House of Representatives Standing Committee of Indigenous Affairs

Inquiry into food pricing and food security in remote Indigenous communities

Submission

National Indigenous Australians Agency

June 2020

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 1 security in remote Indigenous communities

1. INTRODUCTION

1.1.1 The National Indigenous Australians Agency (NIAA) welcomes the House of Representatives Standing Committee of Indigenous Affairs inquiry into food pricing and food security in remote Indigenous communities. Food security in remote communities is a long standing issue that has seen some progress over time, however, there are challenges that persist or remain unresolved. The NIAA is committed to working with stakeholders to address ongoing, unresolved issues.

1.1.2 This submission responds to the terms of reference and provides additional information as requested by the Committee during the preliminary hearing.

• Section 2 outlines the operating environment for community stores; including the unique relationship between stores and their communities, the challenges of operating in remote areas, and the stores’ governance arrangements (Terms of Reference 1 and 3). • Section 3 provides a more detailed overview of NIAA’s role in food security through the operation of the Northern Territory Licensing Scheme (Terms of Reference 2, 3 and 8). • Section 4 outlines the ongoing challenges such as distance, infrastructure and seasonal changes; the barriers to reliable access and affordable products faced by remote residents; and the demand for locally produced food in remote communities, including through community gardens (Terms of Reference 4, 5 and 6). • Section 5 outlines roles and responsibilities of food and grocery manufacturers and suppliers and other stakeholders in securing food for remote communities during COVID-19, and pathways towards greater sectoral cooperation (Terms of Reference 7). 1.1.3 Further, the NIAA is preparing a simple ‘basket of goods’ report, which provides a snapshot of current food prices across remote communities in the Northern Territory (NT), Queensland (QLD), Western Australia (WA) and South Australia (SA). The report will be based on available information from the five managed store companies involved in the Food Security Working Group and is not intended to be a comprehensive survey. This report will be provided to the Minister for Indigenous Australians, the Hon Ken Wyatt AM MP, and will be submitted separately to the Committee. Overview 1.1.4 The price of food in remote Australia is consistently higher than in metropolitan and regional centres. Previous reviews have indicated this is due to, for example, transport logistics costs and the relatively smaller purchasing power of remote communities. There is the additional challenge of making sure that healthy choices are available, and that these choices are incentivised (e.g. community

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 2 security in remote Indigenous communities

initiatives to increase the prices of sugary foods). Each store operates in its own unique context, with varying degrees of remoteness, population size, community engagement, jurisdictional regulations, and management structures (see Attachment A). Responsibility for food security and fair prices falls across all levels of government and in partnership with the communities, store managers, wholesalers, retailers, manufacturers, the food producers and freight companies.

1.1.5 Access to nutritious and affordable food is essential to closing the gap between Indigenous and non-Indigenous Australians, particularly related to health and social determinants (e.g. child mortality, early childhood development, educational attainment, housing, justice, and employment).

1.1.6 The NIAA is responsible for a number of relevant investments as part of the Commonwealth Government’s commitment to improve the lives of all Aboriginal and Torres Strait Islander peoples (see Attachment B for further details). For example, the NIAA:

• works with the independent Commonwealth-owned company Outback Stores to support store viability in remote communities • assists store owners and managers to address issues related to store governance, employment, management, financial practices and the promotion of good nutrition under the community stores licensing scheme in the NT, and • works to improve food security and nutrition in school age children through school nutrition projects in the NT. 1.1.7 A key priority for the Commonwealth Government during the Coronavirus (COVID- 19) pandemic has been to secure a reliable supply of essential goods (groceries, pharmaceuticals etc.) in remote communities. To coordinate and secure the ongoing supply of essential goods to remote communities, the NIAA:

• convened a dedicated Food Security Working Group with community store management companies and suppliers, and state and territory, and • worked with the Supermarkets Taskforce under National Cabinet’s National Coordination Mechanism to encourage national level supermarkets and wholesalers to support supply to remote communities.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 3 security in remote Indigenous communities

2. OPERATING ENVIRONMENT FOR COMMUNITY STORES

2.1 OVERVIEW

2.1.1 The remote stores landscape supports an estimated 150,000 Indigenous Australians who live across more than 1,200 remote and very remote communities.1 In remote communities, the community store is often the primary source of food and other goods so plays an important role in improving social, economic and health outcomes. The NIAA estimates there are currently over 200 stores servicing remote communities across Australia (see Figure 1), of these, 80 are in remote Indigenous communities with a population of less than 200 people.2 A list of remote community stores is at Attachment C.

Figure 1: Map of remote community stores across Australia 2020.

1 Remote and Very Remote communities are defined in line with the Accessibility and Remoteness Index of Australia (ARIA). ARIA is a geographic accessibility index that aims to reflect the ease or difficulty people face accessing services in non–metropolitan Australia. ARIA measures remoteness in terms of access along the road network from over 11,000 localities to five categories of service centres. Areas that are more remote have less access to service centres; areas that are less remote have greater access to service centres. 2 Australian Bureau of Statistics. 2006. Housing and Infrastructure in Aboriginal and Torres Strait IslanderCommunities,Australia,2006 Retrieved from: https://www.abs.gov.au/AUSSTATS/[email protected]/Latestproducts/4710.0Mainper20Features42006?opendocu ment&tabname=Summary&prodno=4710.0&issue=2006&num=&view=

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 4 security in remote Indigenous communities

2.1.2 The relationship between a remote community store and its community differs compared to major or metropolitan retailers in regional and urban settings in a number of important ways. For example: • remote community stores are often owned by the community, employing a store manager to run the store on its behalf. In some cases, the store has a committee that oversees the operations of the store and employees. In other situations, a store management company, like Outback Stores or Arnhem Land Progress Aboriginal Corporation (ALPA), might be selected by the community to help with operation of the store • remote community stores are often the primary vehicle to ensure reliable access to affordable and nutritious food supply to residents of remote Indigenous communities. Most estimates suggest that between 90 and 95 per cent of food eaten in remote Aboriginal communities is food purchased in the store, with traditional foods now contributing only a small amount to people's dietary intake.3 • remote community stores often stock a limited range of other consumer goods such as clothes, household hardware, televisions and toys. Some community stores also provide fuel, or have takeaways attached • remote community stores are often the only business or source of income being generated within the community. Well-managed community stores can have an important role in stimulating the local economy and can act as the conduit for broader economic and business opportunities, and • remote community stores often act as the communities’ social hub, supporting social interactions with other community members, as well as fulfilling other needs such as banking.

2.1.3 In addition, the operations of remote community stores are different to retailers operating in urban or metropolitan settings:

• smaller market size means the purchasing power is lower. Purchasing power is a function of the price of goods and the volume ordered, and impacts on the range, quality and value of goods which can be offered for sale; • supply is less reliable. Physical isolation, poor roads, and seasonal changes such as wet seasons can result in disruptions to supply; • operating costs are higher. Wages and housing are more expensive, as is store infrastructure and repair costs for electrical and other equipment. Freight

3 House of Representatives Standing Committee on Aboriginal and Torres Strait Islander Affairs. 2009. Everybody's Business: Remote Aboriginal and Torres Strait Community Stores.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 5 security in remote Indigenous communities

(transport) costs to remote locations are high. Fuel prices in remote communities can be twice that of cities;4 • competition is lower. Many community stores are either the sole provider or one of the few suppliers of food and other essential items in the community; • retaining suitably qualified staff is harder. Higher price levels in the store can result from higher wages and housing subsidies being required to attract and maintain experienced food retailing staff in remote locations; and • stores can be less viable. There is a direct correlation between community population, market size and the stores' financial viability.5 2.1.4 Some communities choose to balance the social and economic benefits through pricing strategies. Some products, such as high sugar drinks are profitable but less nutritious. By putting high prices on high sugar drinks while allowing nutritious food to remain at a lower cost, the community store can support healthy eating.

2.1.5 The 2019 NT Market Basket Survey results suggest a healthy diet is less expensive than the current diet consumed in remote communities. These findings are similar to those of Lee et al6 who found ‘healthy diets can be more affordable than current (unhealthy) diets in Australia’. Lee et al used a similar methodology, but costed a more comprehensive range of foods and included alcohol in the current (unhealthy) diet.

