THE BIGGER PICTURE. joining up solutions to achieve access and equity

Transcription

1 THE BIGGER PICTURE joining up solutions to achieve access and equity Insights and Feedback on Commonwealth Government Services from FECCA s National Access and Equity Consultations with Culturally and Linguistically Diverse Communities we have joined our problems but we haven t joined our solutions Participant, Canberra Consultation

2 Table of Contents Acronyms Executive Summary Why Access and Equity? FECCA Access and Equity Report Joined Up Solutions Key Consultation Findings in the 5 Key Service Areas Introduction Policy Context Consultation Design Objectives of Consultations Findings, Good Practice and Recommendations: 5 Key Support Services Employment Housing Child and Family Support Services Aged Care Education Conclusion Appendices Appendix 5.1: Access and Equity Framework Appendix 5.2: The Focus Group Questions Appendix 5.3: Key stakeholders and Organisations Consulted Appendix 5.4: Other Key stakeholders and Organisations Consulted to Consolidate Findings Appendix 5.5: The Consultations Federation of Ethnic Communities Councils of Australia Page 2

3 Imagine how much stronger and richer and more productive Australia would be if we could actually empower people to find solutions that work in their communities and within Australian law of course rather than jumping in heavy handed (Sudanese Australian discussing approaches to child protection and domestic violence) Acknowledgements Thank you to all the people who participated in the FECCA access and equity consultations, through face to face meetings, via the online survey and through phone conversations and meetings. Your insights, experiences and participation are highly valued. This report aims to voice your feedback in a constructive and meaningful way and contribute to improvements in service provision. Thank you also to the Government agencies mentioned in this report for a willingness to receive feedback and engage with FECCA and for a commitment to continuous improvement in access and equity. The Bigger Picture can be found on the FECCA website You can contact FECCA on (02) or admin@fecca.org.au. Megan Layton and Gabrielle Berman, June 2010 About FECCA FECCA is the national peak body representing Australians from culturally and linguistically diverse (CALD) backgrounds. FECCA provides advocacy, develops policy and promotes issues on behalf of its constituency to government and the broader community. FECCA supports multiculturalism, community harmony, social justice and the rejection of all forms of discrimination and racism. FECCA s membership comprises State, Territory and regional multicultural and ethnic councils. FECCA has an elected executive committee and a professional national secretariat implementing policies and work programs on behalf of its membership and stakeholders. Federation of Ethnic Communities Councils of Australia Page 3

4 Acronyms ACAP AIRWA CACP CALD CPP CLO COAG DIAC DOHA Aged Care Assessment Program Australian Immigrant and Refugee Women s Alliance Community Aged Care Package Culturally and Linguistically Diverse Communities Community Partners programs (Department of Health and Ageing) Community Liaison Officer Council of Australian Governments Department of Immigration and Citizenship Department of Health and Ageing EACH ESL FECCA HACC IEC IHSS JSA MESC NAHA Extended Aged Care at Home English as a Second Language Federation of Ethnic Communities Councils of Australia. Home and Community Care Department of Health and Ageing Intensive English Centres Integrated Humanitarian Support Scheme Job Services Australia Main English Speaking Countries (ABS definition) National Affordable Housing Agreement Federation of Ethnic Communities Councils of Australia Page 4

5 NPMF NRAS PPP PICAP SAAP SHI New Performance Management Framework (JSA) National Rental Affordability Scheme Productivity Placement Program (Department of Education, Employment and Workplace Training) Partners in Culturally Appropriate Care (Department of Health and Ageing) Supported Accommodation Assistance Program Social Housing Initiative Federation of Ethnic Communities Councils of Australia Page 5

6 1. Executive Summary 1.1 Why Access and Equity? The Federation of Ethnic Communities Council s of Australia (FECCA) conducts consultations annually with individuals, communities and groups from culturally and linguistically diverse (CALD) backgrounds on their experiences of accessing and using Commonwealth Government services in their everyday lives. FECCA s access and equity reports are a key component of FECCA s work to improve service delivery, equity and outcomes for CALD communities in Australia. FECCA s access and equity report provides the community perspective on government services. It voices the concerns, needs and experiences of people who are directly affected by government policies and programs, people who in many cases experience multiple and complex barriers to participation and who may have no other way of raising their concerns. It also represents people who may be going through a particularly vulnerable or high needs period in their lives. In representing these needs with integrity FECCA seeks to help inform and strengthen the implementation of the whole of government Access and Equity Framework. The Access and Equity Framework All Commonwealth Government agencies are required to report annually to the Department of Immigration and Citizenship (DIAC) outlining how they have addressed access and equity for Australians from culturally and linguistically diverse backgrounds. Reporting is required against each of the 4 principles specified in the whole of government Access and Equity Framework. The 4 principles are: responsiveness government programs and services should be accessible, fair and responsive to the needs of their clients communication communication with clients should be open, effective and use appropriate channels accountability reporting and review mechanisms should be accessible, transparent and effective leadership government agencies should work together, emphasise responsibilities to partners, and encourage participation in our society by all (DIAC, 2008). The Access and equity framework exists because there is a recognition that: while services may be universally applicable, they may not be equally accessible. 1 1 DIAC (1992) Making Multicultural Australia Access and Equity: Evaluation Summary Federation of Ethnic Communities Councils of Australia Page 6

