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Finalrepport finalreportp Project code: NBP.0232 Prepared by: Paul Josif Savvy Community Development Consultants Mark Ashley and Andrew Bubb. Desert Knowledge Cooperative Research Centre Date published: February 2009 ISBN: 9 781 741 913 088 PUBLISHED BY Meat & Livestock Australia Limited Locked Bag 991 NORTH SYDNEY NSW 2059 Review of Indigenous Employment and Engagement in the Northern Pastoral Industry 2007 Meat & Livestock Australia acknowledges the matching funds provided by the Australian Government to support the research and development detailed in this publication. This project was co-funded by the Indigenous Land Corporation. In submitting this report, you agree that Meat & Livestock Australia Limited may publish the report in whole or in part as it considers appropriate. This publication is published by Meat & Livestock Australia Limited ABN 39 081 678 364 (MLA). Care is taken to ensure the accuracy of information in the publication. Reproduction in whole or in part of this publication is prohibited without the prior written consent of MLA. Review of Indigenous Employment and Engagement in the Northern Pastoral Industry 2007 Abstract The Northern Pastoral Industry (NPI) is currently experiencing difficulty attracting and retaining skilled workers, to the extent that the production capacity and profitability of businesses are affected. These staff recruitment and retention difficulties are occurring despite the fact that the NPI operates in a region where there are large Aboriginal populations experiencing very high unemployment rates and where there is a strong history and association with the pastoral industry. There are reputably reported low participation rates of Aboriginal people in the NPI where the Aboriginal population is high and strong anecdotal evidence supporting this, but there is in fact no specific employment data or correlation of data to help the industry establish a clear strategic approach to improving Aboriginal participation. This Review outlines the history of Aboriginal involvement in the NPI and analyses past and current initiatives to improve Aboriginal employment and engagement in the industry. The Review also draws on the experiences of the mining industry to recommend a strategic framework and decision-making tool that can be used by the NPI to develop the organisational maturity of pastoral businesses and thereby improve their ability to achieve and sustain Aboriginal employment, and to create a positive flow-on effect for smaller pastoral operators. Importantly, the Review describes what action pastoralists can take to improve recruitment outcomes, including the establishment of their own labour market research capacity. The predicted key benefits to the industry of this Review include a better understanding of what the barriers to Aboriginal employment are and how to overcome them, and a detailed understanding of what works in relation to sustainable Aboriginal employment. Through the recommendations the review also provides a practical way forward for pastoralists to improve their capacity to employ and retain Aboriginal pastoral workers by using best practice methods, developing a pastoral employment and skill needs database and accessing existing support services. The Review also supports the formulation of an industry-wide strategy to facilitate the dissemination of research results and information about how to access knowledge and support services that will improve industry performance. This Review has been conducted in parallel with research for the Cattle and Country Evaluation Project that specifically evaluates the Indigenous Pastoral Program (IPP) and Kimberley Indigenous Management Support Service (KIMSS). It is recommended that this research be read in conjunction with this Review. Page 2 of 97 Review of Indigenous Employment and Engagement in the Northern Pastoral Industry 2007 List of shortened forms AAA Agriculture Advancing Australia ABC Australian Broadcasting Commission ABARE Australian Bureau of Agricultural and Resource Economics ABS Australian Bureau of Statistics AISC Agrifood Industry Skills Council BETC Business, Employment and Training Committee CDEP Community Development and Employment Project CLC Central Land Council CRC Cooperative Research Centre CSRM Centre for Social Responsibility in Mining DAFF Department of Agriculture, Fisheries and Forestry DEET Department of Employment, Education and Training DEWR Department of Employment and Workplace Relations DEEWR Department of Education, Employment and Workplace Relations DKCRC Desert Knowledge Cooperative Research Centre DPIFM Department of Primary Industry, Fisheries and Mines (NT) ILC Indigenous Land Corporation IPER Indigenous Pastoral Employment Review IPP Indigenous Pastoral Program IPPE Indigenous