2.2 GOVERNANCE

2.2.1 Many community owned stores are guided by a store management committee which oversees store operations. Good store governance relies on the capacity of the community body to direct store policy in the interests of the community while holding store management to account in maintaining a viable business. As highlighted by the 2009 Inquiry, ‘a healthy store is one where the community has the opportunity to participate in decision making about store well-being outcomes. There must be appropriate governance structures in place to ensure this happens.’7

4 House of Representatives Standing Committee on Aboriginal and Torres Strait Islander Affairs. 2009. Everybody's Business: Remote Aboriginal and Torres Strait Community Stores. 5 Department of Families, Housing, Community Services and Indigenous Affairs. 2009. Submission to House of Representatives Standing Committee on Aboriginal and Torres Strait Islander Affairs Inquiry into community stores in remote Aboriginal and Torres Strait Islander communities. Retrieved from: https://www.aph.gov.au/parliamentary_business/committees/house_of_representatives_committees?url=at sia/communitystores/subs.htm 6 Lee AJ, Kane S, Ramsey R, Good E, Dick M. Testing the price and affordability of healthy and current (unhealthy) diets and the potential impacts of policy change in Australia. BMC Public Health 2016;16(1):315. 7 House of Representatives Standing Committee on Aboriginal and Torres Strait Islander Affairs. 2009. Everybody's Business: Remote Aboriginal and Torres Strait Community Stores.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 6 security in remote Indigenous communities

Managed store model 2.2.2 Store management companies operate across a number of stores in remote communities such as Outback Stores, ALPA, Mai Wiru, Aboriginal Investment Group (AIG), Regional Merchandising Solutions (RMS), Community Enterprise Queensland (CEQ) and Island and Cape. These companies focus on the financial viability of the remote stores they manage, providing a model for sustainable food security in low population communities. Group purchasing and rationalising freight arrangements across a number of stores within a region brings economies of scale to reduce cost. The companies also support the health and wellbeing of Indigenous communities they serve through access to nutritious and affordable food, improved services and employment opportunities.

2.2.3 As shown in the Figure 2 below, it is estimated that 48 per cent of remote community stores across Australia have management support. Management support is different for each company and can include retail and nutritional expertise, development and implementation of store policies, sourcing and delivering quality food, training and employing managers and local staff, working with store boards, presentation of financial information and supporting community through return of profits and investing in social outcomes. Managed store models differ for each company and are generally conducted through a management agreement with the store owner.

Figure 2: Percentage of stores by management arrangement.

2.2.4 As highlighted in the NT Market Basket surveys, the proportion of Aboriginal employees has been consistently higher in stores managed and/or owned by a stores group than in other stores. In the 2019 survey, 74 per cent of employees in stores managed and/or owned by a stores group were Aboriginal, compared with 29 per cent of employees in a privately owned store, and 55 per cent of

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 7 security in remote Indigenous communities

employees in a store owned by a community or an Aboriginal corporation. Overall the percentage of Aboriginal employees has remained stable since 2000.8

Outback Stores

2.2.5 As part of the managed store approach, the Commonwealth Government established Outback Stores in recognition of the hardship faced by many residents in remote areas, in accessing regular, quality, affordable and healthy food. Outback Stores objectives are defined under its company constitution with food security in remote communities as the primary objective. Outback Stores aims to improve the commercial viability of remote community stores, provide a better range of affordable health foods, provide consistency in delivering and supplying quality products, increase local employment opportunities for Indigenous workers, and establish more efficient and reliable stores.9 A total of $92 million has been provided by the Commonwealth Government across the years 2006, 2007 and 2009 (see Attachment B for further detail). As of March 2020, $43.5 million remains in Commonwealth funds to support Outback Stores’ ongoing operations and financial sustainability.

2.2.6 Outback Stores utilises Commonwealth Government funds to provide financial assistance for unviable and barely viable remote stores to ensure ongoing food security. Where a community with an unviable store wishes Outback Stores to manage the store on its behalf, the NIAA independently assesses the food security situation to determine food security risk and whether underpinning of the store would be an appropriate use of funds. This assessment considers a broad range of factors impacting on food security, including community size, remoteness, distance to other stores, local food sources, access to transport, home environment and other investments in the community such as health clinics and schools. Where a food security risk is identified, Outback Stores work with the community to develop their management agreement, and then seek formal approval for release of funds through the NIAA.

2.2.7 As a wholly owned and independent Commonwealth company, Outback Stores has a mandate to improve access to affordable healthy food for remote Aboriginal and Torres Strait Islander communities, through the provision of quality retail- management services for community stores, on a fee-for-services basis. Management agreements are made with the store committee that outline the

8 Northern Territory Government (2019). Northern Territory Market Basket Survey 2019 9 Outback Stores operations are governed by a company constitution and an independent board of directors who are appointed by the Commonwealth. As a Commonwealth company Outback Stores must meet the requirements of the Public Governance, Performance and Accountability Act 2013 (PGPA Act). The Outback Stores board is responsible for the strategic direction of the company. The Chief Executive Officer, who is appointed by the Board, is responsible for the day-to-day operations of the company. Outback Stores is an Indigenous Portfolio Body in the Prime Minister and Cabinet (PMC) portfolio. To improve outcomes for Indigenous Australians the NIAA collaborates with all Indigenous Portfolio Bodies in the PMC portfolio, including Outback Stores.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 8 security in remote Indigenous communities

services Outback Stores will provide, including employing store managers and recruiting local staff, stock ordering and control, freight arrangements, accounting services, staff training and providing nutritional oversight and advice to the store. When a store makes a profit, it remains with the store owners with an allocation set aside for future store improvements while some is put into a community benefit account for the community.

2.2.8 Outback Stores also encourages management practices that promote healthy food choices and improve nutrition in remote communities as outlined in the Outback Stores Healthy Food Strategy 2017-2020. As part of this work, the NIAA provided $500,000 to Outback Stores from 2016 under the Indigenous Advancement Strategy (IAS) to support a sugar reduction strategy to reduce the sales of high sugar products in selected remote community stores. This includes the development of in-store action plans, a tool-kit for community engagement on sugar reduction, store manager guidelines on product placement, promotion and guides on healthier choices and an evaluation of the project due in 2021. Outback Stores has also engaged with stores it does not manage to provide ongoing nutritionist support to stores electing to implement the Sugar Strategy. 2.2.8 The NIAA understands that Outback Stores will provide its own submission to the Inquiry that will further detail its operating model.

Governance support 2.2.9 The 2009 Inquiry recommended the Commonwealth Government support proposals that Indigenous owned and controlled community stores register as corporations under the Corporations and Aboriginal and Torres Strait Islander Act 2006 (CATSI Act). In addition, the Committee recommended the Commonwealth Government actively promote and encourage registration under the Office of the Registrar of Indigenous Corporations (ORIC), and offer governance and financial management training to community stores.

2.2.10 ORIC has advised the NIAA that 131 Aboriginal and Torres Strait Islander corporations incorporated under the CATSI Act reported community store as an activity. Of these, 70 per cent of stores have had one or more person participate in corporate governance training activities provided by ORIC over the past five years. In all, 339 courses have been completed over the past five years covering 312 participants. This includes 27 people completing multiple training activities, with three participants ultimately graduating with a Diploma of Business (Governance). A further 36 people started training activities but did not complete the course.

2.3 REGULATION

2.3.1 Responsibility for the regulation of Indigenous-owned stores is spread across different Commonwealth, state and territory agencies: ORIC has responsibility for

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 9 security in remote Indigenous communities

those registered under the CATSI Act, the Australian Securities and Investments Commission (ASIC) oversees governance matters for stores under the Corporations Act, and state and territory business affairs agencies deal with corporate governance issues for stores, assisted by ASIC. This creates a variety of regulatory compliance approaches, and the need for a simplified and strengthened regulatory framework for stores has been noted previously.10

2.3.2 The NIAA does not have a role in consumer protection laws and regulation. The NIAA has no evidence to show that federal, state and territory consumer protection laws or regulations are not supporting affordable food prices in remote communities, failing to address instances of price gouging, or providing oversight and avenues for redress.

10 Department of Families, Housing, Community Services and Indigenous Affairs. 2009. Submission to House of Representatives Standing Committee on Aboriginal and Torres Strait Islander Affairs Inquiry into community stores in remote Aboriginal and Torres Strait Islander communities. Retrieved from: https://www.aph.gov.au/parliamentary_business/committees/house_of_representatives_committees?url=at sia/communitystores/subs.htm

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 10 security in remote Indigenous communities

3 COMMUNITY STORES LICENSING IN THE NORTHERN TERRITORY

3.1 OVERVIEW

3.1.1. A key food security responsibility for the NIAA is the operation of the NT Community Stores Licensing Scheme (Licensing Scheme). The Licensing Scheme was introduced under the Northern Territory National Emergency Response Act 2007 (NTNER Act) to support income management and improve food security in Indigenous communities in the NT. The Licensing Scheme was refined and continued under the Stronger Futures in the Northern Territory Act 2012 (SFNT Act), with a strengthened emphasis on supporting food security. Continuation of the Licensing Scheme was considered necessary to counter the effects of market failure in remote communities, and the broader social and food security consequences for a community if a store were to fail.

3.1.2. As outlined in the report from the 2014 performance review of food security conducted by the Australian National Audit Office (ANAO), the SFNT Act introduced a more streamlined licensing regime that included a risk-based approach to regulation, reducing the unnecessary burden on stores that have been assessed as running well. The Licensing Scheme was expanded to cover all areas of the NT, except for Darwin and the major regional centres which have been excluded by legislative instrument. The SFNT Act also broadened the definition of a community store to include mobile facilities that may not always be located within the food security area.

