ࡱ> 02-./g  bjbjVV fr<r<[DffDhZZZZZe)e)e)CCCCCCC$EHV De)&ze)e)e) DZZ D%3%3%3e)ZZC%3e)C%3%36}BCZ5&_g.>հC60ڶH0H8CHC<e)e)%3e)e)e)e)e) D D%3e)e)e)fDe)e)e)e)He)e)e)e)e)e)e)e)e) : CHAPTER 24 A YOUTH ACCOMMODATION AND SUPPORT SERVICES PROGRAM ...a chronic problem being dealt with in a piecemeal way...' Youth housing is really about managing shortages and it is not about any reasonable response to a need.2 A NEW PROGRAM 24.1 The Youth Supported Accommodation Program (YSAP) is the only national program specifically for homeless children and young people and, with its limited aims, represents a failure by Federal and State governments to negotiate and implement a comprehensive policy which effectively addresses the needs of these children. As the Inquiry found, other programs intended to benefit homeless children and young people as well as others, do not in fact benefit them primarily because they are inappropriately designed and delivered and are characterised by a failure to understand the nature of youth homelessness. Moreover, they are not integrated with those services which are designed for and used by homeless children. This area is also characterised by a lack of long-term planning with the result, to take one critical example, that there are far too few medium to long-term accommodation services and little pressure upon or encouragement of State housing authorities to cater for the longer-term housing needs of young people. 24.2 RECOMMENDATION 24.1 The Inquiry recommends that Federal, State and Territory governments negotiate a new Youth Accommodation and Support Services Program to be jointly funded and to incorporate the features which we detail below. The Program must be specifically targeted at homeless and 'at risk' children and young people and must provide a full range of appropriate accommodation options closely linked to support and related services. There must be an emphasis on close consultation with the service delivery sectors local government and non-government organisations --- and on regional co-ordination of services. Where local communities are prepared to become involved they must be given every possible encouragement and assistance including funding based on flexible guidelines. The Program must ensure that there are long-term accommodation options for all children and young people who require them. The Program will not be a crisis accommodation program and should, therefore, be separate from the Supported Accommodation Assistance Program which has more limited goals. The YSAP component of SAAP should be abolished. RECOMMENDATION 242 The Inquiry recommends that this new Commonwealth-State Arrangement a Youth Accommodation and Support Services Program should form the centrepiece of government programs for homeless children. 24.3 This Program, however, should not be seen as a single monolithic solution to the needs of homeless children. It is clear that a wide range of service options and combinations is necessary if the diverse needs of homeless young people are to be met. Rather, the Program we recommend is a policy and programmatic framework for the co-ordination and integration of a range of services. PROBLEMS WITH THE CURRENT RESPONSE 24.4 The current responses to child and youth homelessness are characterised by the following negative features which inhibit the provision of effective services: a lack of clear demarcation of responsibilities between Federal, State and local government; a lack of agreed policy objectives; a failure of planning and co-ordination; a lack of standards for service-provision and effective monitoring; inadequate resources and other support to service-providers; and inadequate attention to the training and conditions of workers. 24,5 To paraphrase a finding of the Senate Standing Committee on Social Welfare in the broader context of child and family welfare services, there has been, until now, no comprehensive national assessment of the needs of homeless children and young people; no overall planning in the allocation of either Commonwealth or State funds appropriated for the establishment, development and maintenance of welfare services or for research and planning in relation to those services; and no investigation of the education and training needs of those responsible for the delivery of such services. There has been no nationwide evaluation of programs to ensure that, first, needs are being met; second, adequate standards are being maintained; third, waste of resources and duplication of effort are being avoided; and finally, programs that are introduced to meet the needs of homeless children and young people in one area are being co-ordinated with and complement programs in other areas -- so that the achievements of one program do not indirectly and inadvertently diminish the impact of other programs or create new social problems.' 24.6 Alongside these fundamental defects and, in our view, of equal importance, this whole area is also characterised by a lack of preventive programs, both to retain children in their families and to return children to families wherever it is appropriate and possible to do so. 24.7 The Inquiry was told that the fundamental problem with current responses is that: ...government agencies, both State and Commonwealth, invest vast resources and efforts in addressing the needs of sole parent families in need The contrast with the situation for unsupported youth is stark. The government apparatus that exists to assist young people is fragmented at best, lacking direction and clear purpose, is chronically under-resourced and adversarial in nature. Responsibility is spread between government departments; the level of staffing to undertake young people's needs is low order and unprepared for its tasks... Lack of Clear Demarcation of Responsibilities 24.8 In our view, it is clear that underlying the ineffectiveness of youth service provision is the failure of all levels of government to agree on a clear demarcation of their respective responsibilities. A 1984 inquiry in Victoria found that this problem is at its worst in the youth support services area.' The resources and expertise that local government could bring to bear have been largely ignored. 24.9 In particular, in our view, it is the failure of the Federal and State/Territory governments to clearly identify, accept and articulate their respective responsibilities for homeless children and young people that is one of the major hindrances to the provision of adequate services to them. In fact the 1987- 88 Review of the Supported Accommodation Assistance Program (the SAAP Review') basically accepted this. It must be acknowledged that part of the complexity in the administration of SAM' results from lack of clarity over the roles and responsibilities of the Commonwealth and State/Territory governments in the welfare area, in particular in joint or cost-shared programs.' As the Victorian Government submitted to the Inquiry: ...the lack of policy, and agreed set of roles and responsibilities of Commonwealth and State Governments, in relation to youth homelessness, [is] reducing the effectiveness of current responses...' Lack of Agreed Policy Objectives 24.10 As one result, the Inquiry found, there has been a failure on the part of both the Federal and the State and Territory governments to clearly identify a set of agreed policy objectives in the provision of services to homeless children and young people. In 1985 the Senate Standing Committee on Social Welfare criticised the Commonwealth's role in child and youth services as follows: ...the Commonwealth has failed to make any clear statement of national policy regarding its role and responsibility vis-a-vis the States and Territories, in the long-term planning and provision of welfare programs for children and families.' The recent withdrawal of the Commonwealth from the Family Support Program (see Chapter 9, Family Poverty and Isolation) is an indication of the lack of continuity in government policies in this area. Moreover, there is no State or Territory which has responded with carefully considered and comprehensive programs to the problems and needs of homeless children and young people. 