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COMMUNITY SERVICES COMMITTEE Agenda Item 5.3 REPORT
8 August 2006 INDIGENOUS SOCIAL AND ECONOMIC DEVELOPMENT FRAMEWORK - ENDORSEMENT
Division Assets & Services
Presenter Colleen Lazenby, Manager Community Wellbeing
Purpose
1. To:
1.1. provide an update on the development of the Indigenous Social and Economic Development Framework ; and
1.2. seek endorsement of the draft Indigenous Social and Economic Development Framework report and its release for a period of public consultation. A copy of the draft is included at Attachment 1.
Recommendation from Management
2. That the Community Services Committee endorses the release of the draft Indigenous Social and Economic Development Framework for public consultation from July 2006 to September 2006.
Key Issues
3. The Indigenous Social and Economic Development Framework will be the overarching framework for Council strategies aimed at addressing Indigenous issues, aspirations and needs within the City of Melbourne jurisdiction in those areas where Council has an opportunity to plan, provide services, advocate, regulate, facilitate or otherwise take action within its role and responsibilities.
4. Key Indigenous specific strategies currently being developed will be captured by the Indigenous Social and Economic Development Framework include the Indigenous Employment and Training Strategy, Indigenous Culture and Heritage Framework, and the Cross Cultural Awareness Training Program for Councillors and staff.
5. The Indigenous Social and Economic Development Framework will also link to all other relevant Council strategies in order to ensure coordinated cross council responses to the needs and aspirations of the Indigenous community.
Time Frame
6. If endorsed the draft Indigenous Social and Economic Development Framework will be available for public consultation for the period from July to September 2006. Development of the final report will occur in October 2006 and to be presented for consideration and adoption in November 2006 to the Community Services Committee.
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Relation to Council Policy
7. The City of Melbourne’s Statement of Commitment to Indigenous Australians identifies that:
“The Council recognises the valuable contribution to Victoria made by Koorie people and will work towards a future of mutual respect and harmony.”
8. Council acknowledges Traditional Owners with the following statement on our website:
“We respectfully acknowledge that we are meeting on the traditional lands of the Kulin Nation. This special place is now known by its European name of Melbourne. Today, Melbourne is one of the great multicultural cities of the world, a significant meeting place. For the Boonerwrung, Woiworung, Taungurong, Djajawurrung and the Wathaurong which make up the Kulin Nation, Melbourne has always been an important meeting place and location for events of social, educational, sporting and cultural significance.”
9. Actions on Reconciliation and Council’s relationship with Traditional Owners also align with the strategic objectives of the Council Plan for outcomes relating to our inclusive and engaging city.
Consultation
10. The consultation process is extensive and time consuming due to the number of stakeholders and the variety of consultation methods to be used. The second and final stage of the Indigenous Social and Economic Development Framework will be required to develop a consultation strategy that will include :
10.1. circulation of the draft report (See Attachment 1) throughout Victorian Indigenous communities and to key Indigenous community members;
10.2. workshops with specific Indigenous groups;
10.3. meetings with the reference group;
10.4. open Public meetings; and
10.5. meetings with particular individuals and groups including community and government representatives.
Government Relations
11. A reference group comprising a Councillor , City of Melbourne, officers from across Council and government representation from Aboriginal Affairs Victoria and Department of Victorian Communities has been established and will continue to provide direction and input through to the completion of the final Framework.
12. Consultation during the second and final stages will occur with appropriate State and Federal government agencies in particular Aboriginal Affairs, Victoria, Department of Victorian Communities; Department of Justice; Office of Aboriginal and Torres Strait Islander Policy and Department of Human Services.
Finance
13. There are no direct financial implications for Council arising from the recommendation contained in this report.
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Legal
14. The subject matter of the report and the recommendation are within the functions and powers of the Council.
Sustainability
15. The Indigenous Social and Economic Development Framework will be an important long term strategy for Council contributing to social and community outcomes for Indigenous people over the next four years. This initiative will support the social aspects of an Inclusive and Engaging City.
16. The outcome of Council’s commitment to reconciliation, a key principle underpinning the Framework, has implications for social equity with the potential to positively influence an Innovative and Vital Business City.
Comments
17. The Indigenous Social and Economic Development Framework will provide the opportunity to bring together all Council related Indigenous initiatives, programs and activities in a comprehensive strategic direction. Councillors, the Administration and other key stakeholders will work together as part of a whole of Council approach.
Background
18. In early 2006 Karen Milward Consultancy was appointed to develop the first stage of the Indigenous Social and Economic Development Framework. A draft outline was presented to the reference group in May 2006. Based on feedback received and further consultations undertaken with key stakeholders a final draft paper (see Attachment 1) was provided in June 2006.