3.1.3. The SFNT Act also introduced a wider range of penalties to deal with breaches of licence conditions, depending on the level of seriousness of the breach. In administering the Licensing Scheme, NIAA’s approach has been to work with stores to address performance issues, rather than pursuing legal remedies or applying penalties that may impact on a store’s ongoing viability. By adopting a risk-based approach, the NIAA concentrates its efforts on higher risk stores and monitoring ongoing compliance with licensing requirements with a view to building the stores’ ongoing capacity to support food security.

3.1.4. In practice, the Licensing Scheme operates as follows.

• In line with legislative requirements, before determining whether a store is required to be licensed, the NIAA undertakes community consultations about the services provided by the store and the licensing scheme. If consultations indicate a store is an important source of essential goods, the NIAA provides formal notice to the store’s owner and manager of the proposal to require the store to be licensed and seeks submissions from them.

• After considering submissions and other relevant information, if the NIAA determines a store is required to be licensed, the owner is invited to apply for a license. If an application is not made or the store cannot meet licensing standards (even with assistance), the store would be prohibited from trading and is subject to penalties for continued trade.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 11 security in remote Indigenous communities

• The store owner and manager are notified and invited to make submissions if a conditional license is proposed. Any granted license remains in force until the end date of the SFNT Act (July 2022) unless revoked prior.

• Once licensed, stores are monitored on a risk management basis to ensure they continue to meet licensing requirements. Well-managed low risk stores receive monitoring visits approximately every 12 to 18 months. Higher risk stores are monitored more frequently. Very high risk stores have been monitored as frequently as monthly.

• Full license assessments, which involve in-depth consideration of the store’s operations, may be conducted for higher risk stores rather than monitoring visits.

• As briefed to the Committee, the NIAA has a monitoring and assessment backlog that it has prioritised to clear once staff can re-enter communities.

• Licensing activities are undertaken by appropriately skilled NIAA staff who are appointed as Authorised Officers for the purposes of Part 4 (Food Security) of the SFNT Act. Authorised officers have powers under the SFNT Act to acquire information about the operation of licensed stores.

• The NIAA has adopted a regionalised model, and the responsibility for licensing activities and other food security related functions rests with NT regional offices: Top End and Tiwi Islands; Arnhem and Groote Eylandt; and Central Australia.

• Licensing and monitoring visits involve an assessment of governance, financial viability, management and promotion of healthy food, retail management, employment practices, the range of health food, and a price and date check, as well as well as compliance with license conditions. The NIAA takes a risk- based approach to licensing arrangements, and the arrangements for low risk stores versus extreme risk stores is at Figure 3.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 12 security in remote Indigenous communities

Figure 3: Licensing arrangement for low and extreme risk stores.

Low risk stores Extreme risk stores

Risk No major issues are identified, Significant issues are identified in relation to assessment the store meets all or most of one or more key areas of service delivery, the requirements and any financial viability, governance, retail minor issues identified are management or compliance. being addressed. Treatments are decided and may include • unannounced monitoring visits; • additional license conditions; • engaging support from experts such as nutritionists, ORIC or management specialists; • increased assessment of financials; and • regular formal facilitation between key stakeholders. Monitoring Monitoring visits are reduced Monitoring visits will be increased to at least visits to within 18 months, regular quarterly until the identified issue/s have contact may continue to been resolved. maintain relations and provide early warning if operating Penalties for ongoing non-compliance are standards change. available through the SFNT Act however it is preferred to work closely with stores to Financial assessment annually ensure they do not fail and food security is along with police checks for maintained. new managers.

Board liaison NIAA staff may meet with the NIAA staff would meet with the store board, store board, if there is one, to if there is one, to discuss the findings and discuss findings. recommended treatments.

3.1.5 Funding for stores that need assistance has been sourced though grant programmes such as the Aboriginals Benefit Account or the Indigenous Advancement Strategy. Outback Stores may also contribute operational and capital underpinning for unviable and barely-viable stores that they manage.

3.1.6 There are currently 100 licenced stores in the Northern Territory (see Attachment D). The characteristics of these stores include:

• most licensed stores (currently 94 per cent) have a low or moderate risk rating. Those with a higher rating are mostly self-managed (4 of 6 stores)

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 13 security in remote Indigenous communities

• most licensed stores are community owned (68 per cent) with the remainder either privately owned (31 per cent) or owned by local government (1 per cent)

• around half of licensed stores are managed by specialist store management companies. Based on the latest figures available, the largest manager of licensed stores is Outback Stores (45 per cent of the managed stores), followed by ALPA (31 per cent). The remaining split is TAH Northern Territory (8 per cent), Mai Wiru and Remote Merchandising Solutions (6 per cent each) and Aboriginal Investment Group (4 per cent)

• approximately 55 licensed stores are owned by entities incorporated under the CATSI Act. The remaining stores have a mix of ownership arrangements, including ASIC companies, NT Associations Act associations and private businesses. A small proportion (10 per cent) are owned through partnerships, sole traders and shire councils, and

• the largest number of licensed stores are in the NIAA Central Australia region (45 per cent of licensed stores), followed by the Top End and Tiwi Islands (32 per cent) and Arnhem Land and Groote Eylandt (23 per cent) regions.

3.1.7 The NIAA has responded to the recommendations of past reports and audits, in particular by working to align current regulatory practices to legislation. For example, in response to the 2014 ANAO Report, the Department of the Prime Minister and Cabinet (as the portfolio responsible at that time) reviewed alignment of its current licensing requirements approach against the SFNT Act and adopted risk-based compliance monitoring from 2015.

3.1.8 There is evidence that shows the Licensing Scheme has been effective in improving food security in the NT. This includes:

• the ANAO 2014 performance audit found that store operators generally accept the licensing scheme and recognise the scheme has had a positive impact on store operations

• the Parliamentary Joint Committee on Human Rights in its 2016 Review of Stronger Futures Measures found that food security measures continued under the SFNT Act are likely to promote the right to an adequate standard of living (including the right to food).11

11 Parliamentary Joint Committee on Human Rights. 2016. 2016 Review of Stronger Futures Measures. Retrieved from: https://www.aph.gov.au/Parliamentary_Business/Committees/Joint/Human_Rights/Committee_In quiries/strongerfutures2/Final_report

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 14 security in remote Indigenous communities

• the evaluation in 2011 found that stores licensing has had a positive impact on food security, in terms of ongoing access to food that is safe and of sufficient quality and quantity to meet household needs.12

• the variety and quality of fresh fruit and vegetables available in remote NT stores has improved. The 2019 NT Market Basket found variety increased by an average of 36 per cent (from 22 varieties to 30 varieties) between 2007 (prior to the Scheme) and 2019 and 87 per cent of fresh fruit and vegetables were rated to be of ‘good’ quality, and 13

• 56 per cent of NT remote stores currently have a nutrition policy. The percentage of stores with nutrition policy markedly increased from 2000 to 2011 and has since remained stable.14

3.1.9 The food security measures of SFNT Act will cease in July 2022 unless the legislation is extended or replaced.

12 Cultural and Indigenous Research Centre. 2011. 13 Northern Territory Government (2019). Northern Territory Market Basket Survey 2019 14 Northern Territory Government (2019). Northern Territory Market Basket Survey 2019

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 15 security in remote Indigenous communities

4 BARRIERS TO FOOD SECURITY AND DEMAND FOR LOCALLY PRODUCED FOOD

4.1 ACCESS TO FOOD

4.1.1 Consumption of fresh and healthy food is a public health issue for all Australians. In 2015, 7.3 per cent of the total burden of disease in Australia was due to poor diet15 and Australians in rural and remote areas experience four times the rate of the burden of disease compared to other Australians.16 Less than one in ten Australians meet the recommendations for daily vegetable consumption based on the Australian Dietary Guidelines, which has remained constant over the past ten years,17 and people living in outer regional and remote areas were more likely to have inadequate fruit consumption than those living in major cities.18

4.1.2 Remote communities experience higher food costs compared to metropolitan areas due to factors such as additional freight and fuel costs, higher operating costs and lower purchasing power. These factors, combined with lower household incomes, impact on the affordability and accessibility of quality food and essential items for those living in in remote communities.

