Question taken on notice
Senate Legal and Constitutional Committee Reconciliation Inquiry
Canberra hearing, 14 May 2003 

Australian Bureau of Statistics
Question 1

Senator RIDGEWAY—This is a question you might want to take on notice. I do not know whether you are familiar with the Royal Commission on Aboriginal Peoples conducted in Canada and certainly the approach they took in relation to the gathering of statistics and how that led to policy development. Do you want to make some comment at some stage about the significance or relevance of that report to the Australian example?

ABS response

The  report of the Canadian Royal Commission on Aboriginal Peoples (RCAP) included two recommendations which were directly relevant to Statistics Canada (StatCan) and which have been implemented by that agency.  The first was a call for a second Canadian Aboriginal Peoples Survey (which has since been conducted by StatCan, with results which were expected to be published in September 2003), with the recommendation calling for that survey to become a regular data-collection vehicle maintained by Statistics Canada; and implementation of an Aboriginal statistics training program to build statistical capacity within the Canadian Aboriginal peoples' organisations (again, this has been implemented by StatCan).  

In implementing its Canadian Aboriginal Peoples Survey, StatCan established a committee to guide the survey from content development through to the release of data/information.  The committee comprised representatives of five of the six national Aboriginal organisations in Canada, two federal  government representatives, two StatCan representatives, and one ex-officio provincial/territorial representative.  

The ABS approach in relation to collecting statistics is not unlike the approach adopted by Statistics Canada in its response to the RCAP.  The  ABS briefing paper, provided to the Senate Legal and Constitutional Committee - Inquiry into the Progress Towards National Reconciliation, noted the range of consultation arrangements adopted by the ABS, and the involvement of Indigenous organisations and individuals in those consultations.  At the highest level it involves consultation on the broader ABS Indigenous statistics work program, and ongoing advice from peak Indigenous advisory groups (such as that work program is implemented.  At the next level it includes survey specific reference groups, similar to the committee established by StatCan for its Aboriginal Peoples Survey.  unfolds.  

The ABS engaged in an extensive community consultation and negotiation program  to develop and implement the first (1994) National Aboriginal and Torres Strait Islander Survey (NATSIS), which was conducted as part of the Government's response to the findings of the Royal Commission into Aboriginal Deaths in Custody.  For both the ABS Indigenous Social Survey (ISS) (the 'second NATSIS'), first conducted in 2002 with results expected in late 2003, and for the ABS Indigenous Health Survey (IHS), survey reference groups similar to the StatCan survey committee have been established and meet regularly to advise the ABS.  The advice of these reference groups complements the advice received from the National Advisory Group on Aboriginal and Torres Strait Islander Health Information and Data (NAGATSIHID).  Both the ISS and IHS are regular survey in the ABS household survey program and are planned to be run six yearly. 

As part of the Canadian government's response to the RCAP, StatCan was given the responsibility to assist in the development of statistical capacity among Aboriginal peoples.  In response StatCan developed a basic statistical training course and has been delivering it since February 1999.  The main course objectives are to train Aboriginal people working in jobs requiring the use of statistics to be able to find and use statistical data effectively to support their organisation’s decision-making, planning, programming, evaluation and related activities.  

As noted in the ABS briefing paper for this inquiry ABS is seeking to improve the way we work with Aboriginal and Torres Strait Islander peoples on data reporting and feedback, following earlier work (the Bila Muuji project in NSW), which provided a statistical training project for use by Aboriginal organisations such as Land Councils, Aboriginal Community Controlled Health Services, housing groups and community groups who need to use statistics in strategic planning, service reporting and submission writing.  ABS plans, as part of its Indigenous community engagement strategy, to recruit State-based ABS Indigenous liaison officers to, among other tasks: 

a	provide an ongoing communication channel with Indigenous communities (both discrete communities and Indigenous community groups within the wider population) through a dedicated liaison officer who returns regularly to the communities;

b	provide a 'mentor' in each ABS regional office for Indigenous staff, such as Indigenous cadets, recruited to that office in other roles, and for Indigenous people recruited to the ABS permanent household interviewer panel or as census collectors; and

c	undertake a dissemination role, returning to communities with information appropriately developed by the ABS National Centre for Aboriginal and Torres Strait Inlander Statistics.  In this endeavour we will be seeking to learn from the approach being adopted by the Institute of Child Health Research with the Western Australian Aboriginal Child Health Survey.  