Attachment: 1. Draft Report Indigenous Social and Economic Development Framework 3 Page 4 of 27
Attachment 1 Agenda Item 5.3 Community Services Committee 8 August 2006
CITY OF MELBOURNE
DRAFT INDIGENOUS SOCIAL AND ECONOMIC DEVELOPMENT FRAMEWORK
June 2006
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Background
The City of Melbourne ‘Statement of Commitment to Indigenous Australians’ acknowledges Indigenous people as the first people of this land and recognises their cultural rights and obligations. The Statement of Commitment contains a range of objectives for the City of Melbourne in its response to the needs and aspirations of Indigenous people. It states in part that “Council advocates in conjunction with the Koori community - the ideal of Reconciliation with Indigenous Australians in the context of redressing their serious social and economic disadvantage.”
The City of Melbourne has undertaken a number of initiatives that reflect its broad commitment to the Indigenous community and these have included:- - Signing of a Memorandum of Understanding that sets out the terms of the partnership between City of Melbourne and Reconciliation Victoria; - Developing a Funding and Service Agreement with Reconciliation Victoria for a part time administration position to 2009; - Establishment of the Indigenous Unit which comprises two Indigenous staff within Community Services Group; - Development of an Indigenous Employment Strategy that aims to increase the number of Indigenous employees and trainees at City of Melbourne; - Implementation of Cross Cultural Awareness Training Program for Councillors and Staff; - Establishment of protocols that acknowledge Traditional Owners; - Development of an Indigenous Advisory Committee to replace the Aboriginal Consultative Group; - Establishment of the Indigenous Arts Advisory Panel; - Annual celebration of NAIDOC Week; - Annual Reconciliation Week and Sorry Day Events; - Establishment of the Indigenous Arts and Culture grants program; - Development of a Funding and Service Agreement with Youth Projects Inc. for an Indigenous Public Space Officer position to December 2006; and - Participation in various forums and working groups with direct or indirect benefits e.g. City Indigenous Working Group, City of Melbourne Police and Service Providers Forum Smith Street People Committee, MAV Indigenous Network and the DHS North and West Metro Indigenous Services Forum.
The City of Melbourne is located on the traditional land of the Kulin Nation which comprises the people of the Woiworung, Boonerwrung, Taungurong, Djajawurrung and the Wathaurung. The land of the area now known as Melbourne has always been an important meeting place and location for events of social, economic, educational, sporting and cultural significance for local Indigenous people.
Council consults with the Wurundjeri (Woiworong) people through the Wurundjeri Tribe Land, Compensation and Cultural Heritage Council Inc on matters relating to Indigenous heritage. We also acknowledge that as the state capital there are
2 Page 6 of 27 opportunities for Council to consult with a broader constituency which may include but not be limited to the other peoples of the Kulin Nation.
Victorian Aboriginal Community
The Victorian Aboriginal community is made up of a number of distinct communities across the State based on location, language and cultural groups, and extended family networks. Approximately 26 local communities are based in regional Victoria and 6 in key metropolitan areas where there are significant residential populations of Aboriginal people. Melbourne is located on the land of the Kulin nation. All of Victoria’s main regional centres are located on the lands on separate Aboriginal nations.
Most regional communities are based on family and traditional associations with the land that predate the colonisation of Victoria. A significant number of people within the Aboriginal community have also moved here from interstate while maintaining strong family links to all parts of Australia. Many communities have at least one community based organisation as a focal point for coming together and providing services.
Aboriginal and Torres Strait Islander people are identified as one of the most disadvantaged groups in Australia today due to high unemployment and profoundly difficult socio economic issues. It is recognised that the dispossession of Aboriginal people from the area known as Melbourne caused serious social and economic consequences still faced by the Indigenous community today. Compared to National averages Indigenous people experience poorer health, shorter life expectancy, limited employment and educational opportunities, higher rates of imprisonment and racism.
According to the ABS Census estimates, Aboriginal people make up about 0.5 per cent of Victoria’s total population and 5.9 per cent of the Indigenous population of Australia. However the ABS 1996 estimate for the Victorian indigenous population (21,474) has been challenged by Victoria’s Indigenous communities as representing a significant underestimate of the Victorian Indigenous population (community estimates range between 30,000 – 40,000).
Based on ABS estimates the Indigenous population of the metropolitan area at the last census, after allowing for a 10% undercount, was 13,441. This constitutes some 48% of the total Indigenous population of Victoria.
The population is markedly younger than the non-Indigenous community (average age 24 compared to 36 years) and is growing at far greater rate, although both these features need to be understood in the light of some statistical anomalies around self- definition of Indigenous status. The socio-economic position of the Indigenous community is on average lower than the general population.
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Income levels are lower than the average; however they are higher than for Indigenous communities in rural areas of Victoria. Household size, at an average of 3.1 per household, is 19% greater than the non-Indigenous population. Far fewer Indigenous persons own or are buying their own properties compared to the non- Indigenous population, nevertheless a substantial number of Indigenous households (46%) are purchasing a house.
As the state capital of Victoria, the City of Melbourne has a leadership role to play in developing a range of solutions for issues confronting the Indigenous community.