7 It also acknowledges: the right of all Australians to equality of treatment and opportunity and the removal of barriers of race, ethnicity, culture, religion, language, gender or place of birth and the need for all government agencies to work together to overcome these barriers. 2 FECCA is committed to working in partnership with government agencies to ensure that all Australians are equally able to access appropriate services and support if and when they need them. This report is one very important mechanism which aims to encourage change to ensure that individuals from diverse linguistic and cultural backgrounds can participate more fully in Australian economic, social, cultural and political life according to their aspirations and abilities. It seeks to provide insights into the barriers that impede such participation and likewise to highlight those policies and practices that successfully enable participation. Such participation enhances the quality of life for all Australians, not just for those who have recently migrated to Australia. Improved access and equity impacts on not only the most disadvantaged, but also has the potential to improve health, social cohesion and general wellbeing outcomes for all Australians FECCA Access and Equity Report The case studies, issues, recommendations raised in this report are directly informed by face to face, telephone and online consultations conducted by FECCA between February and June 2010 with individuals, communities and service providers. This report focuses on the work of key Commonwealth Government agencies responsible for areas and programs which consultation participants identified as high priorities. These include: Commonwealth Department of Health and Ageing funded aged care services; Commonwealth Department of Employment and Workplace Relations; o Job Services Australia o Language, Literacy and Numeracy Program 2 National Agenda for a Multicultural Australia, 1989, in DIAC (2008) Access and Equity in Government Services Report , accessed at, 3 Wilkinson and Picket (2009) The Spirit Level: Why More Equal Societies Almost Always Do Better, Allen Lane, London. Federation of Ethnic Communities Councils of Australia Page 7

8 Commonwealth Department of Families and Housing, Community Services and Indigenous Affairs o Housing Initiatives o Child and Family Support Services Commonwealth Department of Immigration and Citizenship; o Australian Migrant Education Program o Integrated Humanitarian Settlement Strategy The Bigger Picture Consultations show the need for on-going effort in providing accessible and equitable services to CALD communities. While some agencies are making concerted efforts to embed access and equity principles systematically in their design, planning and delivery of services (see the example of Centrelink in FECCA s Access & Equity report), it is also clear that many mainstream services are still failing to meet the needs of CALD clients resulting in; under-utilisation of services, social isolation, and, clients accessing services at the higher needs/higher cost end of service provision (when issues have reached acute or crisis stage). 1.3 Joined Up Solutions In light of these findings, FECCA recognises the value and importance of the Access and Equity Framework and continued government services reporting against it. It is critical that DIAC continue to provide the necessary support to government services to report on and address access and equity issues for CALD communities. The key recommendations are focused on three major issues: 1. Strengthening the Access and Equity framework: Further strengthening of the capacity of all Commonwealth Government agencies to embed organisational wide access and equity strategies in their design, planning, communication, delivery and contracting of services. This strengthening of the Access & Equity Framework also needs to be reinforced with appropriate legislation. 2. Improving Data: Improving data collection and disaggregation of data, to strengthen the ability of the Commonwealth Government to monitor and measure the implementation of access and equity strategies and CALD client outcomes in and in transition through, services. 3. Strengthening the use of interpreting services: Strengthening requirements that all government funded services provide interpreting services and report on usage of interpreting services. This includes requirements for dedicated budgets for interpreting services for all funding contracts and programs. FECCA highlights the following whole of government recommendations focused on the three major issues. These recommendations can form the basis of continued work to ensure that Federation of Ethnic Communities Councils of Australia Page 8