4.1.3 Recent surveys across the NT and WA confirm food prices remain higher in remote locations relative to major cities and regional centres. In 2019, the NT Market Basket Survey covered 58 stores across the Darwin, East Arnhem, Katherine and Alice Springs districts. On average, a Healthy Food Basket in remote stores were 56 per cent more expensive than supermarkets and 6 per cent higher than corner stores in the district centre.19 As part of the WA Regional Price Index in 2019 (collecting the prices of goods and services from 39 regional locations), food prices were estimated to be around 6 per cent higher in the Pilbara and 12 per cent higher in the Kimberly region compared to Perth.20

4.1.4 Reliable access to affordable fresh and healthy food, groceries and other essential supplies is hampered by the environmental challenges faced by remote communities and their stores. Deliveries to some remote community stores may

15 Australian Institute of Health and Welfare.2019. Poor Diet. https://www.aihw.gov.au/reports/food-nutrition/poor-diet/contents/dietary-guidelines 16 Australian Institute of Health and Welfare. Burden of Disease Overview. https://www.aihw.gov.au/reports-data/health-conditions-disability-deaths/burden-of- disease/overview 17 Australian Institute of Health and Welfare. Health Performance Framework. https://www.aihw.gov.au/reports-data/australias-health-performance/australias-health- performance-framework/national/all-australia/behaviours/health-behaviours?tab=1.2.4|Trend 18 Australian Institute of Health and Welfare 2019. Poor diet. Cat. no. PHE 249. Canberra: AIHW. Viewed 22 April 2020, https://www.aihw.gov.au/reports/food-nutrition/poor-diet 19 Northern Territory Government (2019). Northern Territory Market Basket Survey 2019 20 Western Australian Government (2019). Regional Price Index 2019

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 16 security in remote Indigenous communities

occur once a fortnight or longer depending on remoteness and the wet season. Deliveries may also require a number of modes of transport.

4.1.5 The challenges of freighting goods, especially perishable goods, to remote Indigenous communities include the travel time, the ease of access due to the conditions of roads, rail, access channels and barge ramps, and weather conditions. Wholesale supply to remote communities is delivered predominantly through Metcash’s distribution centres in Canning Vale, Darwin, Alice Springs and Cairns. The geographic distance from major centres means it can take 10-14 days for goods to travel from the distribution centres to remote communities.

4.1.6 There are seasonal disruptions to road access in some communities, including during the wet season. Cape York, and Arnhem Land are geographically isolated during the ‘Wet’ from around December to March each year. During the wet season road food supply can be cut off entirely for a month or more. Some communities across Australia rely on air drops. In the Torres Strait, safe navigation and access is impeded by tides and currents and the effectiveness of freight is totally reliant on the condition of the sea and infrastructure at delivery points.

4.1.7 Remote community stores bring in additional stock prior to the wet season to ensure there are sufficient products to last until access re-opens. Stores need sufficient financial reserves and adequate dry and refrigerated/freezer storage to hold the wet season order.21 During these periods, perishable goods may need to be flown in by air charter, which is an additional expense for stores and adds to the cost of food in these communities.

4.1.8 Access to affordable fresh and healthy food, groceries and other essential supplies is also affected by the lack of choice and lower incomes in remote communities. Many community stores are either the sole provider or one of the few suppliers of food in the community, reducing opportunities for competitive pricing within communities. Moreover, affordability is not simply about reasonable prices. It is also about having the funds to purchase goods at those prices. Higher food prices in remote communities result in an increased percentage of income spent on food, while noting other costs such as accommodation is often cheaper when compared with urban centres.

4.2 THE AVAILABILITY AND DEMAND FOR LOCALLY PRODUCED FOOD IN REMOTE COMMUNITIES

4.2.1 As a result of the barriers facing remote communities from having reliable access to affordable fresh and healthy food, there are examples of locally produced food

21 Improved storage capacity was one of the things NIAA supported under the ABA Stores Infrastructure Project that resulted in the construction and upgrade of stores in 18 remote communities across the NT. See Attachment B for further detail.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 17 security in remote Indigenous communities

initiatives. The most common model is the community garden. Community gardens include household, school, market, cultural and healing gardens as well as community owned market gardens, farms and orchards.

4.2.2 There is a lack of published evidence of the outcomes of previous initiatives to grow food locally in Aboriginal communities. It is therefore difficult to substantiate the intended benefits such as reducing dependence on outside food supplies, keeping money in the community, and improvements in self-esteem.

4.2.3 From the NIAA’s experience, garden projects that are designed with clear objectives and done well can generate a variety of community benefits. Community gardens have the potential to contribute to better health and wellbeing and provide opportunities for meaningful community development, social inclusion, training and economic participation.

4.2.4 Community gardens are, however, unlikely to address long-term food security issues. Unless operating at full scale, bordering on a commercial enterprise, gardens are not likely to be able to provide a constant supply of enough fruit and vegetables to meet community need.

4.2.5 Lessons from past investment indicate the main causes for the failure of community gardens has been a “top down” approach in the initial implementation phases, lack of understanding about cost and commercial viability and the technical demands of remote gardening, and failure to find a structure for sustaining the project when the initiator, usually from outside the community, leaves the community. Problems in continuity and ongoing management are a major problem even in urban community gardens with a large pool of enthusiasts, problems which are magnified in remote communities. An outline of the NIAA’s experience in funding gardens and bakeries is at Attachment B.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 18 security in remote Indigenous communities

5 A JOINT RESPONSIBILITY: FOOD SECURITY DURING COVID-19

5.1 ENHANCED COOPERATION DURING THE PANDEMIC 5.1.1 Ensuring food security in remote communities is a joint responsibility of the Commonwealth, and state and territory governments, in partnership with the communities, store managers, wholesalers, retailers, manufacturers and food producers and freight companies which provide food in remote communities. The pandemic, while posing significant challenges, also brought with it the opportunity for increased cooperation to address barriers to food security for remote communities during the pandemic.

5.1.2 Given the operating environment for remote stores, there were unique challenges during the COVID-19 pandemic:

• demand for food and groceries rose as many people returned to their communities, and stimulus and supplementary payments meant there was more money and, because of travel restrictions, people were unable to travel to regional centers to shop;

• supply was interrupted as a result of lower stock levels being available due to the drought, bushfires and panic buying in metropolitan areas; and

• the combined impact of reduced supply and increased demand meant that until ordering stabilised, many stores initially suffered significant stock outages.

5.2 PATHWAYS TOWARDS GREATER COOPERATION IN THE SECTOR TO IMPROVE SUPPLY 5.2.1 The pandemic demonstrated that disruptions in urban and metropolitan supply chains are felt in remote communities but can be remediated by concerted effort at the national level.

5.2.2 To enable supermarkets to coordinate their efforts to support supply and the fair and equitable distribution of retail products during the pandemic, the ACCC granted an interim authorisation to Coles Group, Woolworths and ALDI to collaborate through the Supermarkets Taskforce on 26 March 2020. The interim authorisation was later extended to include members of the Food Security Working Group.

5.2.3 The Commonwealth Government made food security, including ensuring supply to regional and remote communities, a high priority from the beginning of the pandemic response. This approach was twofold: to ensure food security; and to reduce the risk of that people would need to travel from remote communities to regional centres for food and potentially bring the virus back into their communities.

5.2.4 From 22 March 2020, the NIAA worked closely with major remote store management bodies, like ALPA, Mai Wiru, Outback Stores and Community

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 19 security in remote Indigenous communities

Enterprises Queensland, wholesale distributers Metcash and TAH Northern Trading, state and territory governments, and suppliers and freight provider SeaSwift through the weekly meetings of the NIAA COVID-19 Food Security Working Group. An outline of the membership and Terms of Reference of the Working Group is at Attachment E.

5.2.5 The NIAA Food Security Working Group was linked to key parts of the Commonwealth Government approach to COVID-19 including: • Remote Travel Restrictions COVID-19 Working Group led by the NIAA • Aboriginal and Torres Strait Islander Health Advisory Group on COVID-19 led by the Department of Health, National Aboriginal Community Controlled Health Organisation and the NIAA • The Supermarket Taskforce led by the Department of Home Affairs, and • The National Coordination Group on Emergency Relief and Food led by the Department of Social Services.

5.2.6 Key contributions of the NIAA Food Security Working Group membership included: • Sharing information from both the state and territory perspective, and the local level on how policies worked on the ground • Metcash worked with store management groups and food producers to ensure supply is allocated to remote communities including to smaller, independent community stores • Metcash delivered free of charge essential food and grocery supplies such as flour donated by Woolworths, and Manildra, and • The Australian Food and Grocery Council (AFGC) worked with its member organisations of producers, manufacturers and suppliers to prioritise the allocation of goods to remote communities and helped to identify and provide alternative products for any that were in short supply, and Working Group members assisted with distribution.

5.2.7 This work highlights what can be possible when governments and key players in the food logistic chain work together. The pandemic response highlighted that cross-jurisdictional and cross-sectoral collaboration can play a constructive role alongside the broader market-based production, supply and retail of food to remote communities. The NIAA welcomed the collaborative approach and will explore options to facilitate a similar partnership approach to support longer term food security in remote communities.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 20 security in remote Indigenous communities

ATTACHMENT A: A.1 Operating landscape

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 21 security in remote Indigenous communities

A.2 Example of the logistics to supply remote stores

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 22 security in remote Indigenous communities

ATTACHMENT B: NIAA’s Investment in Food Security

The NIAA investments in food security focus on the importance of food to good health through reliable access to good quality, nutritious, affordable foods in remote Aboriginal communities; including by: • working with the Commonwealth-owned company, Outback Stores to support store viability in remote communities • delivering the Aboriginals Benefit Account (ABA) Stores Infrastructure project completed in 2017 to support improved infrastructure in remote communities • administering the School Nutrition Project in the Northern Territory (NT) to support access to nutritious food for school age children in term time, and • community stores licensing in the NT to ensure viable stores in the food security area.