24.11 We agree with the Victorian Government that there is a need for Policy development: further focussing of effort and increased co-operation between the Commonwealth and State Governments, through joint policy development, agreement about roles and responsibilities, and work on preventing family dysfunction, is necessary to effect lasting improvements in responses to youth homelessness.' As the SAAP Review argued: ...in the establishment of a complex program, there should be agreement among all parties on the major program-wide management priorities.' Failure of Planning and Co-ordination 24.12 The 1976 Coombs Royal Commission on Australian Government Administration recognised that the co-ordination function presents 'some of the most difficult problems of Australian government administration'." As a result: ..,responsibility for the planning and management of these programs is. dispersed between federal, State and local levels of government and innumerable voluntary groups and, with the various levels of government, between departments, commissions and other agencies. This leads not merely to a tendency to duplicate facilities and staff, and to competition for scarce resources, expecially in newer community based programs. It also creates, both among clients and administrators, vested interests in the characteristics of individual programs, and in the authority, security and opportunity provided by the organisations which administer them. This dispersal of responsibility makes it difficult to determine policies in closely interlocking fields and practically impossible to assess the outcome of the whole complex of programs, or indeed of its component parts .12 In the Inquiry's view, this succinctly describes the fundamental problem with the current responses to the situation of homeless children and young people. 24.13 Many witnesses criticised the lack of planning and co-ordination of services for homeless children and young people. The Queensland Government, in its submission to the Inquiry, acknowledged: In general the response to the needs of homeless youth has lagged behind [the demand]. Needs have been dealt with individually as they have been recognised and, often, in isolation from other needs. The result is a large system of programs which caters for a variety of needs and which is largely uncoordinated. A number of gaps and inadequacies can be identified in the current system. Attention to these problem areas will considerably improve the life chances and opportunities of the young homeless." In Western Australia the Inquiry was told: There is no clear picture of the size of the homeless youth population in Perth or in Western Australia.. No comprehensive study has been undertaken to identify the size, the distribution, or the nature of the problem in this State.14 - -24.14--The- South-Australian Government also criticised the 'lack of co-ordination and integration between service providers' stating that 'this has resulted in piecemeal service provision and some duplication of resources', the 'duplication of programs and effort in providing services to young people', 'competition for resources', 'ownership of clients and siege mentality' and a 'lack of definitive information concerning the scope of needs and issues relevant to young people frequenting the inner-city area'." The results, most importantly, include inferior service delivery to homeless children and young people and those at risk of becoming homeless, and a failure to extend adequate protection to them.'6 24.15 The 1987-88 SAAP Review also found that 'there is a lack of cohesion in the planning and management of SAAP'.'' Indeed, there is evidence that there have been widely differing priorities at work among the various partners which have made it difficult to measure the overall progress of the program." Lack of Standards 24.16 The failure of the two senior tiers of government to agree on their responsibilities in this area has also resulted in a failure to establish standards for the design and delivery of services and a failure to set up monitoring mechanisms to ensure that these standards are implemented. The Inquiry was told that there is little or no monitoring of Youth Supported Accommodation Program services and that there is a need for: an evaluation of the services and of the provisions given by those services, because in my experience. ..quite a few services say on paper that they are doing extremely good service to the community when, in actual fact, when you refer people to those services, they get less than what they deserve.19 Inadequate Resources and Other Support 24.17 Underfunding is a major problem, identified by the South Australian Government in its submission to the Inquiry and by many other witnesses. The Victorian Government, in its submission, also noted that services for homeless young people and for families under stress are often 'subject to significant resourcing constraints 20 In all States the Inquiry received evidence that funding under the Youth Supported Accommodation Program is quite inadequate to provide reasonable staffing levels and necessary staff training.21 Obviously inadequate resourcing must restrict the services which can be offered to homeless children: The evident lack of funding, staff resources, and, in some cases, appropriate skills has led the majority of sponsors to increasingly accept only those tenants who are demonstrably independent. These limitations have made it increasingly difficult for: (i) sponsors to house youth in need of continuing support, and (ii) for this youth group to gain access to housing.22 24.18 The Inquiry also received evidence that apparently logical bureaucratic demands can operate illogically in practice, and in such a way as to drain the resources (often voluntarily committed) of community organisations. One submission drew attention to: ...the need for government departments to acknowledge that provision of service at the community level does not fit neatly into bureaucratic pigeonholes. The Victoria Park C.Y.S.S. had to establish a completely different but essentially duplicate management structure for the Accommodation Service due to the requirements of the two different funding programmes. This resulted in substantially the same people holding two consecutive meetings in the same place rather than a comprehensive management of the one service, albeit with different areas of