9 services are equally accessible and equitable for all eligible Australians regardless of cultural background or circumstances. Strengthening the Access and Equity framework That access and equity policies and strategies be included in all new and existing policy platforms, and, that all funding contracts include minimum standards to ensure access and equity in service delivery for all Australians with a particular provision required for those at risk of social exclusion (in particular CALD, indigenous and people with disabilities). That, consistent with the above recommendation, all service areas are required to establish (where not currently present) organisational wide strategies that address systemic barriers and enablers to ensure appropriate accessibility, communication, accountability and cultural competence in service delivery to CALD clients. Improving Data That a whole of government approach to CALD data collection be established. As part of the whole of government Access & Equity Framework, all Commonwealth Government funded agencies and programs be required to collect disaggregated data on CALD client outcomes based on country of birth, language used at home and need for interpreters. That consideration be given to the establishment of an interdepartmental CALD data committee to guide and oversee this process. The committee would be established to examine ways of capturing data around referral pathways, levels of need and unmet need, use of interpreters and service outcomes for CALD populations That data be pooled and made available to increase the evidence base available for the purposes of; planning, policy and program design, targeting resources, evaluation and identification of areas of high need (both geographic and issues based), and assessing outcomes of a range of service approaches. Strengthening the use of interpreting services That free and accessible interpreting services be assured within all Commonwealth government agencies and all contracted service providers. That this requirement is reported against (where this is not already occurring) and that data on requests for interpreters, interpreter use is compiled and reported on. That all commonwealth government agencies provide training for frontline staff and require that all contracted service providers provide training for staff in use of interpreters and in culturally competent service delivery. Federation of Ethnic Communities Councils of Australia Page 9

10 An Access and Equity Snapshot This report reflects the experiences and needs of participants in FECCA s Access and Equity consultations. It provides an on the ground snapshot of the services and the outcomes of policies which participants chose to focus on. Though rigorous efforts have been made to ensure the accuracy of the report, it is ultimately a reflection of the views of service users. Feedback to Commonwealth Government Agencies FECCA is in the process of arranging meetings with key government agencies mentioned in this report, in order to provide direct feedback. It is important to acknowledge that in some instances agencies are already working to address issues raised in this report. FECCA looks forward to supporting that work to progress. Through this report and the provision of direct feedback to government agencies, FECCA aims to assist to improve their understanding of the needs and experiences of people from culturally and linguistically diverse backgrounds and improve policy outcomes. The ultimate test of good social policy is in how effectively it meets the needs of the most vulnerable members of our society those who experience exclusion and face multiple barriers to accessing the very services designed to assist them. FECCA welcomes feedback on this report. Federation of Ethnic Communities Councils of Australia Page 10

11 1.4 Findings in five Key Service Areas Good Practice: The consultations highlighted a number of government service programs and initiatives that were valued by CALD clients and the broader CALD community. These included: 1. JSA Employment Assistance Support Streams that recognise differences in the nature and intensity of service needs of clients. 2. The availability of the JSA Employment Pathways Funds to support employment outcomes of CALD Clients and the Department of Human Services Job Capacity Account, which assessors use to refer eligible job seekers to psychological counselling and other services to help them overcome barriers to work. 3. NAHA and the SHI are recognised as positive steps towards addressing the national housing affordability crisis, by adding to the national housing stock. 4. The NRAS is seen as a positive step towards providing affordable rental housing for struggling households. 5. The Family Support Program is valued by clients for its responsive and flexible approach to addressing CALD family support needs. 6. Aged Care Planned Activity Groups are valued by CALD clients and seen as effective vehicles for information dissemination on ageing and aged care services. 7. Ethno-specific Residential Care is viewed as an invaluable support service for older persons from CALD backgrounds, meeting the residential needs of this vulnerable cohort. 8. The provision of child care services for AMES students is seen as an essential resource that enables women to attend English classes. 9. AMEP pilot projects that integrate English language into vocational settings are seen as an effective approach to improve English language proficiency and support employment outcomes. Federation of Ethnic Communities Councils of Australia Page 11

12 Access and Equity Issues in Service Provision: High priority areas identified by CALD communities where considerable barriers in accessing and utilising Commonwealth Government services are experienced included: Aged Care Services Housing Services Employment Services, Education Child and Family Services Challenges in these five service areas are considered within the context of the four Access and Equity indicators identified in the DIAC Access and Equity Framework 4 (see Appendix 1) namely; responsiveness, communication, accountability and leadership. Responsiveness: Extent to which programs and services are accessible, fair and responsive to the individual needs of clients CALD communities continue to identify unmet needs and feel marginalised within mainstream service provision. Communities perceived that CALD specific/ethnospecific providers were better able to appropriately assess and meet the diverse needs of these communities (Employment, Aged Care, Child and Family services). CALD communities remain at a significant disadvantage in accessing the private market (Employment, Housing) The timing, rigour and cultural appropriateness of client assessment processes (HACC assessments, Job Capacity Assessments, ESL/AMEP Assessments) undertaken by a number of service providers may present significant barriers to equitable service delivery for CALD clients. Appropriate strategies, resources and regulatory frameworks are required to ensure that communication, assessment, and staff development and recruitment appropriately reflects and responds to the needs of CALD clients. (Employment, Child and Family Services, Housing, Aged Care, Disability). Communication: Open and effective channels of communication with all stakeholders New migrants often experience significant difficulties in navigating and accessing government services due to poor communication strategies and approaches from services including; 4 DIAC (2008) Access and Equity Report Federation of Ethnic Communities Councils of Australia Page 12

