This article considers Indigenous-specific measures across
portfolios in the Budget October 2022–23, and other measures relating to
Aboriginal and Torres Strait Islander people. Measures covered include health,
housing and infrastructure, land and waters, economic development and education,
and safety. These categories are consistent with the new Closing
the Gap Priority Reforms and Targets,
and past Budget review articles. Unless otherwise stated, all page references
are to Budget
measures: budget paper no. 2: October 2022–23.
Separate Budget review articles discuss the First Nations
Justice measure and measures responding
to the Uluru Statement from the Heart.
Overview
The October 2022–23 Budget largely meets the Australian
Labor Party’s (ALP) election
commitments to First Nations peoples, albeit with some minor adjustments to
timeframes, and some with additional funding. Key budget measures include:
-
next steps to implement the Uluru Statement from the Heart
-
justice reinvestment and targeted support for legal services
-
building the health workforce and infrastructure
-
repairs to remote housing and homelands infrastructure
-
a diverse range of land and heritage activities.
There are also measures relating to First Nations women,
international engagement (discussed in the Uluru
Statement Budget review article), and jobs and economic opportunities, as
well as abolishing the Cashless Debit Card. Indigenous-specific budget measures
not discussed in the Budget review articles are listed in Table
1.
The Government has reiterated its commitment to working
under the National
Agreement on Closing the Gap (the National Agreement). Some small budget
measures relate to commitments under this agreement. These include establishing
a Housing Policy Partnership, a commitment
under Priority Reform 1 of the National Agreement, and first steps towards
a First Nations digital
inclusion strategy. Future Budgets will almost certainly need to provide
much larger funding commitments against needs identified from these processes.
Of the $560.0 million over 4 years Support for Community
Sector Organisations measure, the National Indigenous Australians Agency (NIAA)
receives $47.5 million per year (p. 84). This funding, which community groups
can apply for ‘on
merit’, seeks to mitigate rising costs such as inflation and wage pressures.
Expenditure trend
The Budget shows a continuing increase in funding provided
under Indigenous-specific Commonwealth programs. This trend was noted in the March
Budget
review 2022–23 article ‘Indigenous Affairs: leadership, land, economic
development and education’ and has further
increased under the new Government.
Figure 1 Indigenous Australians-related budget sub-functions
Note: nec = not elsewhere classified
Source: Prepared by the Parliamentary Library from Budget Strategy
and Outlook: Budget Paper no. 1, various years. Figures are nominal
(non-inflation adjusted) dollars reflecting actual spending in that year except
for those from 2022–23 onwards, which are projections from Budget
strategy and outlook: budget paper no. 1: October 2022–23.
The actual increase in funding is greater than shown, as the
Indigenous Australians-related budget sub-functions do not include the $300 million
allocated for Indigenous housing (Indigenous housing expenditure is included in
the ‘housing and community amenities’ budget function). The reasons for the 2021–22
budget year’s underspend (approximately $177 million) are unclear.
Taking into account the $300 million allocated for
Indigenous housing and the $177 million underspend in 2021–22, the October
2022–23 Budget provides $1.1 billion more than the March 2022–23 Budget
for Indigenous Australians-related matters, averaging $4.2 billion per
year over the forward estimates.
Health
The Budget meets the ALP’s
election commitments for health through the $314.8 million Strengthening
First Nations Health measure (p. 140). This includes:
-
$54.3 million over 5 years from for up to 500 First Nations
Certificate III and IV traineeships in Aboriginal and Torres Strait Islander
Primary Health Care, under the First Nations Health Workers Traineeship
Program, led by the National Aboriginal Community Controlled Health
Organisation (NACCHO) (Health
portfolio budget stakeholder pack, pp. 20–21).
-
$164.3 million over 4 years for health infrastructure. This
exceeds the $75 million election commitment and appears to include additional
locations (see the ALP’s election
commitment to First Nations peoples, p. 9 and Health
portfolio budget stakeholder pack, p. 23).
-
$22.5 million over 3 years for a Birthing on Country Centre of
Excellence on the NSW south coast.
- In
response to this announcement, the CEO of Congress of Aboriginal and Torres
Strait Islander Nurses and Midwives stated
‘It is our hope that this service will lead the way in the establishment of
many suitably tailored birthing on country services, wherever needed, in the
future’.
-
$45 million over 4 years for up to 30 four-chair dialysis units,
and $1.9 million in 2022–23 for 2 dialysis treatment buses in far-west NSW.
-
$14.2 million over 3 years to increase funding to NACCHO to
provide treatment, detection and prevention support for rheumatic heart disease
(Health
portfolio budget stakeholder pack, p. 22).
On 5 October 2022, the Government announced
a 2-year extension of the National Partnership on Northern Territory Remote
Aboriginal Investment. The $14.8 million health component portion (Federal
financial relations: budget paper no. 3: October 2022–23, p. 32)
matches funding committed in the March 2022–23 Budget.