focus.23 Inadequate Training and Conditions for Workers 24.19 The extent of the pressures faced within existing youth refuges, and the range of skills which are likely to be called upon, can perhaps be envisaged from the following evidence, repeated and substantiated to the Inquiry, albeit in different words, on many occasions: Within the refuge, because there are not specialist services, you get psych-affected young people, people willing to wield knives, to physically threaten and to carry out those threats, sex offenders with 13-yearold incest victims...you do not get follow-up- workeis. So the workers constantly have to beat their head against a brick wall...They do that for three months, then they see that young person go, they do not know what happens to them, they cannot provide ongoing support, they just have to let go and just wait until the young person comes in the front door again.24 24.20 The Inquiry was told that there is a need: ...to look at the skills that are needed within young people's services and an evaluation of those skills...25 The Inquiry was deeply impressed by the commitment of many of the youth workers who appeared before it and by their concern and respect for the young people with whom they were working. We were told, however, that many workers lack even the most basic training and, as a result, lack the skills and understanding to provide adequate services to those children and young people. A witness in the A.C.T. stated: I am appalled at what support there is given by the community and the [management] committees and the government in terms of finance to back support for these young people who are working with others...Very often the evaluation of skills is appalling or not done...Very often there is no funding for training to do that.26 In Victoria the Inquiry was told: ...there really needs to be adequate preparation of staff who are going to work in services and I think that this would mean a more broadly based or a more balanced curriculum in youth worker training institutions here in this State.27 24.21 The Inquiry was told that training costs are allowed under the Supported Accommodation Assistance Program but that most services spend well under 5% of their operating budgets on training: So what happens is that training is conducted very much on an ad hoc basis. Workers are not paid to attend training. It is not given a very high priority by and large.28 The Inquiry was also told that: The importance of proper training relates to the quality of service young people deserve and the efficient use of fesources already to hand. Turnover of workers is high in this field and adequate inservice training can go a long way to improving job satisfaction and the quality of work to youth housing workers.29 24.22 The issue of training for supported accommodation workers was thoroughly investigated by the SAAP Review. Indeed, a special report on the question was commissioned.30 As a result of its deliberations, the Review recommended, among other things, that there should be training co-ordinators in each State, paid training leave for all SAAP workers, and consideration given to accreditation. Two training packages recommended were 'Stress Management' and 'Client Assessment and Referral Skills'.31 All training programs should: ...ensure that all workers develop appropriate cultural awareness, and the capacity to involve users and protect their rights.32 24.23 A number of criticisms were made of the conditions for refuge and other accommodation service workers. For example, the Inquiry was told that the allowable salary has been increased recently but that management committees are not obliged to pay the full amount.33 Moreover ...people who work in youth accommodation facilities are often expected to stay overnight. Very few people get paid to sleep over.34 In addition, there is often no recognition of qualifications or increased levels of responsibility in terms of increased salaries. 24.24 In some States, evidence was given that these conditions and pressures are severely exacerbated by understaffing. In Queensland, for example, the Inquiry was told that most accommodation services operate on a staff to resident ratio of one to ten, and sometimes of as much as one to 20." Low staff ratios are also a problem in South Australia. Indeed, the SAAP Review identified unrealistically low staffing levels in 24 hour YSAP refuges across the nation as a continuing problem.37 24.25 One result of such understaffing is severe isolation of individual workers, not only from other services a problem which is endemic in this field but from their management committees and less formal community supports. ...we need to look at the networking system that workers need to be able to tap into. A large number of workers are tied up with just surviving each day in shelters, without any network knowledge, any knowledge of the resources out in the community. They just do not have the time to build that in. They are not given support within their whole working community by their peer groups because there is no time for meetings, there is no extra time to just spend debriefing.' 24.26 Understaffing also compounds the significant stresses generated by caring for homeless youth and therefore further exacerbates the extremely high rate of 'burnout' among youth workers (especially, perhaps, refuge workers) and the consequent rapid turnover of staff. This is exploitative of the staff involved and can be quite damaging to their young clients who are often seeking some continuity in their relationships. It also means that valuable accumulated experience is lost and there is time wasted 'breaking in' (since it is clear that there is often little actual training) new staff. As the Inquiry was told: ...very motivated and talented people work for six months to a year in the youth accommodation field, burn out badly, their experience is lost to the field and the ultimate losers are the young people...39 As the SAAP Review acknowledged, 'experienced and stable staff are a crucial determinant of service quality'.40 24.27 Management committees, too, the Inquiry was told, need training and support. This is especially so because the quality of management profoundly affects the service ultimately provided to residents and clients. At present it is very often the case that Workers do not get clear directions from management committees. Management committees are more about controlling their workers than supporting them in many cases.41 24.28 It is youth workers who, when a child is detached from his or her family, are, or should be, responsible for attempting to reunite that child with the family or for securing and protecting the rights of that child. There has been little if any clarification by services and SAAP committees as to the legal obligations of youth workers to children and young people, and to their parents. (In Appendix E we set out the advice commissioned by the Inquiry on these issues.) 