Aim
The aim of the Indigenous Social and Economic Development Framework (ISED Framework) is to provide a whole of Council approach to addressing Indigenous issues and needs within the City of Melbourne jurisdiction, in those areas where Council has an opportunity to plan, provide services, advocate, regulate, facilitate or otherwise take action within the roles and responsibilities identified under the Local Government and City of Melbourne Acts. Broadly, Melbourne City Council has a role to play in developing a range of solutions for issues confronting the Indigenous community. The ISED Framework, along with the companion documents to be called the Indigenous Cultural and Heritage Framework and the Indigenous Employment Strategy, will set out the strategies and actions for the work in the period 2006 to 2009.
The draft ISED Framework is seen as the basis for more comprehensive discussion and consultation among all stakeholders that will culminate in a final draft ISED Framework to be presented at a later date for Council endorsement.
Objective
The draft ISED Framework will provide the City of Melbourne’s whole-of-Council response to the social (health and well being) and economic (income and land ownership) needs and aspirations of the Indigenous community who have traditional connections to the area, and/or who reside, visit and work in the City of Melbourne.
The draft ISED Framework developed in the first phase will be the basis for broader consultations with key stakeholders, to take place after Council’s Community Services Committee endorses the document for public release in mid 2006.
The Community Services Group of City of Melbourne has responsibility for implementing and monitoring the ISED Framework.
Action Plan
An action plan to progress the strategic objections of the ISED Framework will be developed following completion of the period of community consultations in late 2006.
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Strategies
The draft ISED Framework will be the overarching framework for the Indigenous Cultural and Heritage Framework, Council’s Cross Cultural Awareness Training and the Indigenous Employment Strategy, which are currently in development.
Policy Context
Commonwealth - Indigenous Social and Economic Policies
The Human Rights and Equal Opportunity Commission (HREOC) Native Title 2003, report affirms that many of the Commonwealth and State/Territory policies and programs are related to, or impinge on, native title and affect the economic and social development of Indigenous people’s and their communities.
Major policy responses to emerge from the reconciliation process which facilitate the economic and social development of Indigenous people are, firstly, a "whole-of- government" approach to Indigenous policy and secondly, partnerships between government and Indigenous communities. The HREOC report highlights that a whole-of-government approach, which requires government to integrate the responsibilities and policies of all the agencies concerned with providing services to Indigenous communities, is a very important element of achieving the sustainable development of Indigenous communities. However the implementation of this approach has been very limited and has not ensured that Indigenous policies in all their manifestations are underpinned by consistent objectives. In particular, native title policies are not consistent with strategies for achieving economic and social development.
The second policy response to reconciliation, the establishment of partnerships between Indigenous communities and governments, is also an important element of sustainable development. In the policy framework for sustainable development different levels of government can play an important role by facilitating the identification of development goals; assisting the Indigenous community to build upon its assets, skills and knowledge to achieve those goals; helping the group identify which aspects of its asset skills and knowledge base may need to be supplemented; and facilitating the community to monitor and evaluate those strategies it has adopted to achieve its goals.
This partnership approach with government has a number of special characteristics. First, for the approach to achieve sustainable development of the community, the dominant partner must be the Indigenous people. The Indigenous community must determine its policy objectives and strategies and control the way they are achieved. Decisions to this effect must be conducted by means of processes and institutions which the community respects and which reflect the group's cultural values.
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Second, government's role in this partnership is to facilitate and assist the group to achieve its goals. Governments should not take over the control of the process. Indigenous leader Gerhardt Pearson has put the situation thus:
It is easy for government bureaucracies to accept so-called whole-of- government approaches, coordinated service delivery and so on. It is much harder for them to let go of the responsibility. On one hand we have the almost complete failure on their part to lead and facilitate social and economic development in Indigenous Australia. On the other hand, our experience is that the government bureaucracies are resistant to the transfer of responsibility to our people.
Despite the limitations in the way the whole-of-government and partnership approaches have been applied, these two responses to reconciliation have provided an important foundation for economic and social development to occur in Indigenous communities. There are lessons to be learned from the Commonwealth government policy frameworks and processes to be applied in the local government context.
Victorian State Government - Indigenous Social and Economic Policies
The Victorian Government is committed to working in partnership with Indigenous communities to address Indigenous social and economic issues. The Government believes that it is only by entering into respectful partnerships with Indigenous communities that policy initiatives in this area can be successful.
The State government’s activities are informed by a number of policies and strategies that aim to improve the social and economic status and the safety and wellbeing of Indigenous people.
These policies and strategies include:
Whole of Government Indigenous Affairs Framework: work has begun on a long term plan and whole of government management and coordination framework for Indigenous affairs in Victoria. This will involve extensive consultation between government agencies and Indigenous communities to establish a practical tool for Government and Community organizations, to monitor the impact of specific programs on areas of Indigenous disadvantage and assist in identifying what further work is required;
Women’s Safety Strategy: a comprehensive strategy to reduce the level, and fear of violence against women in Victoria;
Aboriginal Justice Agreement – Mark II – aims to address the ongoing issue of Aboriginal over-representation within all levels of the criminal justice system, improve Aboriginal access to justice-related services and promote greater awareness in the Aboriginal community of their civil, legal and political rights;
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Aboriginal Services Plan – aims to achieve a demonstrable improvement in the health and wellbeing of Aboriginal people in Victoria in line with that of the general population by understanding the factors contributing to the disparity in health and wellbeing; maximizing the use of primary and preventative services; and minimizing the representation of Aboriginal people in identified referred to secondary and tertiary services; and
Yalca – a partnership in education and training for the New Millennium – which reflects a birth to death philosophy of education for Koories and aims to place the Koorie student at the centre of educational policy development, implementation and decision making at all levels of education.