The role of formal training courses for Aboriginal and Torres Strait Islander peoples working in jobs requiring the use of statistics, as conducted by StatCan, will be considered in the development of the ABS Indigenous community engagement strategy. 

The ABS is planning to meet with officials from Statistics Canada later this year to among other things, assess other findings from the RCAP which might have some relevance to the Australian situation regarding development of Indigenous statistics. 

Australian Bureau of Statistics
Question 2

Senator CROSSIN—I do note that a number of evaluations have been done, if not under way, following the 2001 census. You would be more aware, I am assuming, of the controversy surrounding the collection of your statistics in remote communities during the 2001 census. You will need to take this on notice. I do not in my wildest dreams believe you have brought them here. I have been to a number of remote communities in the last month. I am wondering if you could supply to this committee the dates on which census forms were dropped off and collected on Elcho Island, including all of their 28 outstations. None of the six outstations I went to and none of the 50 Indigenous people I spoke to had filled out a census form in 2001. I am wondering if you can do the same for me in relation to Borroloola, Maningrida and all of their outstations and Whitton, which is a small community to the north of Tennant Creek. I do not think there are any others that particularly spring to mind at this point in time. I am particularly interested in knowing about this. Ali Curung would be another one that I would like to know about. When were census forms dropped off in those communities? How many were there? On what days were they picked up? How many were picked up, particularly in the 28 outstations at Elcho Island?

ABS response

Standard Census enumeration procedures involve Census forms being dropped off at households, for subsequent self completion by the householders, and the forms are, at the householders preference, either mailed back to the ABS or picked up by Census collectors.  However, the ABS Census Indigenous Enumeration Strategy (IES) uses a different approach.   Indigenous persons living in discrete Indigenous communities are most often enumerated through interview, with Census interviewers using a Special Indigenous Form (or SIF).  

The following responses, in relation to each of the areas identified in Senator Crossin's question, are therefore provided in the context of the way ABS conducted the 2001 Census in remote communities throughout the Northern Territory, which includes, prior to Census enumeration, visits to each community to:

.	gain local knowledge on local issues that might impact on the forthcoming enumeration;

.	establish appropriate local enumeration arrangements; and

.	recruit local people as Census coordinators, interviewers, interpreters and facilitators, as appropriate to local circumstances.

Elcho Island - Galiwinku main community (Census collection district (CD) 7030401) and Marthakal Homelands (35 outstations (CD 7030407)

Galiwinku and Marthakal Homelands are, in terms of the Australian Indigenous Geographic Classification (AIGC), Indigenous Areas within the Aboriginal and Torres Strait Islander Region of Nhulunbuy.

Pre-census facilitation
Contact with the main community for awareness raising and recruitment activity commenced with a visit on 19-20 April 2001. Two further pre-census visits by Census staff were undertaken on 27 June and 9-11 July 2001 to prepare for the Census. 

Local recruitment
Two Community Coordinators and ten Collector-Interviewers were employed to undertake the Census enumeration.

Census Enumeration
Enumeration of the main community and the 35 identified outstations within the surrounding Census collection district took place over the period 12 July to early September 2001. 

Non-Indigenous people in the community were supplied with standard Census forms by the local Community Coordinator - to be either picked up by the Coordinator, or mailed back to the ABS.  By 10 August 2003 the enumeration of the non-Indigenous population was complete. 

The enumeration of the Indigenous population was undertaken using interviewer methodology and the Special Indigenous Forms.  There were delays in completing the enumeration due to funerals and 'sorry business'.