24.29 The failure to ensure adequate selection of qualified people to staff positions and to provide adequate training is, therefore, a fundamental failure on the part of funding bodies the State and Federal governments to protect the rights and interests of children. It was put to the Inquiry that homeless children and young people are effectively, if indirectly, denied their most basic rights as a result of the inadequate training, payment and conditions of workers which can mean that workers are unable or unprepared to attempt to reunite children with their families, where this is appropriate, or link them with the services they need.42 As the SAAP Review recognised: The purpose of the [SAAP] program is to obtain the best outcomes for clients. Its success depends primarily on 'frontline' service workers, who must assist clients through support, assessment and referral. This requires that all measures of service level quality and performance must be aimed [at] assisting and supporting the services and their workers to do their job better. All resources should flow to this end.43 24.30 The SAAP Review recommended that: ...salary funding should allow for a recommended minimum salary rate, which organisations should be committed to paying, or return the difference if they do not pay the recommended amount.44 It was further recommended that: ...State and Federal governments should provide adequate funding for other benefits such as shift allowances, overtime, penalty rates, holiday and study leave and relief staff.45 ROLES OF THE GOVERNMENT AND NON-GOVERNMENT SECTORS The Commonwealth 24.31 While the welfare of children is, as between governments, primarily the responsibility of the States, the Commonwealth has demonstrated a growing interest and involvement. Examples have been mentioned in other chapters. They include the Commonwealth's initiation and funding of the Youth Services Scheme and then the Youth Supported Accommodation Program; Federal income support payments for families with dependent children and, since 1986, for detached children; the Commonwealth's establishment of and funding for the Family Support Services Scheme and the Family Support Program; and the Commonwealth initiatives in the provision of child care. 24.32 In 1987 and 1988, the Federal Government has taken new initiatives which arguably represent a significant redefinition of its responsibilities towards children and young people. The Prime Minister's 1987 commitment to the elimination of child poverty by 1990 led to increases in income assistance to low income families with dependent children the Family Assistance Package. This renewed commitment to children, however, runs contrary to another over-arching Federal trend to return programs and funding responsibility to the States. In 1988, for example, the Commonwealth withdrew from the Family Support Program. In 1986, funding for the Participation and Equity Program in schools was reduced and the Program ended with the Commonwealth's withdrawal in 1987. Recent disputes concerning responsibility for the Emergency Relief Program are another example. 24.33 In summary, recent years have seen the Federal Government assuming a greater responsibility, but still somewhat ambivalent about its role in assisting children and young people. In October 1988, however, the Federal Government reiterated its commitment to child and youth services in announcing its Youth Social Justice Policy a commitment: ...to strengthening its partnership with the non-government sector, other levels of government and the community in building coherent, co-ordinated and complementary responses that provide young Australians with the best chances for a productive place in Australian society.46 24.34 The Inquiry considers that while it is the States which still clearly have, and must effectively discharge, the greatest role, the Commonwealth must accept ultimate responsibility for the welfare of our nation's children and young people. Indeed, this is an obligation which the Federal Government has itself acknowledged in its child poverty commitment and in the Youth Social Justice Policy referred to above. Moreover, the Commonwealth has primary responsibility for overseeing the protection of children's rights set out in the Declaration of the Rights of the Child which the Commonwealth supported and subsequently incorporated in Federal law. To its credit the Federal Government (after consultation with the States) has also been one of the prime movers in the preparation of a new international Convention to improve legal and other standards for the protection of children and will acquire significantly strengthened obligations towards children when that Convention is ratified. 24.35 By incorporating the Declaration of the Rights of the Child in Federal law, the Commonwealth has accepted an obligation to ensure that the rights of children are observed. This means that when the primary means of caring for children (the family) fails them, the Commonwealth is obliged to ensure that mechanisms are in place for their care and protection. The Senate Standing Committee on Social Welfare argued strongly in 1985 for a significantly expanded role for the Commonwealth in the child welfare area. It argued that, with the passage of Federal legislation incorporating the Declaration and the International Covenant on Civil and Political Rights, 'the Commonwealth acquired a clear mandate for the promotion at the national level of the well-being of the child and the stability of the family'." The role we envisage for the Commonwealth, therefore, is that of initiating effective programs, setting standards and establishing monitoring mechanisms, overall co-ordination, and, in certain areas, negotiating shared funding. The States and Territories 24.36 State and Territory governments have undertaken broad responsibilities and assumed wide powers to protect the welfare of children under child welfare legislation. This includes powers to take over some or all parental responsibilities where this is judged to be necessary in the best interests of the child. However, existing legislation does not impose comprehensive legal duties on States or welfare authorities to provide assistance to children and families in need. In general, State legislation gives State authorities powers of intervention rather than recognising children's rights to assistance and protection. 2437 An increasing number of children who fall within the scope of child welfare legislation, as children in need of assistance or protection, are falling outside the scope of the protection and assistance actually provided. The level of substitute care being provided has been diminishing, in most cases without a corresponding increase in the provision of more appropriate forms of assistance. As the Evaluation of the Youth Supported Accommodation Program found: In practice it seems that for the most part there are not clear distinctions or boundaries between the YSAP program and the States' welfare programs and that merely because a child can be deemed to be one for whom the State has some statutory responsibility does not mean that they will of necessity be identified and placed in a State run or funded service rather than a YSAP service." Local Governments 24.38 In Australia, local governments are established by State legislation and receive funds for the provision of local government services from rates and from the State and Federal governments. In all States and Territories, however, local governments particularly with respect to 'human services' are empowered rather than required to provide services. This leaves each authority free to determine as directed by its electorate what services it will supply. 