In Victoria, in September 2000, the then Department of Natural Resources and Environment developed a comprehensive framework to assess its relationship with Indigenous communities to use it as a basis for delivery of services to Indigenous people. Out of this an Indigenous Partnership Strategy was developed in 2001 which contains eight initiatives, including capacity building, a partnership approach, Indigenous heritage as a component of land and resource management, and economic development.
The Wotjobaluk Agreement 2005 was developed in conjunction with the Department of Sustainability and Environment and Justice. It utilised a broad range of options available to the Victorian government. It is clear that elements of the Indigenous Partnership Strategy influenced the government's approach in the negotiation of this agreement, including the Government's willingness to recognise Indigenous custodianship of land and actively promote Indigenous participation in cultural heritage, land and natural resource management programs. This approach is comprehensive and could be further applied to ensure that the government's policy direction in all native title agreements is towards the economic and social development of Indigenous people. The Strategy could also be developed to provide criteria by which agreements that have been negotiated are evaluated and monitored to ensure they achieve their economic and social goals. This would provide a basis for a partnership between the government and the Traditional Owner group.
Traditional Owners and Native Title
Native title offers a process by which Traditional Owner groups are brought into a relationship with the State through the lodging of a native title claim. Within this process there is capacity for States to adopt policies which broaden the scope of their negotiations with native title claim groups so that agreements can give recognition to the ongoing connection of Indigenous people to their land and provide an alternative and additional basis for the recognition of Indigenous peoples' economic and social rights.
Table 1 below provides a general overview of existing or proposed State and Territory Indigenous land regimes. It indicates the beneficiaries of the particular regime, the nature of the interests granted, the body entrusted with the management of the title and some of the powers held by these bodies. By highlighting these elements a comparison is invited between the way in which land has been or is proposed to be distributed under various state regimes and the way in which it is distributed through native title.
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Table 1: Land Management
Legislation Land Regimes Beneficiaries Interests granted Land Management Body Six Aboriginal Lands Acts: Transfer of freehold Specified organisations; Transfer small areas of reserve Various, for example, Lake Tyers and (some specify conditions residency conditions or mission lands to trusts or Framlingham managed by Trusts; · Aboriginal Lands Acts 1970 and for usage) apply to membership of Aboriginal organisations. Manatunga Land to Aboriginal 1991; some organisations Freehold with varying Cooperative; Ebenezer, Ramahyuck and · Aboriginal Land (Lake Condah and conditions applying eg land Coranderrk Missions by their respective Framlingham Forest) Act 1987 must be used for Aboriginal Aboriginal organisations. (Cth); cultural and burial purposes. · Aboriginal Land (Manatunga Land) Act 1992; · Aboriginal Lands (Aborigines Advancement League) (Wall Street, Northcote) Act 1982; · Aboriginal Land (Northcote Land) Act 1989
Aboriginal and Torres Strait Islander Process for Local Local Aboriginal Title to place or object Local Aboriginal community (usually Heritage Protection Act 1984 (Cth), Part Aboriginal Community to Community (specified established as a body corporate). 11A, ss21A - 21ZA pertaining to Victoria advise Minister to make a in schedule to the Act) Members not necessarily the Traditional declaration preserving Owners of the land declared to be Aboriginal place or 'Aboriginal place' Aboriginal object National Parks Act 1975 (Vic) No process for granting title Victorian Aboriginal Heritage Act (2006) Establishment of the Regulations under Regulations under development AHC designates Registered Aboriginal Aboriginal Heritage development Parties Council
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Summary Assessment of Critical Issues Introduction
The City of Melbourne recognises that key components to successful implementation of the ISED Framework will include the following concepts: Community Building – where improved social, economic and environmental outcomes are achieved when mainstream and Indigenous service providers work closely with members of Indigenous communities in the Council area; Community Development – where work undertaken is underpinned by commitment to equity, social justice and participation that enables people to identify common concerns and that supports them in taking action related to them; and Empowerment – where processes implemented allow Indigenous people to gain control over their own lives while continuing to participate democratically in the life of their community.
The Council’s ISED Framework will contain the following key elements:
1) Improved communication between Council program areas in order to share information and identify opportunities to promote good practice; 2) Review and discussion of service indicators and emerging trends relevant to the health and wellbeing of Indigenous residents, workers, students, businesses and communities; 3) Identification of opportunities where improvements could be made to existing service models and other key activities being implemented in the Council area that impact on Indigenous people; 4) Improved planning and decision making processes to ensure a cohesive and integrated approach to strengthen/build service capacity and responses to identified Indigenous issues, needs and priorities; 5) Development and support of a coordinated approach across programs to successfully implement the ISED Framework and other key initiatives – such as the Indigenous Arts Strategy, Indigenous Cultural Heritage Framework, Cross Cultural Awareness Training Programs for Council and the Administration and the Indigenous Employment Strategy through a whole of Council approach; and 6) Monitoring, review and evaluation of outcomes achieved under the ISED Framework.
