowermentofAboriginalandTorresStraitIslanderorganisationsandcommunities.PromisingapproachestoensuringsustainabilityofintegrationinitiativesinAboriginalandTorresStraitIslanderservicecontexts.

• Long‐termfundingforinitiativesthatseektoimpactlong‐termoutcomesforchildren,familiesandcommunities.

• Factoringinadequatetimeforsustainablecommunity‐ownedservicedevelopmentinintegrationinitiatives,includingsignificanttimeforrelationshipbuildingandconsultationwithAboriginalandTorresStraitIslandercommunities.

• Broadereffortstoaddresssocialdisadvantage,includinghousing,livingconditions,familyviolenceandsubstanceabuse.

• Multipleserviceentrypointsandoutreachservicestoengagefamilieswheretheyareandrespondtofamiliesincrisis.

• Initiativesthatfocuson‘developingtheskills,knowledgeandcompetencies,includingindependenceandempowermentofIndigenouspeople,communitiesandorganisations.’285

6.Conclusion

LeadingAustralianintegrationinitiativeshaveincludedvariouselementsthathavefocussedonengagingAboriginalandTorresStraitIslandercommunitiesandorganisationsinthedesignanddeliveryofintegratedservices,especiallythroughprocessesofconsultation,andinvolvementinimplementationcommittees.WhilepromisingstrategiesareemergingforthemeaningfulinclusionAboriginalandTorresStraitIslanderpeoplesinthedesignanddeliveryofchildandfamilyservicesforAboriginalandTorresStraitIslanderchildrenandfamilies,astronglyfocussedapproachedhasnotyetbeenemployed.Withoutthis,integratedservicesystemsarelikelytohavesignificantlyreducedsuccessinengagingvulnerableAboriginalandTorresStraitIslanderchildrenandfamiliesandrespondingappropriatelytotheirneeds.Keylearningsareavailablefrominitiativesthathavebeen,andcontinuetoberolledoutinAustralia.ItisvitalthattheselearningsareappliedtoimprovetheapproachtoAboriginalandTorresStraitIslanderchildandfamilyservicedevelopmentanddeliverywithintheseandothercurrentandemerginginitiativesforintegratedservicedelivery,includingthe38newChildrenandFamilyCentresthatareeithernewlyoperatingorbeingestablishedtosupporttheimplementationoftheCOAGNationalPartnershipAgreementforIndigenousearlychildhooddevelopment.286285CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.286CouncilofAustralianGovernments(COAG).(2008).NationalPartnershipAgreementforIndigenousEarlyChildhoodDevelopment.NationalPartnershipAgreementbetweentheCommonwealthof

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Theneedtodevelopdistinct,recognisedandvaluedrolesforAboriginalandTorresStraitIslanderorganisationsandcommunitiesinintegratedservicedesignanddeliveryisclear.Thusfar,theseroleshaveemergedonlyinconsistently,andwhileflexibilityinservicedesignforlocalcontextsisessential,theinclusionofAboriginalandTorresStraitIslanderinterestsinservicedesignanddeliveryforAboriginalandTorresStraitIslanderpeoplescannotbelefttochance.Thisrequiresactivepolicyandresourcesupportmeasures.PromisingapproacheshavefocussedongovernancestructuresthatincludeAboriginalandTorresStraitIslanderorganisationsindecision‐makingalongsidedirectservicedeliveryrolesandsecondaryconsultationandadvicerolesthatsupportculturalcompetenceinmainstreamagencypractice.Ensuringthatsuchrolesareincludedinintegrationinitiativesisnecessarytoensurearealchoiceforfamiliesbetweenappropriatelytargetedservicesandculturallycompetentmainstreamapproaches.Asisclearlyrecognisedintheliterature,thischoiceofservicescontributestoincreaseaccesstoservicesforAboriginalandTorresStraitIslanderfamilies.287GenuinepartnershipsarecoretoanintegratedapproachthatrespectfullyengageswiththevitalprocessesofrelationshipdevelopmentbetweenAboriginalandTorresStraitIslandercommunitiesandorganisations,mainstreamagencies,andgovernment.AttentionisneededtoprinciplesthatunderpinandpracticesthatsupportgenuinepartnershipsforintegratedservicedeliveryinAboriginalandTorresStraitIslanderchildandfamilyservicecontexts.Fundingforpartnershipfacilitationrolesisarecognisedpriority,buttheskillsandknowledgefordevelopingintegratedservicesthatincludeAboriginalandTorresStraitIslanderinterestsmustbeaddressedormadepre‐requisitefororganisationsandstafftakingontheseroles.OneofthestrongestconclusionstoemergefromtheliteratureandleadingAustralianinitiativesisthatallserviceintegrationactivitiesforserviceprovisionforAboriginalandTorresStraitIslanderchildrenandfamiliesrequireafocussedelementofcapacitybuildingandempowermentofAboriginalandTorresStraitIslanderorganisationsandcommunities.ChoiceforfamiliesiscurrentlylimitedbythedearthofcapacityinAboriginalandTorresStraitIslanderorganisations.ThispositionissupportedstronglywithintheservicedeliveryprinciplesoftheNIRAandbytherecentANAOreportonCapacityDevelopmentforIndigenous

AustraliaandtheStateandTerritoryGovernmentsregardingIndigenousEarlyChildhoodDevelopment.Retrievedon25January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2008‐10‐02/docs/indigenous_early_childhood_NPA.pdf287 Flaxman, S., Muir, K., and Oprea, I. (2009). Indigenous families and children: coordination andprovisionofservices,OccasionalPaperNo23,DepartmentofFamilies,Housing,CommunityServices,and IndigenousAffairs (FaHCSIA).11;Muir,K. et al. (2009).National evaluation (2004‐2008)of theStronger Families and Communities Strategy 2004‐2009, Occasional Paper No 24, Department ofFamilies, Housing, Community Services and Indigenous Affairs (FaHCSIA). 16; Secretariat NationalAboriginalandIslanderChildCare.(2011).‘IncreasingAboriginalandTorresStraitIslanderaccessandengagementwithchildandfamilyservices’.Policypaper.2‐3

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ServiceDelivery,288recognisingtheneedtofocuson‘developingtheskills,knowledgeandcompetencies,includingindependenceandempowermentofIndigenouspeople,communitiesandorganisations.’289Implementationoftheseprincipleshasthepotentialtorealisethepromiseofserviceintegrationincontributingtosustainableresponsestoimprovelong‐termoutcomesforAboriginalandTorresStraitIslanderchildrenandfamilies.

288CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.;AustralianNationalAuditOffice(ANAO).(2012).CapacityDevelopmentforIndigenousServiceDelivery.AuditReportNo.26,2011‐2012.DepartmentofFamilies,Housing,CommunityServicesandIndigenousAffairsDepartmentofEducation,EmploymentandWorkplaceRelationsDepartmentofHealthandAgeing.289CouncilofAustralianGovernments(COAG).(2009).NationalIndigenousReformAgreement(ClosingtheGap).ScheduleD.Retrievedon5January2012fromhttp://www.coag.gov.au/coag_meeting_outcomes/2009‐07‐02/docs/NIRA_closing_the_gap.pdf.

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