13 o o o Inconsistent access to interpreters (residential aged care, JSA), Insufficient translated materials (JSA), Lack of clear identification and advertising of sources of information on services and service providers (housing, JSA, aged care services, qualifications recognition), Accountability: Effective and transparent reporting and review mechanisms The accessibility and equity of services and service delivery remains difficult to ascertain and substantiate due to the absence of appropriate data collection for outcomes in service areas for CALD clients (Employment, Housing, Education, Aged Care Services). Leadership: Broad approaches to management of issues arising from Australia s cultural and linguistic diversity A number of collaborative State/Territory and Commonwealth frameworks for service delivery are adopting programmatic rather than systemic/strategic approaches. While this approach may address specific needs in the short term, it limits the ability to ensure accessible and equitable service provision for all CALD clients. e.g. o o Adoption of PICAP rather than broad strategy for CALD aged care services. Adoption of the Family Support Program rather than broad strategy for CALD child and family services Federation of Ethnic Communities Councils of Australia Page 13

14 Recommendations: 5 Key Service Areas Employment: Recommendations Strengthening Access and Equity: That DEEWR undertake an audit of current professional and vocational qualifications recognition processes in each State/Territory to; co-ordinate and engage industry bodies to streamline requirements across States/Territories, review processes and costs of qualifications recognition, and, review communication channels for information on qualifications recognition for family and humanitarian stream migrants. That DEEWR require that JSA providers can guarantee new migrants in streams 2-3 will be provided with a 13 week combined English language and vocational placement funded by the employment pathways fund within the first twelve months of arrival. That vocational placements sourced by JSA providers are, where possible, consistent with previous skills and work experience of clients. That a mapping exercise be undertaken to determine the geographical concentration of CALD communities and the location of migrant-specific JSA providers to examine CALD client access to these providers and to inform the next JSA tender round. That specific attention be given to access and equity for CALD clients in the development of the next round of JSA tenders That FECCA be represented on the JSA 2012 taskforce Improving Data That JSA data is collected on disaggregated outcomes for CALD communities within each employment service stream including annual; outcomes for refugees, outcomes for skilled migrants, outcomes for migrants on family visas within the first year and average per capita spend on clients from CALD communities in each stream. Federation of Ethnic Communities Councils of Australia Page 14

15 Housing: Recommendations Strengthening Access and Equity That short/medium term, interest free loans for the amount of three months rental accommodation be made available through Centrelink to new migrants with high needs identified through the Job Capacity Assessment Program to ensure that they are able to compete effectively for housing in a market where they are at a significant disadvantage compared to the general population. That housing orientation be provided as a component of the Humanitarian Settlement Scheme. That, consistent with the AMES Community Guide model, refugee community members be trained to provide information and support for humanitarian entrants in the housing sector and to liaise between these entrants and private and public housing providers. That, in line with the Refugee Council of Australia s recommendation, DIAC explore options for partnerships with the community housing sector to provide on-arrival accommodation, and work to develop the provision of housing designed to accommodate humanitarian entrants for up to three years following arrival. Improving Data That data on housing outcomes (tenancy in accommodation on arrival for refugees), time from application to receipt of public housing, time from application to receipt of community housing, search period for private rentals etc..) for CALD communities be collected based on country of birth, language used at home and need for interpreters. Child and Family Services: Recommendations Strengthening Access and Equity That the Department of Families, Housing, Community Services and Indigenous Affairs (FaHCSIA) continue to fund the Family Services program, with additional funding attached to CALD specific services in light of the high demand for these services. That FaHCSIA ensure that explicit consideration is given to access, appropriateness and cultural sensitivity of children s services for CALD families within COAG s Federation of Ethnic Communities Councils of Australia Page 15