Critical Issues – Primary Focus
A number of critical issues were identified during the information gathering process from Council’s Administration, staff of mainstream and Indigenous services, and from the interviews conducted with Indigenous people at a local level.
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Evidence Based Planning and Data
A more focused approach will be taken in relation to collating and analysing Indigenous specific data so a more cohesive perspective is presented about the social (health and wellbeing) status and economic (development/land ownership) status of Indigenous stakeholders in the City of Melbourne.
It is important that the City of Melbourne takes action to put in place an agreed process for collating Indigenous specific data so that program areas are all working from the same understanding when it comes to discussing and making informed decisions about what the specific needs are in relation to Indigenous service provision, program development and generating innovative initiatives and events in the region.
It will also be necessary to put in place processes that confirm what changes or outcomes have been achieved over the four years the ISED Framework will be implemented.
Engagement with Indigenous Communities
The primary focus of the ISED Framework is to improve Council service and program responses to improve health and wellbeing outcomes for Indigenous stakeholders within the City of Melbourne.
With this in mind, it is critical the City of Melbourne adopt and/or advocate for mechanisms to be put in place that allow mainstream services and government departments and their agencies to actively connect with Indigenous people at a local level in each community within the City of Melbourne.
The ISED Framework will clearly outline a process for Council to effectively engage with its Indigenous stakeholders (Traditional Owner groups, Indigenous business, Indigenous residents, students, workers, government and Indigenous specific committees and working groups, and Indigenous communities).
Implementation Plan
The ISED Framework will outline the process to be undertaken by Council in partnership with its Indigenous stakeholders and community to develop specific actions that will be taken over the next four years against each Key Result Area contained in the Framework. This current document does not contain detailed information about the specific tasks that need to be actioned. In the second phase, details of the Framework development will identify specific actions that are appropriate for the Council to develop and implement.
Critical Issues – Secondary Focus
There are a number of areas and issues that need to be taken into account as part of the implementation process for the ISED Framework.
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The Framework recommends that a multifaceted solution is implemented which addresses the above critical issues in the medium and longer terms. A key success factor will be the opportunity for the City of Melbourne to make a strategic investment which brings together all Council related Indigenous initiatives, programs and activities.
The cornerstone of this approach will be designing, building and putting in place a single Indigenous knowledge management platform. See Figures 1 and 2.
Business rules will also be critical to clearly outline how Council and key stakeholders will work together in a whole of City manner, demonstrating a consistent approach.
Figure 1 - Indigenous Knowledge Management Platform (IKMP) Concept Map
Cultural Heritage Social Development
Core Core Focus Focus
External Focus
Internal Focus
CORE FOCUS & FUNCTIONS
Core Core Focus Focus
Economic Development Physical Environment
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Figure 2 - Indigenous Knowledge Management Platform - Level 2 Concept Map & Overview
Internal Focus Core Focus & Functions External Focus
Social Development Recognition & Respect Events Calendar List of Services Traditional Owners Arts & Cultural Activities Policies & Procedures Welcome to Country Media Releases Strategies & Action Plans Statement of Commitment Cultural Awareness Program Activity Reports & Data Indigenous Initiatives
Indigenous Community Profile Grants Economic Development Council Services Indigenous Demographics Indigenous Businesses Indigenous Businesses Indigenous Committees Arts & Cultural Activities Our Indigenous Workforce Strategies & Action Plans Strategies & Action Plans Indigenous Contacts Activity Reports & Data Administration Reports & Publications Indigenous Strategies Cultural Heritage Policies & Procedures Melbourne's Indigenous Indigenous Contacts Grants Community Strategies & Action Plans Community Profile Indigenous Contact List Policies & Procedures Committees Register Indigenous Businesses, Sites & Monuments Partnership Agreements Groups & Organisations
Activity Reports & Data Events Calendar Indigenous Sites Marketing & Promotion
Physical Environment Indigenous Document Library Parks & Recreation Strategies & Action Plans Polices & Procedures
Activity Reports & Data
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Indigenous Engagement Plan
What is Community Engagement?
Community engagement refers to the many ways in which governments connect with citizens in the development and implementation of policies, programs and services.
Engagement covers a wide variety of government-community connections, ranging from information sharing to community consultation and, in some instances, active participation in government policy development and decision-making processes.
Engagement acknowledges the right of citizens to have a say and to be involved in the business of government. Effective community engagement allows government to tap into diverse perspectives and potential solutions to improve the quality of its decisions.
The City of Melbourne Indigenous Engagement Plan may also complement or inform the activities of the Council’s internal communications processes.