24.39 Largely due to their traditional function of supplying property-related services (road repair, sewerage and water supply, and the like), local governments have been slow to move into the areas of housing provision and health and welfare services. State governments have not, on the whole, encouraged local governments through the provision of funds to expand into these areas, nor has the Federal Government. Notwithstanding this, local governments have begun to recognise the need for local initiative and planning and for local co-ordination of services. Social planners and community services officers have been appointed by some authorities. Some other examples, directly impacting upon the needs of homeless children and young people, were described to the Inquiry. Warringah Shire Council in New South Wales provides a small annual grant to enable the Warringah Youth Refuge to employ a part-time Youth Accommodation Officer to assist young people on leaving the refuge.5 24.40 Also in New South Wales, the Wollongong City Council has become involved in addressing the needs of the region's homeless children, through its community housing officer: ...Council has...been supporting NOISY...a network of Illawarra housing services for youth. NOISY has tried to pull together all services involved in housing young people on a regular basis roughly 6- weekly, 8-weekly intervals -- to discuss policy differences; to discuss the needs of youth. At the moment we are looking at some sort of combined way of collecting data so that, across all services, we have consistent data on youth homelessness... I think that NOISY has assisted in overcoming some of the differences between the youth housing services and in producing a more united front...51 24.41 Fitzroy Council in Victoria extends its concerns to housing in the municipality generally. In the mid-1970s, the Council established the Fitzroy Collingwood Accommodation Service Co-operative Ltd 'to mobilise existing community resources to provide emergency, temporary or permanent accommodation and to record and evaluate so as to obtain a clearer picture of the accommodation needs of Fitzroy'." Shortly thereafter this Service was involved in the establishment of the first housing cooperative in Australia: the Fitzroy Collingwood Rental Housing Association. Over time, the Association has moved beyond the provision of emergency accommodation and, more recently, beyond low cost housing provision to a position where it focuses on influencing State government policy on behalf of the low-income residents of the municipality. One of the groups on whose behalf the Association has lobbied is homeless children and young people. 24.42 Other ways in which, consistent with its traditional purposes and nature, local government could be more active in meeting the needs of homeless youth include: locating suitable vacant land for new housing development; encouraging State housing authorities to re-develop run-down or under-utilised public housing; encouraging more medium density development in planning regulations; supporting local community organisations attempting to meet local housing needs; and leading the way in advocacy, policy development and co-ordination of local housing initiatives." Effective outreach programs to assist homeless youth would also benefit both in planning and execution from the support of local government. 24.43 It is clear that in all States there are gaps in service provision which local governments could assist in filling. It must be recognised, however, that there is a wide disparity among the States. This is well-illustrated in the following comparison between Victoria and Queensland: In Victoria, the existence of Local Government based service systems in some fields ensured it became the natural vehicle for new programmes and funding within these fields. Equally the State Government has more clearly recognised Local Government as a base for human services and has, at times, actively encouraged that development, often by way of providing subsidies for particular activities. Queensland on the other hand, has a long tradition of services provided through voluntary/non-government groups which became the basis for service development rather than Local Government. Few subsidies from either Commonwealth or State sources have historically been available to Local Government in that State." 24.44 Local government authorities which wish to do so can apply, in the same way as a community organisation, for funds under the Local Government and Community Housing Program (LGCHP) of the Commonwealth-State Housing Agreement, the Youth Supported Accommodation Program and the Community Training Program. No doubt there are others which are relevant. Few local government authorities have done so although a number have made grants of land to community groups for LGCHP projects. 24.45 Local governments which have taken initiatives such as those described above, could usefully be encouraged to expand their involvement. Those which have not been involved must be encouraged to begin. ...there needs [to be] more education [with] regard to local government for them to understand what actually youth housing programs there are available and what youth housing needs [are].. .it is a necessity for all local governments to have a youth housing policy." One of the functions of the Local Government Development Program of the Commonwealth Office of Local Government, established in 1983, is to encourage innovation in local government. No area more urgently merits its attention than that covered in this Report. Community Organisations 24.46 As mentioned in Chapter 8, Families Under Stress, a number of the larger welfare agencies have significantly cut back their role in providing substitute residential care to children and young people. The total number of beds provided has dropped considerably as larger institutions have been closed down in recognition of the fact that these are generally inappropriate to the needs of children. While willing to replace institutions with smaller group homes, the welfare agencies have been unable to attract the additional government funding to do so. They are also not predominant providers of accommodation services to homeless youth, although many such as the Salvation Army and the various City Missions have continued to provide some excellent services. 24.47 Instead, most crisis accommodation services and many longer-term programs are provided by small, very new community organisations which are not linked to the larger, well established welfare agencies. These new organisations tend to have relatively weak administrative infrastructures and to rely heavily on voluntary labour. The Inquiry found that these smaller services are more vulnerable to funding cutbacks than are the larger organisations which, in any event, could sustain some services from their larger budgets in times of funding restraint. The smaller services, moreover, do not have the fund-raising capacity (outside the government sphere) that the larger, established organisations have developed. Their constituencies are considerably smaller. 