Outstations were not visited if:
.	local knowledge advised that the outstation was abandoned;
.	local knowledge advised that the outstation currently had no population;  or 
.	the residents of an outstation were interviewed when they were in the main community for funerals/sorry business.

Completed Special Indigenous Forms were securely held by the Community Coordinator until air-freighted back to the Census Management Unit in Darwin in early September 2001.  

Census counts
The Census count, on a usual residence basis, for Galiwinku was 1,478 people, and for Marthakal Homelands it was 168.  These usual residence counts exclude:

.	people temporarily visiting Galiwinku or Marthakal Homelands at the time of the Census; 
.	usual residents of Galiwinku or Marthakal Homelands that were enumerated elsewhere but for whom the place of usual residence is inadequately described on the Census form to allow reallocation to the place of usual residence; and
.	upward adjustments made to account for net census undercount in arriving at the estimated resident population. 

Witten outstation (located within Census collection district (CD) 7031202)

Witten (or Wiitin), located within Census collection district (CD) 7031202, is a small outstation attached to the Julalikari Buramana Aboriginal Corporation which is based in Tennant Creek.  This CD contains 11 outstations, including Witten, and several hotel/motels and caravan parks, mining sites and a conservation reserve.  

This CD is, in terms of the AIGC, within the Indigenous Location of Julalikari Buramana East outstations/Tara, within the Julalikari Buramana outstations/Canteen Creek/Tara Indigenous Area, which is within the Aboriginal and Torres Strait Islander Region of Tennant Creek.

Pre-census facilitation
The Julalikari Buramana Council was initially involved in recommending contacts and Collector-Interviewers for this area.  

The Julalikari Buramana Aboriginal Corporation, which assisted the Census field staff in establishing enumeration arrangements for the outstations in this CD, was visited by Census staff  on 3 occasions (the initial visit was by both the Census Field Coordinator and the Census Field Officer (CFO) who was based in Tennant Creek) between March and June 2001 to conduct awareness activities, recruitment and training, and completion of dwelling checklists.
 
Local recruitment
One Community Coordinator and one Collector-Interviewer were recruited for the enumeration of all Julalikari Buramana outstations.

Census Enumeration
All of the non-Indigenous population within this CD were enumerated using mainstream Census methods. 

Enumeration of the outstations by the Community Coordinator and/or the Collector-Interviewer, using interviewer methodology and the Special Indigenous Forms, took place over four weekends in mid July/early August 2001.

After enumeration was completed for each outstation during this period, completed forms were dropped off by the Community Coordinator and/or the Collector-Interviewer to the Census Field Officer based in Tennant Creek.

Census counts
The Census count, on a usual residence basis, for Census Collection District 7031202 was 200 people.  These usual residence counts exclude:

.	people temporarily visiting this Census Collection District at the time of the Census; 
.	usual residents of this Census Collection District that were enumerated elsewhere but for whom the place of usual residence is inadequately described on the Census form to allow reallocation to the place of usual residence; and
.	upward adjustments made to account for net census undercount in arriving at the estimated resident population. 

Ali Curung (Census collection district (CD) 7031207

Ali Curung is a major community, and in terms of the AIGC is an Indigenous Area within the Aboriginal and Torres Strait Islander Region of Tennant Creek.

Pre-census facilitation
Ali Curung was visited by the Census Field Officer 3 times between April and August 2001.

Local recruitment
Local recruitment of one Community Coordinator and two Collector-Interviewers was arranged through the Ali Curung Community Association Incorporation.

Census Enumeration
All of the non-Indigenous population within this CD were enumerated using mainstream Census methods. 

Enumeration of the Indigenous population was undertaken using interviewer methodology and the Special Indigenous Forms.

Enumeration commenced on 9 July 2001 and was completed by 15 August 2001.  The completed census forms were picked up from the community by the Census Field Officer and returned to the Census Management Unit in Darwin.