Outback Stores

Outback Stores is a Commonwealth-owned company established in 2006 in recognition of the hardship faced by many residents in remote areas, in accessing regular, quality, affordable and healthy food. The NIAA currently manages a funding agreement with Outback Stores for funding of $16.5 million provided in 2009, and conducts independent assessments of food security risk in communities prior to authorising release of these funds. Food security assessments are based on recent site visits (usually within two months, except in exceptional circumstances such as COVID-19 travel restrictions). Outback Stores work with the community to develop their management agreement, and then seek formal approval for release of funds through the NIAA.

Outback Stores Objectives are defined under its company constitution with food security in remote communities as the primary objective. This is followed by the objective to operate sustainably, competitively and efficiently (as long as this does not compromise the primary objective).

Outback Stores has received a total of $92 million in Commonwealth funding since 2006. Of the total funding received, $43.5 million remains at March 2020 to support stores to ensure food security in remote communities, and for Outback Stores’ operations. This funding includes:

• $46.4 million one-off establishment funding provided in 2006 to be used by Outback Stores in a manner consistent with its objectives and broader business operations • $29.1 million under the NT Emergency Response provided in 2007 for the operational underpinning of stores in the NT • $16.5 million, as part of a funding agreement with the NIAA for operational and capital underpinning for stores outside of the NT, and capital underpinning for NT stores.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 23 security in remote Indigenous communities

The NIAA also provided funding of $0.5 million under the Indigenous Advancement Strategy (IAS) to Outback Stores for the implementation of the Sugar Reduction Strategy for Remote Community Stores. The Strategy operated on the principles of being community led, and balancing the need to reduce the prominence and visibility of sugar products, while not removing the choice.

ABA Stores Infrastructure Project

Following the 2009 Inquiry that recommended the Australian Government establish a fund to respond to remote infrastructure needs, the ABA Stores Infrastructure Project was a special targeted expenditure of $55.8 million to support the construction and upgrade of stores in 18 remote communities across the NT. All stores are licensed and owned by local community corporations registered under the CATSI Act. New stores were constructed in 12 communities while six communities received upgrades of their existing stores. Ten communities also received new or upgraded houses for store managers to assist in retaining experienced store staff. In total 143 Indigenous workers were employed in the construction phase, with most coming from the local communities. The final works were completed in December 2017.

School Nutrition Projects

The NIAA works to improve food security and nutrition in school age children through School Nutrition Projects, which seek to improve school attendance, engagement and learning by providing meals to children enrolled in school in the NT. The Projects also provide employment opportunities for local Aboriginal and Torres Strait Islander people. Funding of $8.9 million in 2019-20 is being provided through the IAS to deliver projects in 76 schools across the NT. Funding of $39.5 million was provided over 4.5 years up to 2019.

The 2017 evaluation found that school nutrition projects have broader benefits than simply improving school attendance and provides up to 45 per cent of a child’s daily nutritional needs.22 In April 2020, as part of the COVID-19 Package to Boost Indigenous Businesses and Communities, Minister Wyatt announced up to $5 million additional funds to expand School Nutrition Projects in the NT in order to respond to need created by COVID-19. Given the success of other measures taken during the COVID-19 pandemic, demand has been lower than expected. As at the end of June 2020, 39 providers servicing 46 schools have received expansion funds totalling over $565,000. The expansion is providing meals to students during school holidays and pupil free days, for boarding students who have returned to community, and to other vulnerable community members where they do not have access to food from other services.

22 Menzies School of Health Research. 2017. An Evaluation of the School Nutrition Projects in the Northern Territory.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 24 security in remote Indigenous communities

As outlined in Section 3 of the Submission, the NIAA has responsibility for the Community Store Licensing in the Northern Territory under the Stronger Futures in the Northern Territory Act 2012 (SFNT Act).

Past experience funding community gardens and bakeries Initiatives the NIAA has invested in are linked to the recommendation of the 2009 Inquiry that the Commonwealth Government support community garden, traditional food and farming projects. This experience highlights that market gardens are not a quick fix, but take time to develop and meet the unique challenges of growing fresh produce in remote locations. Such initiatives should be supported only where it is demonstrated that long term sustainability can be attained.

In support of community interest in developing gardens, the NIAA worked with the Remote Gardens Network in 2013 to develop a guide for the development of gardens in remote communities. The guide outlines the benefits of different types of gardens and is available at: http://www.remoteindigenousgardens.net/new-gardens-guide/.

In addition, the NIAA has funded Food Ladder, a not-for-profit organisation that runs hydroponic gardens in remote locations; and has been funded to support gardens in:

• Katherine: the NIAA provided $250,535 to Kalano Community Association, which subcontracts RISE Ventures to run Food Ladder from 2016-2022. This garden supports local employment, training and economic development, and supplies fresh produce to cafes and the local community. Approximately 25-30 Community Development Program (CDP) participants are involved in activities and horticulture training, and two supervisors, and

• Ramingining: the NIAA provided $215 000 to Rulku Enterprises in 2015-16 through the IAS and in 2017 for a hydrophonic garden an additional $27,112 was provided through the Aboriginals Benefit Account for the installation of an off-the- grid solar panel and battery kit.

• This initiative initially produced high volumes of fresh vegetables that were provided to the school, aged care and CDP participants. However, limitations of the harvesting cycle meant there were only sufficient tasks to keep 1-2 participants engaged for a few hours each day, and it was not viable as a CDP activity in its own right. In addition, due to the fixed operating and labour costs and the limited harvesting available from the unit in Ramingining it became clear that it was not viable as a standalone enterprise.

• The hydroponic infrastructure was removed from its current location to be relocated closer to the Ramingining Store where a marketplace, playground and garden were also planned. The project was suspended for 12 months during construction and has now been established at the store and is once again operational.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 25 security in remote Indigenous communities

The NIAA is currently funding three projects to produce fresh food in remote communities, with a total funding of $1,366, 321. These include:

• a native nursery and community garden at Warrigal which involves accredited horticulture training and a work for the dole program; growing native plants to use for regeneration around infrastructure projects; and using bush tucker and native medicine for the cultural training

• Wilcannia Central School in NSW has developed an Indigenous native garden with the aim of increasing student engagement and retention. Unique plant stock (native to area) will be sourced providing deeper level cultural learning opportunities in regard tobush tucker and bush medicine, and

• Gulargambone Pre-School in NSW developed, built and maintained a native garden that strengthens cultural connectedness and participation in learning. It provides ongoing opportunities for students to appreciate the relevance and importance embedding culture in education. The garden, as part of the new preschool is designed and landscaped by the children and their families to ensure an environment that is stimulating and culturally appropriate, and employed 11 Indigenous staff during construction works.

Bakeries In addition to community gardens, the NIAA has also provided some limited support for local bakeries with varying results. In 2015, NIAA provided $939,708 (GST inclusive) to Remote Food Solutions (RFS) to expand the existing bakery in Ntaria, install new bakeries in community stores in Papunya and Yuendumu, and to train twelve local residents from each of the three communities. The main focus of the funding was employment outcomes, with food security as a secondary outcome. The ongoing engagement of local employees had varying success in each store, and was influenced by local factors. The bakeries in Yuendumu and Papunya are no longer operating due to staffing and management issues at the time. These two community stores are now under different management arrangements. However, the bakeries in the stores have not been restarted. The Ntaria Bakery is continuing but with limited production. A key challenge has been in baking produce in-house that is competitively priced with other similar pre- packaged goods.

