Section A - Summary of Task Force Findings as at September 2007
2.1 Issues
2.1.1 Town Camps (Bagot)
Findings as at September 2007 were:
- the level of alcohol and cannabis consumption
- high levels of gambling
- the fact that Kava, now banned, is still available in some remote communities through black markets, as well as black market alcohol and cannabis, petrol for sniffers is also available through the black market.
- the question of a stockpile of Kava being sold through the black market in Arnhem Land.
- the presumption that all aboriginal families are dysfunctional is offensive and hurtful
- the existence of drug houses and drug couriers in many communities
- discrimination felt by adults when interacting with the general community
- the high level of school non-attendance amongst children
- high drop out rate of children from school
- lack of employment pathways, when and if qualifications are gained
- lack of available health facilities for residents in some remote communities
- lack of trust of the Federal government legislation, especially the removal of land permits and the takeover of community leases
- lack of capital funding for facilities such as the Bagot Community Hall, which is a multi-purpose building. It has no electricity, water, sewerage or toilets connected. Part of the roof is rusting and a ceiling is needed. Painting is also required. The Hall can be used for a variety of purposes.
- disbanding the Community Night Patrol
- lack of access to the Sobering Up Shelter except by police referral
- lack of consultation of the decision-making process
- Town-based rehabilitation programs are too short, and do not allow enough time for recovery from addiction. There is easy access to alcohol and cannabis – e.g. it is possible to literally ‘jump the fence’ to obtain alcohol and cannabis at the town rehabilitation centres. There is a need to move away from the urban environment.
- boredom of young people and children, because of nothing to do and lack of facilities
- lack of hope and lack of future prospects for children and young people
- lack of support from people released from prison to prevent re-offending
2.1.2 Town Camps – Tangentyere Council, Alice Springs
Findings as at September 2007 were:
- The government action to deal with child abuse was supported, such as the much needed improvements to housing in order to combat the neglect and overcrowding - but there were significant concerns about the alcohol restrictions, income support, and removal of the permit system and changes to land leases.
- The Alice Springs Council “dry areas” were supported but the NT Government restrictions were seen as heavy handed especially where drinking was not permitted in the home. It was noted that there 172 liquor outlets in the region.
- The other option of “learning to live with alcohol” needs to be developed although it was noted that aboriginal social clubs had not been very successful in the past over problems with dress codes and conduct. Also reports of corruption and side-by-side ‘black market’ sales of grog in some communities.
- There have also been the problems of patrons demanding more alcohol than allowed and standover tactics employed when more alcohol has been refused.
- Compulsory quarantining of family benefits was not welcomed as the Council already has its own scheme with 800 people setting aside money each week to be drawn on as food vouchers. The Centrelink fee of $1 per transaction was resented. One advantage at Tangentyere is that Centrelink has its office in the Council complex.
- The loss of the Community Development Employment Program and the 2 month penalty for delinquent job seekers “would have a grave economic impact”. “In Alice, seven aboriginal people are dependent on each income compared with one dependant for five white incomes.” The delegation was referred to the Centre for Remote Health publication, Baseline Social and Economic Profiles of Central Australia, Julia Mitchell et al.
- Council’s Living Skills program for women is going well but they need five more.
- There was a plea for more capital funding. There appeared to be resentment that another aboriginal organisation, National Aboriginal Congress Health Organisation, was competing for funds at the Council’s expense.
2.1.3 Central Australian Aboriginal Alcohol Programmes Unit
Issues as at September 2007 were:
- CAAAPU is in urgent need of a detoxification unit.
2.1.4 National Aboriginal Congress Health Organisation
Issues as at September 2007 were:
- space for clinical operations which is restricting further staff recruitment – the need for more capital funding.
2.1.5 Remote Communities - Beswick
Issues as at September 2007 were:
- the need for community leaders to be empowered to be able to be authorised to transfer community residents with drug/alcohol addictions to outstation rehabilitation, when necessary
- boredom and lack of prospects that indigenous youth experience which can lead to the use of mind-altering substances.
- the control that drug dealers have over people’s lives, by means of holding the person’s keycard, and continuing to supply drugs to that person.