Census counts
The Census count, on a usual residence basis, for Census Collection District 7031207 was 499 people.  These usual residence counts exclude:

.	people temporarily visiting this Census Collection District at the time of the Census; 
.	usual residents of this Census Collection District that were enumerated elsewhere but for whom the place of usual residence is inadequately described on the Census form to allow reallocation to the place of usual residence; and
.	upward adjustments made to account for net census undercount in arriving at the estimated resident population. 

Maningrida and 45 outstations (Census collection districts (CDs) 7030308, 7030302, 7030311, 7030312, 7030313, 7030426, 7030427, 7030428

Maningrida and Maningrida outstations, in terms of the AIGC, are both Indigenous Areas within the Aboriginal and Torres Strait Islander Region of Jabiru.

Pre-census facilitation
Maningrida was visited by Census staff on four occasions from 7 May to 26 June 2001 to conduct awareness activities, recruitment and training, and completion of dwelling checklists.

Local recruitment
One Community Coordinator and 13 Collector-Interviewers were employed on the enumeration. 

Census Enumeration
All of the non-Indigenous population within this CD were enumerated using mainstream Census methods. 

Enumeration of the Indigenous population was undertaken using interviewer methodology and the Special Indigenous Forms.

Enumeration occurred over the period 20 June to 12 August 2001, with the Census Field Officer assisting with the community and outstations when visiting the community during the period of 6 August to 12 August.  The completed census forms were picked up by the Census Field Officer during that visit and returned to the Census Management Unit in Darwin.

Census counts
The Census count, on a usual residence basis, for Maningrida was 1,630 people and for Maningrida outstations was 480 people.  These usual residence counts exclude:

.	people temporarily visiting this Census Collection District at the time of the Census; 
.	usual residents of this Census Collection District that were enumerated elsewhere but for whom the place of usual residence is inadequately described on the Census form to allow reallocation to the place of usual residence; and
.	upward adjustments made to account for net census undercount in arriving at the estimated resident population. 

Borroloola (Census collection districts (CDs) 7030606, includes 5 town camps) and Borroloola (Mabunji) outstations (32 outstations in CD 7030603)
Borroloola  and Borroloola (Mabunji) outstations, in terms of the AIGC, are both Indigenous Locations within the Indigenous Area of Borroloola/Robinson River, within the Aboriginal and Torres Strait Islander Region of Katherine.

Pre-census facilitation
Borroloola  and Borroloola (Mabunji) outstations were visited on several occasions by Census field staff between 3 April and 11 July 2001 for Census promotion efforts and to initiate local recruitment (3 to 5 April), to set up enumeration arrangements with local housing organisations (8, 9 and 11 April), and to finalise local recruitment of Community Coordinators and Collector-Interviewers (9-11 July).

 to assist with the collection of forms, and to undertake quality assurance steps.  

Local recruitment
One Community Coordinator and 4 Collector-Interviewers were employed on enumeration of the town camps.

One Community Coordinator and 1 Collector-Interviewer were employed on the outstation enumeration, assisted by the Census Field Officer.

Census Enumeration
The enumeration occurred between 9 July and 15 August 2001.

In the Borroloola CD (other than Town Camps), both non-Indigenous and Indigenous households were enumerated using standard Census forms and procedures.  Indigenous assistance was provided when required.  In response to representations made to ABS that some people may have felt uncomfortable in having their forms picked up by Census collector/s whom they personally knew, ABS  offered that the forms could be handed in to the local Police, who were already signed up as Remote Collectors.

Town camps were enumerated using interviewer methodology and the Special Indigenous Forms. 

Island outstations were enumerated on 23 July 2001. In the outstations, non-Indigenous households within outstations were enumerated with standard Census forms using mainstream Census methods. 

Enumeration of the Indigenous population in outstations was undertaken using interviewer methodology and the Special Indigenous Forms.  Some small outstations were enumerated with the assistance of focus groups and use of administrative lists. 

The completed census forms were picked up by the Census Field Officer during a visit from 13 to 15 August 2001 for final quality assurance checks and form collection.