Key Principles
The following is a list of key principles that will be considered by Council when developing Phase 2 community engagement for the development of the ISED Framework:
§ Understanding – Council will listen and aim to understand the issues, needs and priorities of Indigenous stakeholders;
§ Continuity - Consideration will be given to ensuring that there is continuity in participation and representation in Council activities. This will help to ensure that key messages and goals remain consistent throughout the development and implementation of the Framework Actions; § Balance - Consideration will be given to balancing the participation and influence of Indigenous stakeholder groups in order to ensure that no one stakeholder group is over (or under) represented; § Effectiveness – As the levels of funding and time available for stakeholder engagement are finite, stakeholder engagement activities will be undertaken in a cost-effective and timely manner as possible, balancing the cost and benefits; § Flexibility - Standard processes will be responsive to the unique needs of stakeholders and the complex interactions between Indigenous stakeholders when engaging with them. Council will be inclusive and connect with those in the community who don’t have easy access to Council programs, services and activities;
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§ Participation - Relevant Indigenous stakeholder groups will be provided with the opportunity for meaningful involvement in engagement activities. The Council will be mindful of the danger of causing “consultation fatigue” among its Indigenous stakeholders. Council will make engagement processes open and accountable, jointly identifying the rules of engagement and reporting on outcomes; § Communication - Communication with stakeholders related to standard activities will be timely and provide appropriate and relevant information; and § Recognition of Indigenous Diversity – It is understood that not all Indigenous people are of the same views, opinions and interests. Indigenous people as key stakeholders within the City of Melbourne may be from different cultural and socio-economic backgrounds. Communities can be very diverse from each other and these views will be considered in all consultations and negotiations instigated by the Council.
Defining Indigenous Stakeholders
A stakeholder is anyone affected by, or who is able to affect, the planning and activities of the City of Melbourne, and can include among others:
§ Indigenous Traditional Owners (as individuals and as groups, clans, tribes, etc); § Indigenous residents (residing or not residing in existing dwellings); § Indigenous community members; § Indigenous businesses; § Indigenous workers (City of Melbourne, government, Indigenous organisations); § Government departments and agencies; and § Indigenous and non-Indigenous community organisations.
The City of Melbourne will identify the people and organisations that may be able to significantly influence the work of the ISED Framework and the ongoing Council Indigenous frameworks and strategies.
Stakeholder Analysis
Stakeholder analysis is a tool that will help the City of Melbourne determine the commitment and communication needs of the people involved in the development and implementation of the actions agreed to in the final ISED Framework. It identifies the key stakeholders in the project, and gives insights into the audience and environment, such as: § current and target commitment levels; § potential barriers for acceptance ; § the degree to which each stakeholder's commitment is important; and § what role each will play in the change.
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A Stakeholder Analysis will be conducted at the beginning of a Stakeholder Engagement process.
Once all relevant stakeholders have been identified, a simple diagrammatic tool such as that below (Figure 3) may be used to plot these stakeholders by their levels of influence and support for the City of Melbourne strategies. Doing so can help the Council in the design of processes to best engage each stakeholder.
Figure 3 – Stakeholder Level of Influence and Support Tool
Purpose and Objectives of Engagement
In addressing this step, the City of Melbourne will gain an understanding of each stakeholder’s capacity to assist. This step considers whether the engagement:
§ Build’s rapport between the Council and the stakeholder; § Conveys the City of Melbourne’s intentions; § Seeks the stakeholders feedback or input; § Provides the stakeholder with information; § Build’s credibility with the stakeholder; § Understands the stakeholders perspective; and § Seeks the stakeholders buy-in to Council’s processes and outcomes.
Identify Stakeholder Roles
The following diagram (Figure 4) is sourced from a model used by the Canadian Institute for Health Information and it identifies the roles that stakeholders may play in any engagement activity. The relative areas of each segment of the triangle indicate the proportions of stakeholders involved in each role.
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Figure 4 – Stakeholder Roles Tool
Consult for Authority Governance
Involve for commitment and expertise
Development
Consider for response or input
Inform for Understanding
Implementation
Enlist for communication and dissemination
Identify Effective Methods of Engagement The City of Melbourne will consider the best methods of engaging with each of the identified stakeholders. In determining which method(s) of engagement are to be used, Council will consider the following questions:
a. What commitment / input does Council want from stakeholders and what messages do you need to impart to them? b. What nature and level of contact is necessary? Council will consider indirect and direct contact, and if the latter, determine at what level contact is most appropriate. Would the measure benefit from a communications campaign? What tools and/or communications activities (ie, newsletter, website, public forums, briefings to the community) should be used? c. What timeframes will be applicable to the engagement process, and what will the frequency of any consultation activity be?
Prepare Stakeholder Engagement Plan
The next step is to document the Stakeholder Engagement Plan, with the outcomes of each of the above steps included in the document. Schedules for key engagement activities and the evaluation criteria will be developed.
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Implement and Evaluate the Plan
The plan will be implemented from late 2006 after an evaluation phase that will enable the City of Melbourne to determine the usefulness of the tool and what the future will be for further engagement activities.
Outline of Draft Indigenous Social and Economic Development Framework
Relevant Internal and External Strategies
The Stakeholder Engagement Plan will seek input to and feedback on the following draft outline of the ISED Framework. Components of the Framework represent outcomes of internal work in progress, as well as externally focussed outcomes in progress and proposed.