16 National Quality Agenda (NQA) for Early Childhood Education and Care. Appropriate consultation with relevant parties, such as the Alliance of Immigrant and Refugee Women of Australia (AIRWA) could strengthen CALD families outcomes ensuring that their children benefit from greater social inclusion and reduced disadvantage within this agenda. That FaHCSIA ensure that disability funding and programs explicitly reflect on the specific needs of those from culturally and linguistically diverse communities to ensure that appropriate focus and resources are provided to address these high needs families and individuals. That FaHCSIA undertake a review of specific issues for CALD families as part of the COAG s National Framework for Protecting Australia s Children This review should include an agenda for community engagement with high risk CALD communities to determine culturally appropriate means to address child protection issues and related domestic violence within these communities. That FaHCSIA commission a national research study to work with CALD communities experiencing high levels of engagement with child protection authorities, to better understand the causes of engagement with child protection authorities, investigate preventative strategies and make recommendations to FaHCSIA regarding successful early intervention and prevention strategies. This should be done in cooperation with national peak bodies such as FECCA, RCOA, AIRWA and the African Women s Council of Australia and other appropriate partners. Improving Data That disaggregated data providing country of birth, ethnicity, language spoken at home and interpreter use and outcomes be collected and made available to support the development and targeting of early intervention and prevention strategies with communities at high risk of involvement with the child protection authorities, and to support the above research proposal. Federation of Ethnic Communities Councils of Australia Page 16

17 Aged Care: Recommendations That the Department of Health and Ageing undertake to develop a comprehensive strategic plan for ensuring culturally appropriate service delivery across all aged care services. Issues to be examined and addressed are; Strengthening Access and Equity A comprehensive communication strategy that addresses access to information on ageing and aged care services for CALD older persons, including education and engagement of GPs to encourage greater referrals to appropriate aged care services Ensuring culturally appropriate workforce planning for funded agencies Funding for ethno specific services that reflects demand, most particularly in allocations of CACPs Appropriate transitions between aged care services Ensuring culturally appropriate HACC assessments Strengthening the use of interpreting services Increased access to bilingual staff or interpreters across all aged care services Education: Recommendations Strengthening Access and Equity That DIAC ensure that AMEP service providers are appropriately assessing the capabilities of people from culturally and linguistically diverse backgrounds, prior learning experience and English proficiency prior to allocation to appropriate learning streams. That DIAC provide flexible funding for AMEP providers to deliver tailored, more responsive programs to clients assessed as high needs according to prior learning experience and English proficiency. That, consistent with the 2009 recommendations from the Refugee Council of Australia 5, DIAC explore the greater deployment of bilingual aides and teaching assistants in the AMEP to assist pre-literate humanitarian entrants with little or no English and no exposure to formal learning environments. 5 Refugee Council of Australia (RCOA), (2009)Australia s Refugee and Humanitarian Program: Community Views on current challenges and future directions, January 2009 Federation of Ethnic Communities Councils of Australia Page 17

18 That, consistent with 2009 recommendations from the Refugee Council of Australia 6, DIAC in collaboration with States and Territories ensure that appropriate strategies are developed for the assessment of learning needs and flexible delivery of education for newly arrived refugee children and young people. These strategies would necessitate an initial investigation into how existing educational programs offered by schools and TAFE colleges could be adapted to meet the learning needs of young people with limited prior formal education. 6 Ibid Federation of Ethnic Communities Councils of Australia Page 18

19 2. Introduction 2.1. Policy Context it is not sufficient for service systems to collaborate just so that children and families get improved access to services and that services improve in quality and relevance; [but also] to create the environments necessary to increase citizens social, economic and civic participation in their communities 7. According to the 2006 Census of Population and Housing, 22% of people in Australia (4.4 million persons) were born overseas. A further 26% of people who were born in Australia, had at least one parent who was born overseas 8. At the census date 16% of Australians spoke a language other than English, 17% of which do not speak English well or at all. 9 In total, almost 400 different languages were spoken in homes across Australia, with 79% percent of Australians noting an affiliation with more than 16 identifiable religions 10. This diversity is a defining feature of Australian life and has and continues to contribute to defining what it means to be an Australian. However, despite significant evidence of the benefits of this diversity 11, there remain barriers to full participation in, and enjoyment of, the benefits of living in Multicultural Australia for a number of CALD communities. Human Rights Addressing these barriers requires recognition of the rights of people from diverse linguistic and cultural backgrounds as defined by our obligations under the International Convention of Economic and Social Rights and our other national and international commitments. These rights include; the right to adequate housing as a component of the right to an adequate standard of living, the right to life and liberty, the right of everyone to the enjoyment of just and favourable conditions of work, the widest possible protection and assistance for families and the protection of all children. 7 Institute of Child Protection Studies (2009) The Victorian Community Linkages project, Increasing collaboration between State and Commonwealth service systems to improve the safety and wellbeing of vulnerable children in Frankston Mornington Peninsula and Wodonga, Prepared for the Department of Families, Housing, Community Services and Indigenous Affairs, p.13, accessed at, 8 Australian Bureau of Statistics (2008) 2006 Census Tables, Cat. No Australian Bureau of Statistics (2008) Australian Historical Population Statistics, 2008, Census Tables, Country of Birth of Person, Proficiency in Spoken English/Language by Sex. Cat. No Australian Bureau of Statistics (2007) 2006 Census of Population and Housing: Media Releases and Fact Sheets, 2006 Cat. No Berman, G., (2008) Harnessing Diversity: Addressing Racial And Religious Discrimination In Employment, Victorian Multicultural Commission and the Victorian Equal Opportunity & Human Rights Commission, accessed at, Federation of Ethnic Communities Councils of Australia Page 19