Housing and infrastructure
Election commitments for remote housing and homelands are addressed
through 2 budget measures:
- Restoring Funding for Homelands (p. 173) provides
$100 million over 2 years for Northern Territory homelands. This deviates from
the election commitment in that $25 million will be provided in 2022–23 and the
balance in 2023–24 (the total amount is the same).
-
The Safer and More Affordable Housing measure provides
$200 million ‘within the first 5 years’ for ‘the repair, maintenance and
improvements of housing in remote Indigenous communities’ (p. 191).
Additionally, $9.2 million over 3 years has been committed
for the Closing the Gap Housing Policy Partnership (p. 178). Coupled
with the recently accepted Housing
Sector Strengthening Plan (a commitment
under Closing the Gap Priority Reform 2), this should provide a more holistic
approach to meeting the housing needs of Indigenous people.
Financial details regarding a new Northern Territory remote
housing agreement (an election commitment) were not mentioned in the Budget.
The current
agreement is due to expire in mid-2023.
Infrastructure measures include:
- the Support for Energy Security and Reliability measure (p. 77),
which allocates $5.5 million over 3 years ‘to codesign and commence
implementation of a First Nations Clean Energy Strategy’
-
the First Nations Community Microgrids Program measure (p. 61),
which provides $83.8 million over 4 years ‘to develop and deploy microgrid
technology across First Nations communities’.
As part of the Better Connectivity Plan for Regional and
Rural Australia measure (p. 158), $2.5 million over 5 years is
provided ‘to establish a First Nations Digital Advisory Group to lead
consultation with First Nations people on the design and delivery of digital
inclusion initiatives.’
Land and waters
During the 2022 election campaign, the ALP committed
to double the number of Indigenous rangers ‘by
the end of the decade’ and to ‘boost funding’ by $10 million per year (ongoing)
for the management of Indigenous Protected Areas (p. 18). The costings in Labor’s
plan for a better future include the rangers as part of this $10 million
per year (p. 12). This commitment appears to be met through the Next Phase
of Natural Heritage Trust Funding measure (p. 68): $66.5 million over 5
years from 2023–24 is allocated to expand the Indigenous Protected Areas
program. This exceeds $10 million per year and may cover the cost of Indigenous
ranger expansion. However, the commitments beyond the forward estimates, the lack
of explicit mention of Indigenous rangers, and the fact that some funding is
being taken from the National Heritage Trust special account makes it difficult
to be certain.
Election commitments are also addressed by:
-
the Reef 2050 Long-term Sustainability Plan – implementation
measure (p. 74; Department of Climate Change,
Energy, the Environment and Water (DCCEW) fact sheet ‘Building a better
future for the environment’, p. 3),
which provides an unspecified amount of the $100 million of Great Barrier Reef
funding dedicated to projects delivered by Traditional Owners and Indigenous
rangers
-
the Investing in Australia’s Indigenous Culture and World
Heritage measure (p. 64), which provides $14.7 million over 4 years for
local communities and First Nations people ‘to assess and identify heritage
protection priorities’ (note: this measure includes non-Indigenous cultural
heritage)
-
the $40.0 million Aboriginal Water Entitlements Program returning
to DCCEW under the Water for Australia Plan budget measure (p. 79).
These funds had been transferred
to the NIAA in December 2021.
A significant concern for the effective management of lands
and waters by First Nations peoples is government’s capacity to provide
support: the Indigenous land-management grass roots alliance, Country Needs
People, recently observed
that:
… we need government to be collaborators and supporters, not
just contract managers.
Since approximately 2014 the federal environment departmental
staff dedicated full time to supporting Indigenous Rangers and Indigenous
Protected Areas has been cut by around 95%. That has to be rebuilt if the
government is going to meet its agenda of doubling Indigenous Rangers over the
next decade, and meeting the 30 by 2030 targets for protecting land and sea.
Other relevant measures include:
-
The Carbon Farming Outreach Program (p. 57) allocates
$20.3 million over 4 years ‘to empower Australian farmers and land managers,
including First Nations peoples, to participate in carbon markets and integrate
low emission technologies and practices.’
-
The Engaging with First Nations Peoples on Climate Change measure
(p. 60) allocates $15.9 million over 4 years to establish the Torres Strait
Climate Change Centre of Excellence. This follows the September
2022 UN Human Rights Committee decision that ‘Australia’s failure to
protect Torres Strait Islanders against the impacts of climate change violated
their right to practice their culture.’
Education and economic development
- Agency
resourcing: budget paper no. 4: October 2022–23 notes the Government’s commitment
to a 5% Indigenous employment target in the public sector:
The Government is committed to increasing First Nations
employment in the APS to 5 per cent by 2030. The APS, through the Commonwealth
Aboriginal and Torres Strait Islander Workforce Strategy 2020–25, aims for
greater First Nations workforce representation and retention at all
classification levels and in all business areas. Through the Strategy, we have
focused on improving outcomes in 3 key areas: cultural integrity, career
pathways and career development and advancement.’; Affirmative Measure
Recruitment Hub was launched in July 2022 ‘to assist agencies in recruiting
First Nations talent. ( p. 6)
Other budget measures include:
-
The National Study on Adult Foundation Skills measure (p.