1. Internal Strategic Objective: Improve current City of Melbourne business practices
1.1 Indigenous Cross Cultural Awareness
Council will implement an Indigenous Cross Cultural Awareness training program, integrated into the induction for new employees and will be made available to all existing employees. A similar program for Councillors will also assist all elected officials receive training approporiate to their roles. The training modules will be evaluated to maintain currency and relevance.
1.2 Community Engagement and Communication
A Protocol will be developed to identify and document core issues, roles and boundaries of Council relating to Indigenous issues as diverse as appropriate Indigenous naming of streets, landscape and open space features, to staff roles and responsibilities when addressing requests from and relating to the Indigenous community. The Protocol will be managed by the Indigenous Unit on behalf of Council, and will include active participation by local Indigenous people in decision making processes relevant to Indigenous issues.
1.3 Knowledge Management Council’s Indigenous Unit, through the Group Manager Community Services will identify the best process to address the current internal logistical barriers to accessing Indigenous information that is relevant to the work of the Council by developing an Indigenous intranet site. The site will create a solution for a central point of reference for the following: a. Document library; b. Promotional material and publicity (media and press releases); c. Calendar of Events;
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d. Indigenous Committee information (minutes of meetings, agendas, terms of reference, outcomes, strategies and documentation); and e. Indigenous Protocols.
1.4 Implementation, Monitoring and Reporting The City of Melbourne will develop a detailed Implementation Plan for all Frameworks and strategic outcomes in the Indigenous Social and Economic Development Framework, Culture and Heritage Framework, Indigenous Employment Strategy and Cross Cultural Awareness Training Program. Measures will be linked to each outcome and achievements and will be reported annually to Council.
1.5 Marketing and Promotion Council will develop and maintain a profile of the Indigenous community to assist marketing and promotional activities. Key stakeholders will be identified and a register of past and current initiatives will be developed. The process will ensure that public information from and engagement by Council respects and acknowledges the Indigenous community.
1.6 Indigenous Employment at the City of Melbourne Council will develop and implement an Indigenous Employment Strategy which identifies the number of Indigenous people offered permanent employment in the organisation as well as opportunities to provided traineeships, mentoring and similar programs to young people and developing professionals. Support mechanisms for Indigenous staff and well as for managers, external mentors and internal staff identifying as mentors will be provided. The Strategy will address training needs, professional development, skills audit, induction programs, an Indigenous staff network, support for Indigenous staff to become members of other networks, the mentoring program, cultural leave, and support for participation in significant Indigenous cultural events and initiatives.
2. External Strategic Objective: Create greater external awareness of the Indigenous community, needs and aspirations
2.1 Recognition and Respect The City of Melbourne has endorsed a Statement of Commitment to Indigenous Australians and will acknowledge Traditional Owners of the land now known as Melbourne. The Statement and Acknowledgement will be current and promoted on the Council website and in Council publications. Indigenous events and activities sponsored by Council will include an appropriate acknowledgement. Council will promote its frameworks, strategies, acknowledgements and activities as the mechanisms through which we recognise and respect Indigenous Australians and Traditional Owner groups.
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2.2 Indigenous Community Profile The City of Melbourne will develop a profile of the Indigenous community and key stakeholders within the City of Melbourne to identify groups for whom frameworks, strategies, programs and activities have the greatest benefit. Council’s work will be achieved through collaboration and partnerships with: a. Aboriginal Affairs Victoria – Department for Victorian Communities; Aboriginal Heritage Council; government and non-government programs for capacity building, heath and wellbeing, economic development; Stolen Generations Organisation, Department of Justice, whole-of-government framework; b. Neighbouring Councils addressing social and economic Indigenous issues that have implications on an inner urban regional basis; c. Reconciliation Victoria, Melbourne Museum - Bunjilaka, Koorie Heritage Trust; and d. Others as approporiate.
2.3 Community Engagement and Communication Externally focussed community engagement and participation will aim to empower the Indigenous community through Council mechanisms and governance structures for decision-making, consultation, advice, advocacy and access across the organisation. Existing committee and advisory structures will be utilised and others developed as appropriate.
2.4 Social Planning Council’s Social Planning Framework will be applied to ensure that Indigenous community needs and aspirations are incorporated in strategies for youth, families and children’s services, library services, aged and disability services, community services, community grants and sponsorship program, and for community and social outcomes in parks and recreation, urban design, arts and culture and related work areas. Through Council’s partnership with state and Commonwealth government departments and agencies we will advocate for similar outcomes. Organisations and departments include but are not limited to: · Ngwala Willumbong, Aboriginal Housing Board, VACSAL – leadership program and juvenile justice program, VAEAI – education, Victorian Indigenous Youth Advisory Council, VACCHO youth committee, VAYSAR – sport and recreation programs; · Aboriginal Affairs Victoria – Department for Victorian Communities; Aboriginal Heritage Council; government and non-government programs for capacity building, heath and wellbeing, economic development; Stolen Generations Organisation; Department of Justice; whole-of-government framework; · Neighbouring Councils addressing social and economic Indigenous issues that have implications on an inner urban regional basis;
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· Reconciliation Victoria, Melbourne Museum - Bunjilaka, Koorie Heritage Trust; and · Others as appropriate
2.5 Culture and Heritage Framework Via both the Local Government and the City of Melbourne Acts, Melbourne City Council has broad powers and responsibilities in statutory land-use planning, and therefore has a significant role in protecting Aboriginal cultural heritage.