2.1.6 Remote Communities - Elko Island
Issues as at September 2007 were:
- Elcho Island is a ‘Dry Community. However, drug dealers have introduced many young people to cannabis. In addition, some Elcho residents have become alcoholics from drinking on the mainland. This continues to be the case.
2.1.7 Remote Communities - Lajamanu (Desert Country)
Issues as at September 2007 were:
- Larjamanu is a ‘Dry’ Community, but some residents obtain alcohol elsewhere and some have become alcoholics.
- Issue of complete secondary school education (not available in the community)
- few work opportunities or recreational facilities for young people who may become bored.
2.1.8 Remote Communities – Milingimbi
Issues as at September 2007 were:
- That the problems of indigenous people have been exaggerated
- Lack of trust in both the Federal and NT government’s initiatives
- Feeling of frustration about lack of employment options
- Would like to know how they can be directly involved in solutions, where problems are identified
2.2 Recommended solutions as at September 2007
2.2.1 Town Camps (Bagot)
Solutions offered by residents:
- a designated Dry Community would be welcomed. A sign at the front of the community is completely ineffective.
- establishing local industry including a market garden to grow vegetables and sell products generated. Community garden established by a few individuals.
- abstinence-based rehabilitation
- piloting of a remote outstation rehabilitation facility for Bagot residents who are suffering alcohol and drug addiction, coupled with a half-way house located at Bagot. This would provide for transitional arrangements for people returning from outstation rehabilitation or jail, to support their integration back into a healthy, drug free lifestyle.
- Drug education and awareness program, linked to the half-way house
- ‘Bush’ therapy for those who need to be removed from the pressure of available alcohol/drugs, to become mentally, physically and socially renewed and to overcome addictions.
- Training opportunities when at school or in the communities to learn trade skills, in order to become employable, and to serve other indigenous people in their own communities and to provide infrastructure
- Need to provide Halfway Houses and ‘outstation drug and alcohol rehabilitation for each community. With the support of a Night Patrol, linked to a sobering up shelter
- The future of Bagot - is it included in the 73 communities to receive Federal and NT funding under the new legislation?
The President, Bagot Community, James Gaykamangu -
Recommends a 5-year plan of Community Development as a compromise to total suburbanization of Bagot would retain the benefits of community living, reduce the potential to alienate problematic substance abusers and enable them to re-integrate into their families. It would include a swimming pool, retail outlets, aged care facilities and special events at the community that would attract visitors - (e.g. the recent Bagot Festival).
Substance abuse solution – The 5-year plan would include a Halfway House within the community that would accommodate people in transition once they return from a designated remote outstation rehabilitation facility. Night Patrols and community based sobering up shelters, both administered by community residents would complement ongoing community health and safety.
The recommended rehabilitation model is summarised in Attachment 1.
2.2.2 Remote Communities – Beswick
Solutions offered by residents:
- would like to work closely with DFA and other agencies to improve the standards of health care related to alcohol and drugs in his community.
- establish an outstation rehabilitation centre and to have it accredited, to enable transport and Centrelink support for people using this facility.
- support the concept of a Half-way House.
- DFA to investigate the proposal that respected leaders in communities could be appointed as Justices of the Peace, to enable them to direct residents into Outstation Rehabilitation
2.2.3 Remote Communities – Elko Island
Solutions offered by residents
- Have commenced a drug rehabilitation program at a remote outstation on the island.
2.2.4 Remote Communities - Lajamanu (Desert Country)
- Residents believe that a good strategy for girls is to leave the community and go to a boarding school, with dormitory accommodation.
- ‘outstation’ rehabilitation facility, combined with a half-way house style rehabilitation program was needed to help petrol sniffers and alcoholics
2.3 Meetings with Politicians
2.3.1 Dr Christopher Burns, MLA, NT Minister for Health, Minister for Alcohol Policy, Minister for Racing, Gaming and Licensing
DFA was invited to submit proposals for the $16m agreement for rehabilitation initiatives between Federal and NT governments. This was done in conjunction with Teen Challenge.
2.3.2 Mr Matthew Bonson, ALP NT Member for Milner
Issues as at September 2007 were:
- Clarification is needed regarding whether Bagot Community is regarded, for the purposes of the legislation, as a Town Camp. Its exact status is unclear because, at present Bagot Community comes under a special purpose lease from the NT Government.