100) will reallocate existing resources to fund a study ensuring ‘on-going
representation of First Nations peoples in foundation skills studies’.
-
The Strengthening Australia’s Higher Education Sector (p. 95)
measure provides funding for 20,000 additional Commonwealth supported places at
universities and other higher education providers. These places are
specifically for ‘students under-represented in higher education, including
First Nations peoples … for courses in areas of skills shortage’.
-
The Teaching First Nations Languages Schools measure (p. 97)
provides $14.1 million over 4 years for First Nations educators in 60 primary
schools. Teaching First Nations languages is a complex policy area, with links
to education, the retention and revival of culture, and community involvement. Educators
will need sustained support from both their school and local community for this
program to thrive. A good practice model is developing in NSW, underpinned by the
state’s Aboriginal
Languages Act 2017 (NSW), a revamp of their Aboriginal
languages syllabus, and the recently launched Aboriginal
Languages Trust Strategic Plan 2022–2027.
Budget measures to abolish the Cashless Debit Card and create
a new ‘enhanced income management’ are discussed in the ‘Social
Welfare’ Budget review article. While not Indigenous-specific, this was an
election commitment under Labor's
commitment to First Nations peoples.
First Nations Women
Safety
Election commitments relating to First Nations women’s
safety are addressed through:
-
the Women’s Safety – 500 community workers measure ($169.4
million over 4 years and $55.4 million per year ongoing) will support 500
additional frontline service and community workers relating to family, domestic
and sexual violence, with half of these jobs allocated to rural, regional and
remote areas. These positions will ‘support the LGBTIQA+ community, women with
disability, culturally and linguistically diverse women and children, and First
Nations people’ (p. 187; Department of Social Services Women’s Safety fact
sheet).
-
As part of the First Nations Justice measure (p. 49) $3
million over 3 years is allocated for the National Family Violence Prevention
Legal Services Forum.
Additionally, the National plan to end violence
against women and children 2022–2032, launched on 17 October 2022,
includes a commitment to develop a dedicated Aboriginal and Torres Strait
Islander Action Plan and a First Nations National Plan
(pp. 19–20). These will be led by the Aboriginal and Torres Strait
Islander Advisory Council on family, domestic and sexual violence.
Summit
Aboriginal and Torres Strait Islander Social Justice
Commissioner, June Oscar, will convene a First Nations Women and Girls National
Leadership Summit in 2023. This summit aims to ‘empower women’s leadership at
the local level and provide a national platform for healing intergenerational
trauma and action to eradicate racism and ending family violence’ (Women’s
budget statement October 2022–23, p. 18). No additional funding
appears to have been provided within the Budget for this.
Table 1 Indigenous-specific budget measures not discussed
in Budget review articles
Health
|
Sport4All – First Nations
Program – expansion (p. 139)
-
$10.3 million over 4 years
|
Infrastructure
|
First Nations – community
projects (p. 170)
-
$1.0 million over 2 years for new ablution blocks for Mabunji
Aboriginal Resource Corporation
-
$0.8 million in 2022–23 contribution towards short stay
accommodation in Laverton, WA
|
Scotdesco – water security
feasibility study (p. 174)
-
$0.5 million over 2 years
|
Culture and
language
|
Supporting the Arts (p. 166)
-
includes $5 million in 2022–23 ‘to upgrade training and
accommodation facilities at the National Aboriginal and Islander Skills
Development Association Dance College’
|
Funding for Six Rivers
Aboriginal Corporation (Tasmania) (p. 171)
-
$0.6 million over 3 years to enable ‘Tiagarra’ (a museum and
cultural centre) to reopen and undertake cultural engagement activities
|
First Nations – community
projects (p. 170)
-
$0.5 million for a Walpiri cultural project in Yuendumu, NT
|
Wellbeing
|
Mental Health Supports for
Flood-affected Communities in New South Wales (p. 131)
-
includes $4.5 million in 2022–23 targeted to First Nations
peoples
|
Other measures
|
15th Anniversary of the
Apology to Australia’s Indigenous Peoples (p. 169)
|
Eileen Cummings v
Commonwealth of Australia – settlement (p. 170)
-
$50.5 million in 2022–23 to provide compensation to ‘deceased
estates of members of the Stolen Generations and kinship group members, and
live kinship group members’ per settlement of Eileen Cummings v
Commonwealth of Australia
|
Youpla Group Funeral
Benefits Program – establishment (p. 194)
-
$7.2 million over 2 years ‘to establish the Youpla Group
Funeral Benefits Program to help the families of people affected by the
collapse of Youpla Group’
|
Source: Australian Government, Budget Measures: Budget Paper no. 2: October 2022–23, page references as indicated.
All online articles accessed October 2022