NIAA worked closely with RFS in response to public criticism of the nutritional value of the products, and RFS has worked with its supplier to ensure that 75 per cent of its products have reduced sodium and fat content comparable to similar products sold in stores.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 26 security in remote Indigenous communities

ATTACHMENT C: List of remote community stores in Australia

Community Store Name Management Arrangement 1. Ali Curung Mirnirri Store Outback Stores 2. Ali Curung Warrabri Bakery Independently managed - privately owned 3. Alpurrurulam Warte Alparayetye Store Community owned and managed 4. Amanbidji Amanbidji Store (current store Independently managed - privately operated by Kildurk privately owned Pastoral Company - Clive Stone) 5. Amata Amata Store – Mai Wiru Mai Wiru 6. Amoonguna Amoonguna Community Store Shire owned and managed 7. Ampilatwatja Aherrenge Community Store Community owned and managed 8. Ampilatwatja Ammaroo Station Store Independently managed - privately owned 9. Angurugu Groote Eylandt Bush Shop TAH Northern Trading 10. Angurugu Yimilyumanja Community Store Community owned and managed 11. Aputula Aputula Aboriginal Corporation Community owned and Store managed 12. Ardyaloon Bardi Ardyaloon Store Outback Stores 13. Areyonga Areyonga Store (Medium) Community owned and managed 14. Atitjere (Harts Atitjere Homelands Store Community owned and Range) managed 15. Aurukun Island and Cape Store /Aurukun Island and Cape (ALPA) Supermarket 16. Badu (Musgrave) Island and Cape Store / Badu Island and Cape (ALPA) Island Island 17. Balgo Wirrimanu Community Store Outback Stores 18. Bamaga Bamaga Store (Mainland Community Enterprises Australia) Queensland - IBIS 19. Barunga Bagala Store Aboriginal Investment Group (AIG). managed and community owned 20. Bayulu Bayulu Community Store Community 21. Beagle Bay Beagle Bay/ Ngarlan Outback Stores Community Store 22. Belyuen Belyuen Store Community owned and managed 23. Beswick Beswick/Wuduluk Store Outback Stores 24. Bidyadanga Bidyadanga Store Community 25. Billiluna community Kurrungku Store Independently managed 26. Boigu Island Boigu Island Store Community Enterprises Queensland - IBIS

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 27 security in remote Indigenous communities

Community Store Name Management Arrangement 27. Bonya Homelands Bonya Store Community owned and (Orrtipa-Thurra) managed 28. Borroloola Borroloola Motel Hotel Independently managed - privately owned 29. Borroloola Malandari Store ALPA managed 30. Borroloola Redimart (Red Dirt Trading) TAH Northern Trading 31. Boulia Min Min Store Independently owned and managed 32. Brewarrina Friendly Grocer Brewarrina Independently owned and managed 33. Bulla Janyima Store Independently managed and community owned 34. Bulman Gulin Gulin Community Store Outback Stores 35. Burketown Burketown Convenience store Unknown and post office 36. Camooweal Post Office and General Store Independently owned and managed 37. Cape Barren Island Cape Barren Island Community Community Shop 38. Coen Armbrust & Co General Store Independent 39. Coen Mulleys and Fuel Independent 40. Darley Island Darnley (Erub) Island Store Community Enterprises Queensland - IBIS 41. Dauan Island Dauan Island Store Community Enterprises Queensland - IBIS 42. Djarindjin Djarindjin Roadhouse Community - Djarindjin Aboriginal Corporation 43. Djarindjin Djarindjin Store Community - Djarindjin Aboriginal Corporation 44. Doomadgee Doomadgee Retail Store Community Enterprises Queensland - IBIS 45. Doon Doon Doon Doon Road House Independently owned and managed 46. Dunjiba Oodnadatta Store - Mai Wiru Mai Wiru 47. Elliott Town Camps Elliott Hotel Minishop Independently managed- (Currently closed but opens privately owned intermitently) 48. Elliott Town Camps Midland Caravan Park Store Independently managed- privately owned 49. Elliott Town Camps The Elliott Store NT Independently managed- privately owned 50. Engawala Ntjaminya/Engawala General Outback Stores Store 51. Ernabella Pukatja Roadhouse (Pukatja Independently managed Supermarket & Associated Stores Aboriginal Corporation) 52. Ernabella Pukatja Store - Mai Wiru Mai Wiru 53. Fitzroy Crossing Eureka Operations Pty Ltd ta Independently managed Coles Express 54. Fregon Kaltjiti Store - Mai Wiru Mai Wiru

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 28 security in remote Indigenous communities

Community Store Name Management Arrangement 55. Galiwinku ALPA Buthan ALPA owned and managed 56. Galiwinku Daruma Takeaway TAH Northern Trading 57. Galiwinku Galiwinku Community Store ALPA owned and managed 58. Galiwinku Takirrina Tuckerbox TAH Northern Trading 59. Gapuwiyak Gapuwiyak Community Store ALPA owned and managed 60. Gunbalanya Adjurmarrarl Supermarket ALPA managed 61. Gunbalanya Gunbalanya Service Station Independently managed- Store privately owned 62. Haasts Bluff Kanparrka Store Mai Wiru 63. Halls Creek Eureka Operations Pty Ltd ta Independently managed Coles Express 64. Halls Creek Mulan/ Paruku Community store Outback Stores 65. Hermannsburg Finke River Mission Store Community owned and (Large) managed 66. Hermannsburg Ntaria Supermarket (Medium) Community owned and managed 67. Hope Vale Island and Cape Store/ Island and Cape (ALPA) Hopevale Supermarket 68. Imangara (Murray Murray Downs Store Independently managed - Downs) privately owned 69. Imanpa Imanpa Community Store Outback Stores 70. Indulkana Indulkana Community Store Independently managed 71. Irrunytju Wingellina Community Store Community owned and (Wingellina) managed (NATS)23 72. Jarlmadangah Jarlmadagah Community store Independently managed 73. Jigalong Ilawarra Store (Jigalong Outback Stores Outback Store) 74. Jilkminggan Dungalan Store Outback Stores 75. Julia Creek Godiers Supermarket Unknown 76. Kalkarindji Kalkarindji Service Station and ALPA managed Store 77. Kaltukatjara Docker River Store RMS managed and privately (Docker River) owned 78. Kalumburru Mission Store Independently Managed 79. Kalumburru Uraro Store Outback Stores 80. Kanpa Kanpa Community Store- Community Kalgoorlie region 81. Kanypi Kanypi Store – Mai Wiru Mai Wiru 82. Karumba Karumba Supermarket & Café Independently owned and managed 83. Kintore Kintore Store/Pulikutjarra Community owned and managed 84. Kiwirrkurra Kiwirrkurra Roadhouse and Outback Stores Community Store

23 Ngaanyatjarra Agency and Transport Services is a unit trust-based enterprise owned by all Ngaanyatjarra Communities.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 29 security in remote Indigenous communities

Community Store Name Management Arrangement 85. Koonibba Koonibba Store Community 86. Kowanyama Kowanyama Supermarket - Community Enterprises CEQ Queensland - IBIS 87. Kunawarritji Kunawarritji Community Store Community 88. Kundat Djaru Ringers Soak/ Kundat Djaru Outback Stores Community Store 89. Kupangari (Also Mt Barnett Road House Independently managed service Ngalgunda, Imintji Dodnun and Tirralintji) 90. Lajamanu Lajamanu Progress Aboriginal ALPA managed Corporation Store 91. Laramba Laramba Community Store Community owned and managed 92. Laura Laura General Store Independently owned and managed 93. Laverton Laverton Supermarket - Independently managed - Kalgoorlie region privately Owned 94. Leigh Creek Leigh Creek Foodland Independently managed 95. Leonara Leonora Supermarket - Independently managed Kalgoorlie region 96. Lockhart River Freddie Clarence Moses Community Enterprises Supermarket - CEQ Queensland - IBIS 97. Looma Looma Store Independently Managed 98. Mabuiag Island Mabuiag Island - Islanders Community Enterprises Board of Industry and Service - Queensland - IBIS CEQ 99. Maningrida Barlmarrk Supermarket and Outback Stores Wild Food Cafe 100. Maningrida Maningrida Progress Community owned and Association Store and Hasty managed Tasty Takeaway 101. Maningrida One 68 General Store Independently managed - privately owned 102. Mantamaru Jameson Community Store Community owned and (Jameson) managed (NATS) 103. Mapoon Rugapayn Store Shire owned and managed 104. Mapuru Mapuru Store Community Owned and Managed (Mapuru Institute for Cultural Survival ) 105. Masig (Yorke) Yorke (Masig) Island- Islanders Community Enterprises Island Board of Industry and Service Queensland - IBIS 106. Menindee Darling River Supermarket Central Darling Shire Council 107. Mer (Murray) Murray (Mer) Island - Islanders Community Enterprises Island Board of Industry and Service Queensland - IBIS 108. Milikapiti Milikapiti community store - Independently managed- Indigenous owned and privately owned Independently managed 109. Milingimbi Milingimbi Community Store ALPA owned and managed

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 30 security in remote Indigenous communities