Council recognises that the growth of Melbourne as a capital city since the contact period has resulted in the dispossession of local Aboriginal people from their land as well as major cultural heritage loss in terms of the tangible and intangible expressions of culture and the physical remnants of sites that may contain cultural heritage remains.
In addition to protection afforded to known sites of Indigenous cultural heritage , currently the City of Melbourne cultural heritage management has revolved around three key areas:
§ Acknowledgement: Acknowledging and supporting the role of Traditional Owners;
§ Celebration: Recognition and promotion of the value of Indigenous culture; and
§ Programs in the Arts and Culture branch which support contemporary expressions of Indigenous culture through the work of artists
Council’s draft Indigenous Cultural and Heritage Framework (in development) will provide a whole of Council approach to addressing Indigenous issues, needs and aspirations, developing a range of solutions for issues relating to Indigenous culture and heritage. The Indigenous Cultural and Heritage Framework will provide guiding principles, decision making criteria and administrative guidelines for effective cultural and heritage management which recognise the Traditional Owners of the land.
2.6 Council Planning and Service Delivery Across the City of Melbourne organisation many Council Branches undertake long term strategic planning and support comprehensive programs of activities and funding. Arts and Culture, Parks and Recreation, Urban Design, Events and Tourism Branches already support, promote and celebrate Indigenous Australians at a variety of levels. Council will audit existing plans and programs and identify opportunities for further external engagement and involvement of community members in service planning and delivery.
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2.7 Economic Development Council will develop an engagement plan with Indigenous businesses in and around the Melbourne area, with the aim for supporting and promoting them. An audit will determine who they are, where they are, their linkages to Council’s core business, links to government business and economic development strategies, and opportunities for resourcing and participation. Opportunities for Indigenous tourism will be a particular focus linking with Melbourne’s visitor centre at Federation Square, sister city program, Tourism Melbourne – visitor and ambassador services, marketing and promotion, resourcing, infrastructure, during Council festivals and events. Partnerships with government tourism strategies, and government departments and agencies will be promoted. Other opportunities will be identified by Traditional Owner Groups for the Melbourne area, possibly arising from Council’s Indigenous employment and training strategy.
Anticipated Outcomes
Outcome 1 – Melbourne City Council has a Strategic Focus on Indigenous Community and Reconciliation a. Provide equitable access to employment and service opportunities for Indigenous people;
b. Support the development of strategic planning for the health and well being of Indigenous people and consider relevant outcomes in Council social planning processes; c. Support the legitimate claims of Indigenous people towards the self management of their natural and cultural resources; and d. Support the National and Victorian Reconciliation agenda.
Outcome 2 – Support Social Development for Indigenous People
a. Incorporate social planning inclusive of the Indigenous community as well as their involvement in decision making; b. Identify, articulate and promote the Council area’s diverse range of Indigenous cultures and cultural experiences; and c. Support and facilitate the development of a viable cultural industry that presents and promotes Indigenous art and culture to the community and visitors.
Outcome 3 – Support and promote Indigenous culture and heritage
a. Conserve and protect Indigenous cultural heritage; and b. Recognise the cultural relationship of Indigenous people to the land now know as Melbourne.
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Outcome 4 – Support the economic development of the Indigenous community
a. Improve the strength and diversity of the Council’s core business by expanding economic opportunities and partnerships with Indigenous people; b. Provide an environment which encourages and fosters Indigenous business opportunities within the Council’s jurisdiction; and c. Create connections with Indigenous businesses to events and activities promoted by the Council each year.
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FINANCE ATTACHMENT
INDIGENOUS SOCIAL AN D ECONOMIC DEVELOPMENT FRAMEWORK - ENDORSEMENT
There are no direct financial implications for Council arising from the recommendation contained in this report.
Joe Groher Manager Financial Services
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LEGAL ATTACHMENT
INDIGENOUS SOCIAL AN D ECONOMIC DEVELOPMENT FRAMEWORK - ENDORSEMENT
This report is requesting that Council endorse the draft Indigenous Social and Economic Development Framework for a period of public consultation. No direct legal issues arise.
The subject matter of the report and the recommendation are within the functions and powers of the Council.
Section 3C(1) of the Local Government Act 1989 (“the Act”) provides that:
“The primary objective of a Council is to endeavour to achieve the best outcomes for the local community having regard to the long term and cumulative effects of decisions.”
Further, section 3D(2) of the Act sets out that the role of a Council includes:
“(a) acting as a representative government by taking into account the diverse needs of the local community in decision making;”
Kim Wood Manager Legal Services