- Many communities may be compulsorily acquired and placed under a 5-year lease by the Federal Government for the purposes of the intervention.
- The Bagot Community President held a meeting on 11 September 2007, to notify the Community that, as from 14th September, pornography is banned and 15th September, 2007, alcohol is banned.
- Public Rally held at Raintree Park, in Central Darwin on 15th September, 2007 – participants held the view that these intervention measures were racist and/or a violation of personal freedom/human rights. The question was raised as to what will happen to those who are addicted to alcohol? Will they be ‘homeless as a result of leaving ‘dry’ communities in order to drink’?
- Aboriginal people want politicians to discuss issues with them.
- There is a danger that people, who currently hold moderate views, could be radicalized by lack of involvement in decision making.
- The current NT Government requirement to provide ID for alcohol purchases over value of $99 means that alcohol is still readily available in large quantities. People at Bagot are confused about what is actually legal in their circumstances. Therefore, in reality, people are still openly drinking. Many are trading their Centrelink store cards for cash and/or grog. ‘Long Grassers’ or homeless itinerant indigenous people who do not have a community, do not have money management of their Centrelink payments and are therefore, the most at risk.
Questions to be addressed
- What mechanisms will be used to report alcohol consumption and possession of pornography?
- Would police checks be carried out on communities? Would this be labeled ‘martial law’ by critics of the intervention?
- Or – would the reporting be left to Bagot residents – i.e. self-reporting?
Solution Offered by Mr Bonson:
- DFA to develop a fully costed proposal on the Outstation Rehabilitation and Halfway House and send it to him.
2.3.3 Hon Sydney Stirling, ALP, NT Minister for Justice and Attorney-General
Interested in hearing more regarding the concept of the half-way house, outstation rehabilitation and continued Centrelink payments during rehabilitation.
2.3.4 Hon Terry Mills CLP, Deputy Leader of the Opposition
He is keen to hear more about the Outstation Halfway House Rehabilitation and Wilderness Therapy and to work with leaders such as Anderson George.
2.3.5 Hon Marion Scrymgour, MLA, NT, Minister for Family and Community Services, Minister for Child Protection, Minister for Women’s Policy, Minister for Senior Territorians, Minister for Young Territorians.
Issues as at September 2007 were:
- The issues related to Child Protection were central to the discussion.
- the Federal Government was on the right track with this aspect
- not in favour of removing permits.
- Mandatory rehabilitation has been legislated for petrol sniffing.
- The problem of blackmarket drugs/alcohol reaching remote communities
was raised.
Solution offered: It was suggested that, in order to be successful in cutting off the blackmarketers’ and drug runners’ supplies to communities, increased numbers of police should monitor roads with sniffer dogs.
2.3.6 NT Intergovernmental Standing Committee on Substance Abuse
Issues as at September 2007 were:
- the level of violence and child abuse within Communities – which needed to be immediately addressed.
- the lack of (or inadequate) medical and educational services in Communities, retention rates of workers in the Community Services and Health fields.
- the need for more effective and responsive law enforcement to prevent drugs and alcohol in Communities
- cannabis-associated mental illness (both short and long term psychosis and resultant brain damage and suicide risks).
- consequent brain damage, psychosis and suicide also associated with heavy drinking amongst indigenous people. For example, it is not unusual for some young drinkers to consume six litres of moselle in one day.
- a shortage of mental health facilities in the NT.
Solutions offered by the Substance Abuse Sub-Committee
- suggested the idea of ‘sniffer dogs’, including at Town Communities such as Bagot.
- where possible, the people in Communities should be in charge of education, health and law enforcement (i.e. Night Patrols).
- suggested that community-based Justices of the Peace could take on much of the role of magistrates. For example the JPs would be empowered to place addicted people into Outstation Rehabilitation. This concept of law enforcement at a community level, might be the way forward.
- more emphasis needed on Cannabis awareness and poly drug use, including alcohol and kava.
- recommended a process for DFA contributing ideas to assist the effective ‘roll out’ of new Indigenous Policy, especially hearing more about the concept of ‘outstation’ rehabilitation and a halfway house as a transition back into Community life.