Community Store Name Management Arrangement 110. Milyakburra Lagulalya Store Outback Stores (Bickerton Island) 111. Mimili Mimili Maku Store Outback Stores 112. Minjilang Majila Store ALPA owned and managed 113. Minyerri Hodgson Downs Store Independently managed - privately owned 114. Minyerri Warliburru Store ALPA managed 115. Moa Island (Kubin Kubin Community Store (Moa Community Enterprises Community) Island) - Islanders Board of Queensland - IBIS Industry and Service 116. Moa Island (St St Pauls Community Sotre (Moa Community Enterprises Pauls Community) Island) - Islanders Board of Queensland - IBIS Industry and Service 117. Mornington Island Dragons Den Butchery Independently owned and managed 118. Mornington Island Gununamanda Store & Café Independently owned and Managed 119. Mt Liebig (Mount Mt Liebig Community Store Outback Stores Liebig) 120. Mutitjulu Ininti Store Mai Wiru Managed 121. Napranum Napranum Supermarket Community Enterprises Queensland - IBIS 122. Nauiyu (Daly River) Nauiyu Nambiyu Store Outback Stores 123. Nauiyu (Daly River) Riverbank Store/ Pub Shop Outback Stores 124. Nepabunna Nepabunna Independently managed 125. New Mapoon New Mapoon General Store and Independently managed Take away 126. Ngukurr Ngukurr General Store Outback Stores 127. Ngurapai (Horn) Horn (Nurupai) Island - Community Enterprises Island Islanders Board of Industry and Queensland - IBIS Service 128. Ngurapai (Horn) Island & Cape Store/ Horn Island and Cape (ALPA) Island Island 129. Normanton Normanton Stop Shop Independently owned and managed 130. Normanton Normanton Traders Independently owned and managed 131. Numbulwar New Town General Store & Independently managed - Takeaway privately owned 132. Numbulwar Numburindi Store ALPA managed 133. Nyirripi Nyirripi Store Outback Stores 134. Oak Valley Oak Valley Community Store Outback Stores 135. Owairtilla (aka Canteen Creek Community Outback Stores Canteen Creek) Store 136. Palm Island BWG Colman Supermarket Community Enterprises Queensland - IBIS 137. Palumpa Nganmarriyanga Community ALPA Managed Store

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 31 security in remote Indigenous communities

Community Store Name Management Arrangement 138. Papulankutja Blackstone Community Store - Community owned and (Blackstone) Kalgoorlie region managed (NATS) 139. Papunya Papunya Store Outback Stores 140. Parnngurr (Cotton Parnngurr Community Store Indigenous Creek) 141. Patjarr Patjarr Community Store Community owned and managed (NATS) 142. Peppimenarti Peppimenarti Community Store RMS managed and community owned 143. Pigeon Hole Nitjpurru Community Store Outback Stores 144. Pipalyatjara Pipalyatjara Store – Mai Wiru Mai Wiru 145. Pirlangimpi Pirlangimpi Community Store - ALPA managed Indigenous owned and managed by ALPA 146. Pole 13/ Alyangula Bartalumba/Alyangula Mini Mart Community owned and managed 147. Pormpuraaw Pormpuraaw Supermarket Community Enterprises Queensland - IBIS 148. Poruma (Coconut) Poruma (Coconut) Island - Community Enterprises Island Islanders Board of Industry and Queensland - IBIS Service 149. Punmu Punmu Community Store Independently managed - community owned 150. Ramingining Ramingining Community Store ALPA owned and managed 151. Rittarangu Urapunga/ Rittarangu Outback Stores managed Community Store (temporary) - Community owned 152. Robinson River Robinson River Community ALPA managed Store 153. Saibai Island Saibai Island - Islanders Board Community Enterprises of Industry and Service Queensland - IBIS 154. Santa Teresa Santa Teresa Community Store Outback Stores 155. Seisia SEISIA Supermarket Independently managed 156. Stephen (Ugar) Stephen (Ugar) Island - Community Enterprises Island Islanders Board of Industry and Queensland - IBIS Service 157. Tara Neutral Junction Station Store Independently managed - privately owned 158. Ti Tree Red Centre Farm Store Independently managed - privately owned 159. Ti Tree Ti Tree Farm Garden Independently managed - privately owned 160. Ti Tree Ti Tree Food Store Outback Stores 161. Ti Tree Way Out Bush Store Independently managed - privately owned 162. Timber Creek Wirib Tourism Park Store Aboriginal Investment Group (AIG). managed and community owned - privately owned 163. Titjikala Maryvale Station Store Independently managed - privately owned 164. Titjikala Titjikala Community Store Outback Stores

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 32 security in remote Indigenous communities

Community Store Name Management Arrangement 165. Tjirrkarli Tjirrkarli Community Store Community owned and managed (NATS)24 166. Tjukayirla Tjukayirla Roadhouse- Community Kalgoorlie region 167. Tjukurla Tjukurla Community Store Community owned and managed (NATS) 168. Tjuntjuntjara Tjuntjuntjara Community Store Outback Stores 169. Umagico Island & Cape Store / Umagico Island and Cape (ALPA) Supermarket 170. Umbakumba Mikbamura Store ALPA managed 171. Umbakumba Miyabama Mini Mart Community owned and managed 172. Urandangi Urandangi Bush Resort Independently owned and managed 173. Utopia Home Redgum (Station) Store Privately owned and operated Lands 174. Utopia Homelands Arlparra Store Community owned and managed 175. Utopia Homelands Delmore Downs Store Independently managed - (Currently Closed but opens privately owned intermittently) 176. Utopia Homelands Mt Swan Mini Mart Independently managed - privately owned 177. Utopia Homelands River Gum Store - 3 Bore Independent- privately owned and operated 178. Wadeye Murrinhpatha Nimmipa Store Community owned and managed 179. Wadeye Werrk Store Independently managed - privately owned 180. Waiben (Thursday) Tamwoy Community Store - Community Enterprises Island (Tamwoy Thursday (Waiben) Island - Queensland - IBIS Community) Islanders Board of Industry and Service 181. Waiben (Thursday) T.I Supermarket Thursday Community Enterprises Island Main Store (Waiben) Island - Islanders Queensland - IBIS Board of Industry and Service 182. Waiben (Thursday) Island Rose Hill Community Community Enterprises Island Rose Hill Store (Waiben) Island - Queensland - IBIS Store Islanders Board of Industry and Service 183. Wallace Rockhole Wallace Rockhole Independently managed - privately owned 184. Wanarn Wanarn Community Store Community owned and managed (NATS) 185. Wandawuy Wandawuy Store Community owned and managed

24 Ngaanyatjarra Agency and Transport Services is a unit trust-based enterprise owned by all Ngaanyatjarra Communities.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 33 security in remote Indigenous communities

Community Store Name Management Arrangement 186. Wangkatjunka Wankatjunka Community Store Independently managed 187. Warakurna Warakurna Community Store & Community owned and Roadhouse managed (NATS) 188. Warburton Warburton Community Store Community owned and (Mily Store) & Roadhouse managed (NATS) 189. Warmun Warmun/ Turkey Creek Outback Stores Roadhouse 190. Warmun Wungkul Store Outback Stores 191. Warraber (Sue) Warraber (Sue) Island - Community Enterprises Island Islanders Board of Industry and Queensland - IBIS Service 192. Warruwi Ajurumu Self Service Store ALPA Managed 193. Watinuma Watinuma Unknown 194. Willowra Wirliyajarrayi Store Outback Stores 195. Wilora Stirling Cattle Station Store Independently managed - privately owned 196. Wiluna Wiluna Traders-Kalgoorlie Independently managed region 197. Wurrumiyanga Nguiu Store - Indigenous owned Independently managed- (aka Nguiu) and Independently managed community owned 198. Wurrumiyanga Tai Supermarket - Privately Independently managed - (aka Nguiu) owned and Independently privately owned managed 199. Wurrumiyanga Tai's Asian Food Store - Independently managed - (aka Nguiu) Privately owned and privately owned Independently managed 200. Wutunugurra Epenarra Station Store Independently managed - (Epenarra) privately owned 201. Wutunugurra Kurundi Station Store Independently managed - (Epenarra) privately owned 202. Wutunugurra Wetenngerr Store Outback Stores (Epenarra) 203. Wyndham Wyndham Store Independently managed 204. Yalata Yalata Community Store Outback Stores 205. Yam (lama) Island Yam (lama) Island - Islanders Community Enterprises Board of Industry and Service Queensland - IBIS 206. Yandeyarra Mugarinya (Yandeyarra)-Pilbara Independently Managed Region 207. Yarrabah Garozzos (Total Food Network) Independently owned and managed 208. Yarrabah Island and Cape Store/ Island and Cape (ALPA) Yarrabah Service Station 209. Yarrabah Yarrabah Community Hall Pop Island and Cape (ALPA) Up Store 210. Yarrabah Yarrabah Supermarket Independently owned and managed 211. Yarralin Yarralin Store RMS managed and community owned 212. Yilpara Baniyala Community Store Community owned and managed

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 34 security in remote Indigenous communities

Community Store Name Management Arrangement 213. Yirrkala Yirrkala Community Store Community owned store asset - leased out and privately operated 214. Yiyili Yiyili Community Store Outback Stores 215. Yuelamu Alpirakina Store Outback Stores 216. Yuendumu Nguru Walalja Store Outback Stores 217. Yuendumu Yuendumu Big Store Mai Wiru 218. Yungngora Yungngora Store Outback Stores

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 35 security in remote Indigenous communities

ATTACHMENT D: List of Licenced Community Stores operating in the Northern Territory