20 The recent National Human Rights Consultation Report 12 which explored issues regarding the protection and promotion of human rights in Australia highlighted the importance of human rights education and recommended the consolidation of federal anti-discrimination legislation. This is a positive step forward, however the absence of any formal charter of human rights, or comprehensive constitutional recognition of human rights, still leaves the protection of human rights vulnerable to the political cycle. Population Balancing human rights, appropriate environmental management and meeting the needs of our diverse community will be of critical importance in the development of Australia s first comprehensive Population Strategy. This strategy needs to include a sustainable immigration program incorporating appropriately balanced workforce, family reunion and refugee components that recognise both our national and international commitments as well as the past and ongoing contribution that CALD communities have and continue to make to Australian life. Diversity and Social Inclusion In meeting both current and future needs of Australians from CALD backgrounds, it is critical that contemporary government policies, programs, initiatives, and strategies continue to examine, reflect on and strengthen the government s Social Inclusion agenda. Strengthening this agenda requires explicit recognition that people from CALD backgrounds are some of the most marginalised in our community and that concerted efforts and prioritisation of these communities is critical to realising the Australian Government s vision of a socially inclusive society in which all Australians feel valued and have the opportunity to participate fully. Access and Equity The Australian Government s Access and Equity Strategy attempts, in part, to address some of Australia s most pressing social issues, including those raised above. Under this framework government agencies work to improve the way in which their programs and services respond to Australia s cultural, religious and linguistic diversity. This report explores the extent to which government services are meeting their commitments under the Access and Equity Framework. The degree to which services exhibit responsiveness to the individual needs of clients, ensure open and effective communication channels with all stakeholders, implement effective and transparent reporting and review mechanisms, and, exhibit leadership in the management of issues arising from Australia s cultural and linguistic diversity, are explored from the perspective of clients. 12 Commonwealth Attorney General Department (2009) National Human Rights Consultation Report, accessed at tdownloads Federation of Ethnic Communities Councils of Australia Page 20

21 2.2. Consultation Design This report documents the findings of face to face, telephone and online consultations with individuals, communities and service providers. The consultations were undertaken to identify; good practice examples of government funded provision of services, barriers to access and equity in service provision, priority areas for improvement, issues requiring further consultation and future research, and, recommendations for strengthening services and engaging sectors in problem solving, planning and delivery (See Appendix 5.2 for consultation focus group questions) Four major face to face consultations were held in Melbourne, Perth, Shepparton and Canberra between February and May In total more than 220 people participated in the face to face consultations. A list of communities and agencies represented is attached (Appendix 5.3). FECCA also received 17 responses to it s online survey. Other agencies were subsequently consulted via telephone and face to face meetings to provide further details, or clarification and in order to ensure the accuracy of this report (Appendix 5.4) Objectives of Consultations The objectives of the consultations were to: Consult with a broad cross section of government service clients and communities from culturally and linguistically diverse backgrounds on the accessibility to, and equity of, Australian Government services for CALD communities. Provide a genuine opportunity for government service clients and communities to feed back to government their views on and experiences of access and equity; what works well, what doesn t work well and how services can be improved to meet the needs of people from culturally and linguistically diverse backgrounds. Contribute to the development of an evidence base to inform the improvement and development of Australian Government services in relation to access and equity for clients from culturally and linguistically diverse backgrounds Federation of Ethnic Communities Councils of Australia Page 21

22 Provide strategic and meaningful feedback to Australian government agencies to increase their understanding of issues relating to access and equity of their services/programs and possible solutions Reduce disadvantage experienced by CALD communities in line with the Social Inclusion agenda, reducing disadvantage and ensuring people in need benefit from access to good health, education and other services Australian Government (2010) Social Inclusion Agenda, How Australia is Faring Report 2010 Federation of Ethnic Communities Councils of Australia Page 22