Census counts
The Census count, on a usual residence basis, for Borroloola was 751 people, and for Borroloola (Mabunji) outstations was 623 people.  These usual residence counts exclude:

.	people temporarily visiting this Census Collection District at the time of the Census; 
.	usual residents of this Census Collection District that were enumerated elsewhere but for whom the place of usual residence is inadequately described on the Census form to allow reallocation to the place of usual residence; and
.	upward adjustments made to account for net census undercount in arriving at the estimated resident population. 

Australian Bureau of Statistics
Question 3

Senator RIDGEWAY—This is a very quick one that you could take on notice. You are probably aware that in last night’s budget the government announced that it would be releasing a report on benchmarking later in the year. I wonder whether you could provide a response later as to the relationship you would have with the steering committee of the Productivity Commission. What sort of information would you be providing to assist that new initiative? Are there any impediments in relation to the collection of data, particularly with states and territories? What is the nature of any formal arrangements that might exist so that the collection of data can be improved, including the harmonisation of what you do through the ABS and what might happen at the state and territory levels.

ABS response

The ABS is an observer on both the Steering Committee for the Review of Commonwealth/State Service Provision and on the Indigenous Disadvantage Working Group working.  

The ABS has provided the Productivity Commission with a wide range of detailed information from the ABS Census of Population and Housing, including information about: population counts; Indigenous languages spoken at home; participation and level of schooling and other educational qualifications/attainment; employment by industry sector, including the self employed; housing (type of dwelling, tenure type and crowding measures); and income; with many of these variables cross- tabulated and presented by State/Territory, remoteness categories and by ATSIC Region.  ABS has also provided statistics from schools collections on apparent retention and participation rates; from crime and justice collections on imprisonment rates; from ABS health surveys on a range of health characteristics; and mortality statistics derived from deaths registrations data.

To support the production of the Report on Indigenous Disadvantage, a range of other information has been sought from other Commonwealth, State and Territory government agencies.

In some areas, data at the State and Territory level are either not yet available or are in need of improvement.  For example, the 2001 Indigenous supplement to the National Health Survey provided national estimates for Indigenous Australians living in both remote and non-remote areas of Australia, but the sample size was insufficient to support State/Territory estimates.  As noted in the ABS brief for this inquiry, the 2004-05 ABS Indigenous Health Survey will have sufficient sample to report at the State/Territory level.  

As noted in the ABS brief for this inquiry, in addition to censuses and surveys, data are also derived from a range of administrative systems, operated at all levels of government, which collect information about Aboriginal and Torres Strait Islander Australians interacting with those government agencies.  Data generated from these collections are an important, and at times crucial, source of information not only about program performance but about the circumstances of the people interacting with service providers.  However, the quality of the information about Indigenous Australians derived from these collections depends, in part, on the quality of the information being captured by the administrative systems, including the quality of the identification of Indigenous people in those systems.  

AIHW and ABS have initiated, and continue to drive, programs in partnership with state and territory authorities, to improve the completeness with which Aboriginal and Torres Strait Islander peoples are recorded in a wide range of administrative data sets. Work on birth and death registrations continues to be undertaken by ABS, in collaboration with state and territory registrars, and has uncovered a number of ways in which the quality of Indigenous vitals (i.e. births and deaths) data can be improved. The AIHW continues to work with state and territory authorities to document and improve the quality of data in such areas as hospital separations, cancer registrations, general practice, community mental health services, alcohol and other drug treatment services,  juvenile justice, children services, and disability services.

In addition to the promotion and use of the ABS standard Indigenous identifier, the ABS plays an important role in promoting, and facilitating the adoption of other statistical standards in administrative systems to further improve the harmonisation and usefulness of statistics derived from a wide range of administrative systems, as well as in surveys and other collections conducted by other agencies.  The resulting improved statistics will allow better and further comparisons between the circumstances and conditions of Indigenous and non-Indigenous people and the monitoring of trends over time.