24.48 On the other hand, as discussed in Chapter 18, Accommodation Services, community-based services, when adequately resourced, are able to deliver individually-designed service packages to young people in need, to work closely with them and their families over a prolonged period and to provide services in the local area so that the young person can maintain his or her local network. Such services can also be made flexible enough to offer a wide range of services, thus meeting all or most of the service needs of each client. 24.49 The SAAP Review found that one-half (51%) of existing crisis accommodation services surveyed were 'community managed' while one-fifth (19%) were operated by religious organisations and 14% by collectives and co-operatives." It was recognised that the community management model has 'the capacity to represent a range of local groups and contacts'.' However: Many services.. .reported problems in attracting committee membership." Chapter 18, Accommodation Services, describes a number of staged or integrated community-based accommodation and related services (which the Inquiry considers clearly superior to refuges) and provides some information about their management and philosophy. Other services for homeless children and young people are described in Chapters 19 (health services), 21 (legal/advocacy services) and 23 (job training programs). The Business Sector 24.50 The corporate sector in Australia is becoming increasingly aware of the advantages which accrue from establishing a profile as a good corporate citizen by involvement in community affairs. In general, this sector is not currently consulted or involved in any significant way in providing assistance for our homeless children. Throughout the Inquiry, however, the Chairman held private discussions with a number of business houses and it is clear that some are willing to assist, if an effective way can be found to involve them. It must be said that we, in Australia, have been slow to encourage our business community to contribute to their capacity on social issues. Our imagination and innovation have rarely gone beyond soliciting donations and applauding the excellent efforts of the various service clubs, such as Rotary, Lions and Apex. 24.51 There are a number of ways in which the business sector could, and must be encouraged to, make an effective contribution to assisting our homeless young people. At a general level, business people in each area should be approached to contribute their views and time to community-based groups such as those described in Chapter 18, Accommodation Services. This is necessary, on the one hand, to broaden the base of community understanding and tangible support for the work of these groups and, on the other, to lessen the extent of community hostility which many youth accommodation services encounter. At a more specific level, the involvement of our business men and women opens up opportunities for job placement and will add a dimension to outreach, follow-up and referral services which is presently lacking. 24.52 At the most basic level, major business houses which have the resources should be encouraged to 'sponsor' one or more homeless children into the workforce for a period of 12 months or more." This need not be dependent on government subsidies being available although theoretically these exist.6 The problem with them is that the difficulties faced by homeless young people are such that an additional subsidy is not likely to convince most employers who have not otherwise been involved to give a homeless young person a chance. Nor are a few extra dollars going to sensitise an employer to the adjustment difficulties which a previously unemployed and homeless adolescent is likely to encounter.61 24.53 At a more strategic level, major business houses must be encouraged to contribute expertise, training and technology, as well as money, to assist our homeless young people into a job and a meaningful position in our society. Our business leaders are also a valuable resource to assist in the task of effective community education and informed response (their own as well as others) to the needs of our young people. THE PROPOSED NEW ARRANGEMENT 24.54 The Inquiry considers, having regard to the evidence outlined in this Report,62 that the Commonwealth must take the initiative in the development of a comprehensive set of services for homeless children and young people. A revised Commonwealth-State Arrangement is urgently required to establish clear standards and objectives for the provision of a range of integrated services for homeless children, together with an effective system for monitoring their implementation. The Partners 24.55 The Arrangement should be negotiated between the Commonwealth and each State and Territory government in consultation with the local government and community sectors. Each should be consulted as to the goals and standards to be set, in determining the appropriate levels of funding and in the development of the co-ordination and monitoring mechanisms. As these sectors will be closely involved in delivering services at the local level, it is both appropriate to benefit from their knowledge and experience and desirable to ensure their understanding and co-operation from the outset. 24.56 The Program, then, must operate as a partnership. The three levels of government must be involved: There is a need for the three spheres of Government to clarify the nature of their relationships and their separate responsibilities in human services.. .there is a strong case for these relationships to be based on the. principle of 'partnership' as opposed to independent and autonomous action, or with one sphere acting as the agent for another....the planning, policy development and implementation of human service programmes should be characterised by co-operation between the spheres. This recognises firstly, that all three spheres of Government have a responsibility and a capacity to respond to human services needs. Secondly, that each sphere of Government has a different relationship to human service needs and especially that it is essentially impractical for central Governments to perform functions at a local level. Thirdly, it recognises that each sphere has resources available to it which can be committed to human service activities, and that only through co-operative processes can these be committed and used in the most productive ways." 24.57 As stated, in the view of this Inquiry, it is imperative that the community services sector also be effectively involved. The Inquiry was told that governments should: ...implement the rhetoric of equal partnership between government and non-government. The non-government sector is not treated as equal; we are not resourced anywhere near where we should be, and more often than not, are treated as the `poor cousins'. Along with this is the issue of 'consultation' between both sectors. Basically a non-event. Again, we are not allowed realistic input into a lot of policy areas, maybe because the non-government sector is saying things that are too true, and have been saying them for too long." It is difficult to imagine an area in which the community's effective involvement is more critical than it is in assisting our homeless children. In our view, it is essential that governments recognise the vital contribution of community and other non-government organisations in the implementation of government policies. While funding is contributed by governments, money is not the only 'valuable' contribution involved. Community organisations contribute knowledge, local concern and effort, and effective implementation mechanisms. These contributions are at least as important as money to the success of any program for homeless children. 