23 3. Findings, Good Practice and Recommendations: Five Key Support Services 3.1 Employment Social Context: Employment and CALD communities Employment is one of the primary determinants of the economic, social and psychological well-being of CALD communities and significantly impacts on their ability to actively participate and contribute to Australia s political, economic and social life 14. The labour force statistics for migrants 15 reflect the importance of appropriate employment services for these communities. In 2007, not only were participation rates higher for migrants (70.2%) than for people born in Australia (67.3%), but unemployment rates were also slightly higher for migrants (5.6%) than for people born in Australia (4.9%). At this time, there were 599,600 unemployed persons of which 33% (196,400) were overseas born. This figure is higher than their proportional representation within the Australian population. Of the overseas born unemployed population, almost three-quarters (73% or 142,600 persons) were from CALD communities 16 whilst only 27% (53,400 persons) were born in countries where English is the main language. Recent migrants accounted for 42% (83,100 persons) of the overseas born unemployed and 58% (113,300 persons) of these were long term migrants. Unemployment rates for various communities differ significantly. The Chinese and Lebanese communities had more than double the Australian unemployment rate in 2006, while the Iraqi community had an unemployment rate that was more than 4 times higher than the Australian rate 17. These differences in employment outcomes highlight the importance of recognising disadvantages in employment outcomes for some communities, the complex barriers they face when entering the employment market and the importance of sensitive and responsive employment services providers. 14 Berman, G., (2008) Harnessing Diversity: Addressing Racial And Religious Discrimination In Employment, Victorian Multicultural Commission and the Victorian Equal Opportunity & Human Rights Commission, accessed at, 15 Australian Bureau of Statistic (2009) Labour Force Status and Other Characteristics of Recent Migrants, November, 2007, Cat. No That is those from those from different cultural backgrounds and who speak a language other than English, or who have English as a second language. It should be noted that according to the Australian Bureau of Statistics, countries that have English as a main language, include, UK, Ireland, Canada, the United States, New Zealand and South Africa. 17 Australian Bureau of Statistic (2009) Labour Force Status and Other Characteristics of Recent Migrants, November, 2007, Cat. No Federation of Ethnic Communities Councils of Australia Page 23

24 Policy Context: Employment and CALD communities The Department of Education, Employment and Workplace Relations (DEEWR) provides funding for the delivery of employment services nationally. On July 1, 2009, DEEWR introduced Job Services Australia (JSA) as its primary vehicle for employment services. Investment in this service is anticipated at $4.9 billion over the next three years, with delivery via a range of for-profit and not-for profit providers nationwide. Of the 2,100 JSA sites across Australia, there are currently 27 CALD specific sites. These providers are obligated to operate services and programs in accordance with the Australian Government s Employment and Related Services Code of Practice FECCA acknowledges a number of positive approaches to the delivery of employment services: Employment Assistance Support Streams The appropriate assessment and allocation of CALD clients to streams that reflect the intensity of job services support is viewed as being an important starting point in ensuring equitable access to employment support. The availability of the JSA Employment Pathways Funds to support employment outcomes of CALD Clients and the Department of Human Services Job Capacity Account, which assessors use to refer eligible job seekers to psychological counselling and other services to help them address barriers to work. There are a number of positive aspects to the New Performance Management Framework. The most notable is that outcomes are comparable across providers and not across streams. Productivity Places Program and other workplace training programs are highly valued by CALD clients. They are viewed as a very important way of acquiring work experience in Australia, without which securing employment is often very difficult. While JSA was one of the major employment issues for CALD communities identified throughout consultations, participants also identified Australian skills recognition requirements as another key area significantly impacting on equity and access to employment within Australia. Under current provisions, State and Territory Qualifications Units are contracted to provide general information regarding recognition of degrees but not to provide assessments for eligibility for practice of particular trades and professions. The assessment, recognition and registration of professionals and trades persons are contracted to State and Territory or National professional bodies and industry associations. Requirements across States and Territories and across professional bodies differ widely, as do the costs and requirements of bridging courses. Requirements for bridging courses are Federation of Ethnic Communities Councils of Australia Page 24