Pastoral Program Evaluation KAPA Kimberley Aboriginal Pastoralists Association KAPI Kimberley Aboriginal Pastoralists Incorporated KIMSS Kimberley Indigenous Management Support Service KREC Katherine Rural Education Centre LUA Land Use Agreement MCA Minerals Council of Australia MCC Millijidee Cattle Company MLA Meat and Livestock Australia NFF National Farmers Federation NICP National Indigenous Cadetship Project NLC Northern Land Council NPI Northern Pastoral Industry NPV Net present value NREAC Noonkanbah Rural Enterprise Aboriginal Corporation NT Northern Territory NTCA Northern Territory Cattlemen’s Association NTIPTS Northern Territory Indigenous Pastoral Trainee Scheme PGA Pastoralists and Graziers Association PIMSS Pilbara Indigenous Management Support Service Qld Queensland RIRDC Rural Industries Research Development Corporation RITE Rural Industry Training and Extension SCRGSP Steering Committee for the Review of Government Service Provision STEP Structured Training and Employment Program STEPERS Structured Training and Employment Program, Employment Related Services TAFE Tertiary and Further Education TO Traditional Owner VET Vocational and Educational Training WA Western Australia Page 3 of 97 Review of Indigenous Employment and Engagement in the Northern Pastoral Industry 2007 Executive summary The Northern Pastoral Industry (NPI) is currently experiencing difficulty attracting and retaining skilled workers. This labour shortage may provide employment opportunities for some Aboriginal people living in remote communities across northern and central Australia. The extent of this opportunity is unknown, with estimates for the NT suggesting between 40 and 300 positions per year. Typically, the Aboriginal communities have high unemployment rates, are located throughout the northern pastoral regions and many of their residents have historical and current relationships with pastoral managers and property owners. It is a paradox that the pastoral industry is experiencing prolonged labour shortages in the northern region where local Aboriginal communities are experiencing record unemployment. To find a sustainable solution to this paradox, the Desert Knowledge Cooperative Research Centre (DKCRC), Meat and Livestock Australia (MLA), and the Indigenous Land Corporation (ILC) combined to fund and manage a ‘Cattle and Country Project’ to review Aboriginal employment and engagement, and to evaluate support services available in the NPI. The review includes: • this research project titled the Indigenous Pastoral Employment Review (IPER) • the Indigenous Pastoral Program Evaluation (IPPE), a research project that reviews and evaluates the Indigenous Pastoral Project (IPP) and Kimberley Indigenous Management Support Service (KIMSS). The IPER methodology includes a literature review; interviews with government, private sector providers, pastoral managers and Aboriginal pastoral workers; on-site assessments of support programs; economic evaluation of case-study programs; and field visits to pastoral properties. The Review also draws on the mining industry’s experiences of Aboriginal engagement and employment and recent research from the Centre for Social Responsibility in Mining at the University of Queensland. Key findings 1. There is a historical legacy of Aboriginal involvement in the NPI that needs to be understood and acknowledged Aboriginal people have been involved in the NPI from its beginnings in the mid- nineteenth century. Some of the key factors that drove Aboriginal involvement in the industry, such as the coincidental location of Aboriginal peoples, their knowledge of country and interest in the industry remain key potential drivers of Aboriginal involvement today. However, the level of Aboriginal employment in the NPI has significantly declined over the past forty years (1967–2007). Reasons for this include policy and legal decisions, the introduction of award wages in 1968 and the adoption of new technologies and stock management methods. The consequences of this decline include the creation of a population of Aboriginal refugees occupying the fringes of remote towns and residing in excised Community Living Areas on pastoral stations throughout much of northern Australia. In many cases this has lead to social dysfunction, chronic poor health and lower life expectancy, a breakdown of positive culturally based governance, loss of traditional cultural knowledge, substance abuse, low school attendance, increasing alienation from positive Page 4 of 97 Review of Indigenous Employment and Engagement in the Northern Pastoral Industry 2007 work practices and habits and inter-generational loss of knowledge about country and cattle station operations. Despite these negative consequences, there are still large and small
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