AUSTRALIA’S GROWING LINGUISTIC DIVERSITY: An opportunity for a strategic approach to language services policy and practice FECCA National Office Unit 1, No. 4 Phipps Close, Deakin ACT 2600 PO Box 344, Curtin ACT 2605 T: +61 02 6282 5755 E: [email protected] www.fecca.org.au © 2016 Federation of Ethnic Communities’ Councils of Australia No part of this publication may be reproduced without the written permission of FECCA. FECCA recieved funding from the Australia Government Department of Social Services to produce this publication. CONTENTS Executive summary 1 Introduction 5 Australia’s humanitarian intake 6 Scope and methodology 7 Language needs of Australia’s humanitarian entrants 8 English language learning 11 Language services availability and quality: Understanding the value, assessing the risk 13 NAATI credentials 15 Credentialed interpreters in new and emerging languages 20 Language services in high risk settings 21 Invisible cohort of non-credentialed interpreters 25 Enhancing the demand: Bridging policy implementation gaps 26 Under-utilisation by agencies 26 Awareness among non-English speakers 30 Promotion of service availability 31 Use of technology 32 Data collection 33 Enhancing supply: Incentives and deterrents 34 Sector-wide challenges 35 Costs implications 36 Training pathways 37 Professional development 41 Bilingual workers 42 Concluding observations towards shaping an effective model 44 Optimal training and accreditation model 48 References 50 ACKNOWLEDGEMENTS The Federation of Ethnic Communities’ Councils Community services of Australia (FECCA) expresses its gratitude and • Centre for Culture, Ethnicity and Health acknowledges the contributions of the individuals • Foundation House, the Victorian Foundation for and organisations who generously shared their Survivors of Torture Inc. knowledge, experiences and insights to inform the preparation of this report: • Multicultural Centre for Women’s Health • Women’s Legal Centre (ACT and Region) Inc. FECCA members • UnitingCare Wesley Port Adelaide, Ethnic Link Consultation participants Services Commonwealth and State/Territory Government agencies Tertiary education providers • Australian Government Department of Social • Monash University, Translation and Interpreting Services Studies, School of Languages, Literatures, Cultures and Linguistics • Department of Prime Minister and Cabinet • RMIT University. Translating and Interpreting, • Australian Government Department of Human School of Global, Urban and Social Studies Services • Goulburn Ovens TAFE • Victorian Government Office of Multicultural Affairs and Citizenship • TAFE South Australia • Multicultural Affairs Queensland • Flinders University • Multicultural NSW • University of NSW • ACT Health • University of Tasmania • University of Wollongong Language service providers ii • Western Sydney University • Translating and Interpreting Service (TIS National) • Victorian Interpreting and Translating Service (VITS) Victoria Police‑Shepparton • Polaron Wollongong City Council • Northern Territory Interpreting and Translating Dr Helen Slatyer of Macquarie University Service Professor Uldis Ozolins of Western Sydney University • Aboriginal Interpreting Service, Northern Territory FECCA extends its sincere thanks to the National Translating and Interpreting Industry Bodies and Accreditation Authority for Translators and Organisations Interpreters Ltd. (NAATI) for their invaluable support and contribution. • Australian Institute of Interpreters and Translators Inc. (AUSIT) Special thanks to the National Ethnic Disability • Western Australian Institute of Translators and Alliance (NEDA) for their assistance with data analysis Interpreters for this project. • Professionals Australia FECCA AUSTRALIA’S GROWING LINGUISTIC DIVERSITY EXECUTIVE SUMMARY This report provides an analysis of FECCA’s In new and emerging languages where NAATI consultation and research to develop an evidence testing is not available, language service providers base on language service provision in new and recruit individuals to work as ‘interpreters’ without emerging languages, that is, languages spoken by credentials. This results in an invisible cohort of individuals who came to Australia as humanitarian un‑credentialed ‘interpreters’ working in Australia, entrants over recent years. which potentially exposes agencies (including hospitals and courts) and their non‑English speaking Approximately 200,000 humanitarian entrants settled clients to significant risk. in Australia between 2000 and 2014. About 70 per cent of these arrivals speak the top 17 languages The number of NAATI credentialed interpreters varies spoken by the cohort (3,000+ speakers each), and significantly between different new and emerging about 30 per cent speak over 200 other languages languages. However, there is currently no way of and dialects. The diverse range of languages spoken knowing how many of those interpreters who have by Australia’s recent humanitarian entrants are been credentialed are practising in these languages, referred to as new and emerging languages. and how many ‘interpreters’ practise without credentials. The introduction of NAATI’s revalidation The provision of language services, whether through scheme will assist to fill this knowledge gap. interpreting, translating or bilingual work, can enhance access to social services for migrants, assist There are unique supply and demand issues relating to alleviate isolation and lead to better connection to the market for language services in new and with the community. Quality language services can emerging languages, due to thin or niche markets also improve health outcomes and enable access with relatively low numbers of speakers spread right to crucial rights, such as the right to a fair trial. The across the country. availability of well‑trained, competent interpreters to work with individuals in complex circumstances, such 1 as family and domestic violence situations, is critical to Enhancing demand ensuring the safety and wellbeing of these individuals. Low demand for language services does not necessarily imply low need; there may be under‑ English language learning is an important feature utilisation of interpreters by agencies and/or a lack of successful settlement, assisting migrants to fully of awareness and knowledge of services among non‑ participate in Australian society. However, learning English speakers. There is an absence of compulsory, English takes time, not all new arrivals are able to coordinated training on how to work with interpreters acquire English fluency, and many will only acquire for judicial officers, legal professionals and health a functional level of English that, while adequate for professionals. This affects the rate of utilisation of day-to-day activities, will not be sufficient for them to professional interpreting services. be informed patients in the health system or actors in legal situations. The use of family and friends as ‘interpreters’ is not supported in policy because of problems associated Training options for interpreters in new and emerging with accuracy of interpreting, confidentiality and languages are limited. The availability of tertiary conflicts of interest. However, individuals who are courses in Australia’s recent humanitarian intake not proficient in English may prefer to communicate languages remains low, which presents significant through a relative or a friend, in view of the challenges for the National Accreditation Authority interpreter’s gender or cultural background, the for Translators and Interpreters (NAATI) accreditation client’s lack of understanding of the availability of at paraprofessional and professional levels and the services or of the risks associated with not engaging subsequent provision of services in these languages. an interpreter. It is crucial that non‑English speakers NAATI does not provide accreditation testing for are informed and empowered to use language many languages of low community demand, and services. new and emerging languages often fall within that category, which in turn often restricts access to credentials for interpreters in these languages to recognition only. EXECUTIVE SUMMARY There is significant potential for appropriate data considered to be, interpreters. Without nationally collection to assist in developing policy and improving consistent minimum standards and certification services for individuals, but this must be achieved for bilingual workers, these workers, non‑English through a coordinated effort, including consistency speakers and service providers are exposed to risks, in data collection across agencies and jurisdictions. and the skills of the bilingual workforce will continue to go unrecognised and under‑developed. Enhancing supply The nature of the language services industry has The way forward significant implications for attracting, training and There is added complexity to addressing language retaining highly capable interpreters and translators, services needs in view of the dynamics of the including in new and emerging languages. These humanitarian intake in the recent years, and issues are exacerbated by an insufficient market for particularly the increased intake in response to the new and emerging language services, inhibiting the crisis in Syria and Iraq. However, the emergence of ability of interpreters to maintain full employment. new languages is not unprecedented in Australia; in fact it is a common phenomenon. With the diversity Language service providers draw on the same