Community Store name 1 Ali Curung Mirnirri Store 2 Ali Curung Warrabri Bakery 3 Alpurrurulam Warte Alparayetye Store 4 Alyangula Alyangula Mini Mart 5 Amanbidji Kildurk Store 6 Amoonguna Amoonguna Community Store 7 Ampilatwatja Aherrenge Community Store 8 Ampilatwatja Ammaroo Station Store 9 Angurugu Groote Eylandt Bush Shop 10 Angurugu Yimilyumanja Community Store 11 Aputula Aputula Aboriginal Corporation Store 12 Areyonga Areyonga Store 13 Atitjere (Harts Range) Atitjere Homelands Store 14 Barunga Bagala Store 15 Belyuen Belyuen Store 16 Beswick Wuduluk Store 17 Bonya Homelands Bonya Store 18 Bulla Janyima Store 19 Bulman Gulin Gulin Community Store 20 Canteen Creek Canteen Creek Community Store 21 Elliott Midlands Caravan Park Store 22 Elliott The Elliott Store 23 Engawala Ntjaminya General Store 24 Galiwinku ALPA Buthan 25 Galiwinku Daruma Takeaway 26 Galiwinku Galiwinku Community Store 27 Galiwinku Takirrina Tuckerbox 28 Gapuwiyak Gapuwiyak Community Store 29 Gunbalanya Adjumarllarl Store 30 Gunbalanya Gunbalanya Service Station Store 31 Haasts Bluff Kanparrka Store 32 Imanpa Imanpa Community Store 33 Jilkminggan Dungalan Store 34 Kalkaringi Kalkaringi Service Station and Store 35 Kaltukatjara (Docker River) Docker River Store 36 Kintore Kintore Store 37 Lajamanu Lajamanu Progress Aboriginal Corporation Store 38 Laramba Laramba Community Store

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 36 security in remote Indigenous communities

Community Store name 39 Maningrida Barlmarrk Supermarket and Good Food Kitchen 40 Maningrida Maningrida Progress Association Store and Hasty Tasty Takeaway 41 Maningrida One 68 General Store 42 Milikapiti Milikapiti Community Store 43 Milingimbi Milingimbi Community Store 44 Milyakburra (Bickerton island) Lagulalya Store 45 Minjilang Majila Store 46 Minyerri Hodgson Downs Store 47 Minyerri Warliburru Store 48 Mt Liebig Mt Liebig Community Store 49 Mutitjulu Ininti Store 50 Nauiyu (Daly River) Nauiyu Store 51 Nganmarriyanga (Palumpa) Nganmarriyanga Community Store 52 Ngukurr Ngukurr General Store 53 Ntaria (Hermannsburg) Finke River Mission Store 54 Ntaria (Hermannsburg) Ntaria Supermarket 55 Numbulwar New Town General Store & Takeaway 56 Numbulwar Numburindi Store 57 Nyirripi Nyirripi Store 58 Papunya Papunya Store 59 Peppimenarti Peppimenarti Community Store 60 Pigeon Hole Nitjpurru Community Store 61 Pirlangimpi Pirlangimpi Community Store 62 Ramingining Ramingining Community Store 63 Robinson River Robinson River Community Store 64 Santa Teresa Santa Teresa Community Store 65 Tara Neutral Junction Station Store 66 Ti Tree Red Centre Farm Store 67 Ti Tree Ti Tree Farm Garden 68 Ti Tree Ti Tree Food Store 69 Ti Tree Way Out Bush 70 Timber Creek Wirib Tourism Park Store 71 Titjikala Maryvale Station Store 72 Titjikala Titjikala Community Store 73 Umbakumba Mikbamura Store 74 Umbakumba Miyabama Mini Mart 75 Urapunga (Rittarangu) Urapunga Community Store 76 Utopia Homelands Arlparra Store 77 Utopia Homelands Mt Swan Mini Mart 78 Utopia Homelands Murray Downs

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 37 security in remote Indigenous communities

Community Store name 79 Utopia Homelands Redgum (Station) Store 80 Wadeye Mi Patha Takeaway, Bakery and Butcher (temporarily closed) 81 Wadeye Murrinhpatha Nimmipa Store 82 Wadeye Tuckerbox 83 Wadeye Wadeye Convenience Store (temporarily closed) 84 Wandawuy Wandawuy Store 85 Warruwi Ajurumu Self Service Store 86 Willowra Wirliyajarrayi Store 87 Wilora Stirling Cattle Station Store 88 Wurankuwu Ranku General Store (temporarily closed) 89 Wurrumiyanga (aka Nguiu) Nguiu Store 90 Wurrumiyanga (aka Nguiu) Tai Supermarket 91 Wurrumiyanga (aka Nguiu) Tai's Asian Food Store 92 Wutunugurra (Epenarra) Epenarra Store 93 Wutunugurra (Epenarra) Kurundi Station Store 94 Wutunugurra (Epenarra) Wetenngerr Store 95 Yarralin Yarralin Store 96 Yilpara Baniyala Community Store 97 Yirrkala Yirrkala Community Store 98 Yuelamu Alpirakina Store 99 Yuendumu Nguru Walalja Store 100 Yuendumu Yuendumu Store

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 38 security in remote Indigenous communities

ATTACHMENT E: COVID-19 Food Security Working Group Terms of Reference and Membership

BACKGROUND

• The National Indigenous Australians Agency (NIAA) has set up an external Working Group to provide high-level expertise, share information, and develop solutions to food security risks arising from COVID19, in remote Indigenous communities.

PURPOSE OF THE WORKING GROUP

• The Working Group will provide solutions on managing issues arising during the COVID-19 pandemic and will implement strategies and practical measures to assist remote stores to maintain food supplies.

• The members of this group must have the authority to implement decisions made and act in a swift manner.

• This Terms of Reference starts on 3 April 2020 and will be ongoing until terminated by agreement between the parties.

ROLE OF THE WORKING GROUP

The Group will:

• Share information and expertise to reduce the impacts of COVID19 on food security in remote Indigenous communities.

• Develop strategies and practical measures to assist remote stores to maintain supply and resupply of food, including through a focus on potential blockages in the food supply chain and distribution.

• Identify issues that might need to be elevated to the national coordination mechanism and potentially to National Cabinet.

• Develop and share guidelines for remote stores on minimising risks associated with the spread of COVID19 in remote stores.

• Identify potential linkages and partnerships to support food security.

• Undertake other priorities identified by the Working Group.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 39 security in remote Indigenous communities

MEMBERSHIP OF THE COVID-19 FOOD SECURITY WORKING GROUP

Chair Sam Jeffries, Group Manager Central Group, NIAA

Arnhem Land Progress Aboriginal Corporation (ALPA) and Alastair King, CEO Island and Cape • ALPA owns and operates 6 stores in the NT and 8 stores in Far North Queensland where ALPA trades as Island and Cape. It also operates 12 other community stores in the NT under management agreements on behalf of Indigenous Corporations and Regional Councils.

Community Enterprises Queensland (CEQ) Ian Copeland, CEO • CEQ is a Queensland government statutory body with responsibility for commercial enterprises (currently primarily in retailing) and providing goods and essential services to Torres Strait, northern peninsula area and mainland Aboriginal remote communities. It services 22 retail outlets (including IBIS and Col Jones) in the Torres Strait and Northern Peninsula Area and stores in mainland Queensland.

Outback Stores Michael Borg, CEO • Outback Stores is a wholly owned Commonwealth company which emerged in 2006 from a need to improve the health of Indigenous people in remote Australia by addressing nutrition- related health problems, unreliable food supplies, stores closing because of poor management and build-up of debt. Outback Stores provide a fee for service management contract for remote stores. It manages 42 community stores across Australia; including 27 in the NT, 12 in WA and 3 in SA.

Mai Wiru Dennis Bate, CEO • Mai Wiru operates 6 community stores in the APY lands in SA and 3 stores in the NT.

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 40 security in remote Indigenous communities

TAH Northern Trading Heather Scott, CEO • TAH Northern Trading supports over 115 stores across Western Australia and Northern Territory as a supplier and/ or owner/ manager.

Metcash / Campbells Division David White, Executive General Manager – • Metcash is a wholesaler supporting a network of over 1,600 Wholesale independently owned stores Australia-wide including the IGA and Foodland brands. Metcash supports 70 per cent of community stores across Top End through distribution centres in Canning Vale, Alice Springs, Darwin and Cairns.

SeaSwift Fred White CEO • SeaSwift delivers scheduled freight and cargo services up and down the east coast of Australia, through the Torres Strait and Cape York Peninsula, and throughout the NT.

PricewaterhouseCoopers Indigenous Consulting Gavin Brown CEO • representing major private sector companies.

Australian Food and Grocery Council Samantha Blake, Director of Industry Affairs

Northern Territory Government Department of the Chief Minister

Queensland Government Department of State Development, Manufacturing, Infrastructure and Planning

Western Australian Government Department of Communities; Department of Premier and Cabinet

South Australian Government Department of Premier and Cabinet

National Indigenous Australians Agency submission to the Inquiry into food pricing and food 41 security in remote Indigenous communities