24.58 RECOMMENDATION 24.3 The Inquiry recommends that, under the new arrangement, the Commonwealth's roles should be: ensuring the expansion of preventive services; monitoring the quality of service provision under the Program at a national level by establishing clear guidelines for the development of service contracts; monitoring the achievement of objectives by setting clear indicators for describing and measuring those objectives (these should be kept as simple as possible);" encouraging innovation by supporting selected pilot programs and models and developing guidelines for the implementation of successful models; encouraging efficiency in administration by establishing and, where appropriate, funding training programs; commissioning and funding research on needs and service models; and approving and funding projects jointly with State or Territory governments and in consultation with community representatives. This view of the major Commonwealth roles has much in common with that recommended by the SAAP Review.66 24.59 RECOMMENDATION 24.4 The Inquiry recommends that the States' and Territories' roles should be: developing State/Territory objectives consistent with national objectives and monitoring their achievement; development of service contracts with each service provider which are consistent with national guidelines; supporting regional co-ordinating mechanisms (especially with information); promoting and funding training and the exchange of information between services; encouraging the participation of communities and community representatives in the assessment of local need and in the development and piloting of new service models; and approving and funding projects jointly with Federal officials and in consultation with community representatives. Again this statement parallels the recommendations of the SAAP Review in most respects." 24.60 RECOMMENDATION 24.5 The Inquiry further recommends that each State and Territory establish, either in its Premier's/ Chief Minister's Department or as a unit directly responsible to the Minister in charge of welfare services, an Office of Youth Affairs. Consistent with the preceding recommendation, this Office would have the following functions: overall planning and co-ordination of youth policies; overall co-ordination of State activity and State-funded activity in the areas of housing, education, job training, employment, financial support, and health and support services for youth; overall co-ordination to ensure rational and efficient delivery of services to children and youth, whether in families or not; development of innovative and more effective programs particularly for the prevention of homelessness; facilitation of networks and information dissemination among youth services and among young people; development and funding of training for youth workers and related sectors; overall administration of youth programs; and overall supervision of project funding. 24.61 RECOMMENDATION 24.6 The Inquiry further recommends that local government authorities be encouraged to participate more actively in meeting the needs of homeless youth. Some of the roles which local authorities are equipped to undertake have already been mentioned. In the assessment of local need, in the encouragement of community initiative, in the provision of administrative support and in advising on the most effective targeting of outreach programs, local governments can play a particularly useful role. They may also be particularly well-sited and well-suited to organise information dissemination to service providers and from service providers to regional co-ordinators and State or Territory and Federal administrators. Scope 24.62 The new arrangement must not be confined in its scope to nor should it be primarily directed to the provision of crisis accommodation. RECOMMENDATION 24.7 The Inquiry recommends that a full range of accommodation options, with an emphasis on integrated medium to long-term supported and unsupported accommodation, should be the central objective. Other services for homeless children and young people should be integrated with this accommodation network, including access to financial support, job training and placement programs, life skills training, counselling, health care, advocacy and legal services. Information, referral and outreach services should also be incorporated. The role of outreach services in becoming aware of and properly addressing the needs of homeless children is critical, and must have local government support to be effective. Guidelines and Sanctions 24.63 The Commonwealth has, uniquely, the capacity to establish, implement and monitor standards in the provision of services and to ensure accountability through its funding mechanisms. 24.64 In the case of the provision of residential care to aged persons, for example, the Commonwealth has established a program of standard-setting and monitoring of a kind which is now required in the field of service-provision to homeless children and young people. The 'Quality of Life' standards developed by the Federal, State and Territory Governments, in consultation with service delivery organisations, relate to the quality of care and the quality of life in nursing homes. The standards were an attempt to set out the care and lifestyle objectives which the nursing home industry should strive to achieve for all residents. The standards are used as one basis for monitoring the performance of nursing homes. At the same time, individual nursing homes are left with considerable leeway as to the design of homes, service provision methods and work practices which they adopt to achieve these objectives. The standards specify outcomes rather than inputs or processes. In this way, flexibility and innovation are encouraged. In the first instance the standards are intended to be met voluntarily, governments adopting 'a consultative and supportive approach to assist homes to comply'." In the longer term, however, there is the possibility that the perpetuation of poor standards will result in government action to force improvements to be made." 24.65 RECOMMENDATION 24.8 The Inquiry recommends that the standards to be developed for all services to homeless children and young people must take account of the following: the need to provide every assistance to children and their families to enable them to live together where this is possible, consistent with the child's right to be protected from cruelty and abuse; protection and promotion of the rights of children including their rights to adequate care, protection from exploitation and abuse, and enjoyment of their other basic human rights; the obligation of the state, or agencies funded by the state, to provide adequate care to children whose families cannot or will not do so; and the need to provide this care through a network of integrated services with agreed aims one of which should be to assist each child, according to his or her needs, to become a fully-participating member of our community. 