- invited proposals from DFA and recommended that copies be sent to directly to each regions political representative, to ensure ‘on the ground’ coverage and support. They would be prepared to complete a DFA survey to further inform this research.
2.4 Meetings with Agencies and Social Workers
Issues as at September 2007 were:
- Drug related dysfunction leads to lack of school attendance, nutrition issues, funeral attendance (leading to frequent temporary absence from school)
- Lack of education, leading to reduced employment opportunities
- Poor literacy and numeracy skills across the board
- Fear of ‘dobbing in’ others – retribution
- Domestic violence
- Non-attendance of victims and witnesses in court (motivated by fear of reprisal and/or love for the perpetrator/accused)
- Town based rehabilitation not working for people in Town Camps – too near shops and liquor outlets. The ability to easily access drugs/alcohol or actually ‘jump the fence’ makes the continuity and effectiveness of care difficult.
- Economic issues, with disposable income being spent on alcohol, tobacco and drugs. The quarantining of welfare payments by means of vouchers’ management account for all recipients of welfare would help people with addictions who live outside of communities (e.g. those homeless people termed ‘Long grassers”). Many homeless people do not have Centrelink money management.
- Service Delivery Constraints
- Recruitment of Alcohol and Drug workers – NT is remote from the rest of Australia, also poor staff retention rates;
- Insufficient or inadequate training of indigenous community members
- Reliance solely on academic qualifications
- Since the closure of the Night Patrols in Darwin, there have been falling numbers of admissions to sobering up centres –there was a perception in the wider community that there is no longer a detoxification centre in Darwin because an effective one was closed down and moved to the Royal Darwin Hospital
- There is a perception that greater numbers of intoxicated people are taken by police to the custodial ‘lock-up’ watch house, whereas the community Night Patrol was more inclined to take people to the sobering up shelter.
- Inadequate or non-existent aftercare (services could be provided by community Half-way Houses).
Solutions offered by agencies
- Recruitment – develop more flexible systems of training so that academic qualifications can be gained by indigenous people within Communities ‘on the job’.
- Need to develop an effective plan to restrict drugs/alcohol coming into communities (i.e. increase policing of roads; use sniffer dogs). Also there is a need to check aircraft flying into communities.
- Look at reasons why people drink, focussing on NT cultures, to address issues effectively. For example, examine peer pressure within Community lifestyles, travellers’ drinking culture, and availability of liquor.
- Expand on education options in schools and community to create greater awareness of harms. For example – inform students about the impact of drugs/alcohol on the developing brain, brain damage, psychosis and long term mental illness (drug/alcohol and suicide linked). Develop culturally appropriate education content, delivery methodology and resources.
- Implement models such as the QUIT campaign for all drug types
- Reinstate indigenous Night Patrols in Communities.
- Utilise existing skills within Communities and build capacity for more.
- Research culturally appropriate rehabilitation models that provide options for different circumstances – for example outstation, wilderness/bush therapies. Provision must be made for those who are prematurely aged and sick from drug/alcohol related physical and mental illnesses.
- Indigenous people are calling for consultation and involvement in decision-making on all matters that concern them.
- Town based rehabilitation not working for people in Town Camps – too near shops and liquor outlets. The ability to come and go freely makes the continuity of care difficult.
- Economic issues, with disposable income being spent on alcohol, tobacco and drugs. Even with money management, there is still a high proportion of income available for negative use, such as high volume alcohol consumption.
Service Delivery solutions offered by agencies
- Recruitment – develop a more flexible system of training so that academic qualifications can be gained within Communities ‘on the job’.
- Need to develop an effective plan to restrict drugs coming into communities (i.e. policing)
- Look at reasons why people drink, focussing on NT cultures, to address issues effectively. For example, examine peer pressure within Community lifestyles, travellers’ drinking culture, and availability of liquor.
- Expand on education options in schools and community to create greater awareness of harms. Develop cultural appropriate education content, delivery methodology and resources.
- Implement models such as the QUIT campaign for all drug types
- Reinstate Indigenous Night Patrols where Communities support them.
- Utilise existing skills within Communities and build capacity for more.
- Research culturally appropriate rehabilitation models that provide options for different circumstances – for example outstation, wilderness/bush therapies.