25 also contingent on the profession and country in which prior qualifications were obtained. While recognition of qualifications and experience may be undertaken prior to arrival as a pre-migration requirement for skilled migrants, registration and bridging requirements are all undertaken within the country. It should be noted that bridging courses are charged at international student rates for those on a provisional visa. Employment: Access and Equity Indicators Communication: Providing information in a timely manner, in appropriate media, publications, formats and languages.... refugees don t have English skills, they don t know anything about the country and yet we are assessing their job capacity within the first three months of them arriving and they don t even know how the system works here let alone speak the language Job Capacity Assessments Need for much greater sensitivity to and understanding of the immediate settlement needs of refugee communities. This lack of understanding is reflected in a lack of appropriate information, supports, process and timing for job capacity assessments and job services appointments. 2. Recognition of Settlement needs Participants advocated that, in the first instance, immediate settlement needs (housing, income supports, health issues, schooling) be addressed prior to employment assessments. They also highlighted a need for better explanations of government support services and the processes involved in first languages (using interpreters and translated materials) prior to these assessments and appointments being undertaken. Consultations also highlighted a need for greater consistency and clarity across JSA providers in information for clients about their obligations and responsibilities. 3. Need for Clear Guidelines on Study and Work Requirements Consultations identified that JSA providers often held conflicting views on the number of hours spent per week in AMEP, and the corresponding job search and employment requirements. This leads to significant confusion for CALD clients as to their responsibilities with respect to work/study demands. In the absence of clear guidelines, the requirements of CALD clients with respect to work and study are vulnerable to subjective interpretation. Lack of clarity and appropriate information impacts on clients expectations, their planning, family arrangements and frustrates the settlement experience. Federation of Ethnic Communities Councils of Australia Page 25

26 4. Need for Translated Written Materials on JSA Services JSA brochures are currently the only translated materials currently available to CALD communities. They are available in 16 languages. Fact Sheets are not currently available in languages other than English. Communication: Recruiting and training staff who have appropriate linguistic and cultural skills or using interpreting services to ensure effective communication with clients, as necessary It s a struggle to even get a JSA to use an interpreter 5. Reluctance to Use Interpreters Timely access to interpreters, particularly within the initial stages of assessment and development of employment pathway plans is critical to ensuring that employment pathways reflect skill sets, qualifications and settlement needs. Consultations drew attention to an inability or unwillingness of JSA staff to appropriately and sensitively communicate with non English speaking CALD clients. They noted that it was often a struggle to get JSA staff members within mainstream providers to use an interpreter. It is recommended that an assessment of the usage of interpreters by JSA providers be undertaken. Responsiveness: Developing and delivering fair programs and services that are based on a sound knowledge of the needs, circumstances and cultural and other characteristics of clients and assess the direct impact on the lives of people. over many years I think we have seen quite a lack of capacity in individual agencies to actually cope with the complexity of working with newly arrived people 6. Recognising and Addressing Complex Needs Throughout the consultations, and consistent with the comments raised above, it was stressed that some JSA providers were unable and/or unwilling to address the complexities associated with working with newly arrived CALD clients whose needs significantly differed from mainstream job seekers, irrespective of the JSA allocated stream. While it is positive that clients should be able to fully access Employment Pathways Funds to support their needs, it was not clear from consultations that this was actually occurring within mainstream agencies, or that appropriate time allocation was provided for high needs CALD clients. 7. Equity in JSA Services The flexibility in funding allocation from the EPF may still result in skewed outcomes towards easier/more work ready clients within each stream. Without disaggregated data on employment outcomes, and EPF funding allocation for CALD clients in each of the streams it is difficult to ascertain whether they remain disadvantaged within mainstream JSA provision. Federation of Ethnic Communities Councils of Australia Page 26

27 8. Two Year Waiting Period Currently a two year waiting period exists for access to employment services for migrants who enter Australia under the family reunion stream. This policy was raised as a concern in consultations. The early years are a vital period of adjustment. Lack of access to the full range of services that appropriately reflects their needs can significantly impact on both employment outcomes and capacity to fully participate economically, socially and culturally in Australian life. Responsiveness: Drawing on cultural diversity to improve efficiency and effectiveness of agency programs and to support innovation and success of Australian enterprises: Providing appropriate staff training...what kind of qualification do people bring when they become employment consultants? Because as an employment consultant, you re a financial counsellor, you re a social worker, you re a psychologist. You wear so many hats 9. Need for culturally competent staff in JSA s The consultations highlighted the variability in the cultural competence of staff across JSA providers and the critical need for training. It was noted that there appeared to be no formal requirement for training, assessment or evaluation of cultural competence of staff in mainstream JSA providers. Responsiveness: Drawing on cultural diversity to improve efficiency and effectiveness of agency programs and to support innovation and success of Australian enterprises: Supporting Australia s competitive business advantage arising from the diverse backgrounds, skills and networks of its workforce and population what I want us to focus on here is realising the merits of immigrants... Many immigrants come and they don t get their qualification recognised...it looks like we are saying we don t like merit...overseas experience is not recognised. Overseas qualifications are not recognised. Overseas referees are not recognised...how is that a merit based system? 10. Complex Skills Recognition Processes Under-employment was an issue for CALD communities repeatedly highlighted throughout the consultations. Many reported difficulties in navigating the complex requirements for qualifications recognition and felt that their skills and experience were under-utilised and wasted. Federation of Ethnic Communities Councils of Australia Page 27