24.66 RECOMMENDATION 24.9 The Inquiry recommends that standards for the provision of accommodation services must ensure that all residents enjoy secure and adequate accommodation and must take into account the special needs of individuals. In particular, services must provide for the additional security needs of young women, meet the special requirements of incest victims, pregnant women and young mothers, address the particular needs of those with intellectual and physical disabilities and the mentally ill, and be sensitive to ethnicity and Aboriginality. 24.67 鱨վ under the age of 16 are especially vulnerable when detached from their families. In addition, they are ineligible for Federal income support. Services must meet their needs for additional protection and for more intensive counselling and guidance so that they can develop and mature in as normal a manner as possible. Family reconciliation wherever possible and appropriate is especially important for this age group. Special measures must be put in place to ensure this is fully explored and if family reunion is not possible, to ensure these children are adequately supported either by direct individual payments or by payments to agencies which undertake their support. The very young are also those most likely to require support services and advocacy to be provided in a fully integrated fashion, as their knowledge and understanding may not be sufficient to allow them to seek out and choose services for themselves. 24.68 RECOMMENDATION 24.10 The Inquiry recommends that State and regional objectives must be based on the need to move all residents out of crisis refuges as quickly as possible either back to their families or into more permanent, secure accommodation suitable to their needs. For the foreseeable future, all States and regions must focus on: a significant increase in family support and reunion services, which may include short-term community placement programs; a significant increase in the quantity and quality of long-term youth housing; and a significant increase in detached housing support services. Training and Conditions of Service 24.69 In the Inquiry's view, proper training programs for youth workers are the most urgent priority, but members of management committees may also require training. There is also a need for clearer and more detailed guidelines for management committees. These would not be detailed in such a way as to inhibit flexibility in service responses, but would be designed to ensure that workers enjoy certain minimum conditions and salaries. The Victorian community services award particularly commends itself to the Inquiry as an effective basis for establishing an adequate minimum standard of working conditions. Co-ordination 24.70 Co-ordination involves the exercise of power by the co-ordinating authority over the functional authority. The Coombs Royal Commission argued against externally imposed discipline, with its threat of coercion, because of the risk to co-operation and, potentially, to the entire performance of the function.7 Instead, co-ordination should be voluntarily accepted, if at all possible. 24.71 In the Inquiry's view, youth services throughout Australia having experienced at least five years of operation in an essentially unco-ordinated environment are now ready to accept co-ordinating mechanisms which, while they may involve radical changes to individual services, will result in more efficient and rational distribution of services according to need.' Perhaps more importantly, the urgency of the problems faced by our homeless children demands it. 24.72 Co-ordination of youth services on a regional basis (as well as on a local basis) will be central to the success of the Program we envisage. There must be regional co-ordination of all accommodation services and also of all services which target homeless children and young people. There must also be regional co-ordination to establish consultation networks covering those services and also all other services which could assist homeless children and young people. In its submission to the Inquiry, the Tasmanian Government recommended that: Co-ordinating access mechanisms be established and linked between welfare provided shelter and accommodation services and other specific employment, education and training opportunities for young homeless people." 24.73 Co-ordination mechanisms must be adequately funded for each region, and co-operation with the relevant mechanism must be a pre-requisite for funding approval. The tasks of each regional coordinating mechanism should include: raising community awareness of the existence and needs of homeless children and other disadvantaged youth and stimulating community initiative and involvement; linking of services; monitoring needs in the region; disseminating information among services; establishing regional referral and data collection systems; involving agencies in policy development; facilitating regional consensus on service aims (consistent with national and State objectives) including by promoting awareness and discussion of those objectives; and supporting local co-ordination efforts. 24.74 We consider that no single model of co-ordination could or should be imposed, although greater consistency is probably achievable among regions than among localities. A regional co-ordination model which impressed the Inquiry has been implemented in seven of 18 SAAP-funded regions in Victoria. Victorian youth housing groups have developed extensive statewide and regional networks that provide support and information networks, referral systems, co-ordination of planning and service development and grassroots involvement in policy development. Of the 18 regions in Victoria, seven have community managed Regional Youth Housing Co-ordinators, funded under the Youth Supported Accommodated Program. It is essential that funding for positions in the remaining 11 regions be made available, as it is clear that regional planning and integration of services ensures the provision of high quality and responsive services." It was submitted that: ...regions employing a regional co-ordinator have developed more comprehensive and better linked youth housing services." Such 'regional planning and integration of services', it was submitted, 'ensures the provision of high quality and responsive services'.75 CONCLUSION 24.75 This new Program is, in our view, essential. The present system, concentrated heavily on crisis refuges is not working. In some areas it is actually prejudicing the future of our children rather than protecting them. It should be clearly understood, however, that the preventive services, support services, outreach efforts, legal reform, assistance for our teachers and other action which we have outlined in other chapters must also be undertaken. The responsibility is ours. The challenge is to us all. Notes H. Burguess, Committee for the Establishment of a Special Youth Residential Facility (NT), Transcript at 1599. D. McConackie, Wollongong City Council (NSW), Transcript at 1865. Senate Standing Committee on Social Welfare, 鱨վ in Institutional and Other Forms of Care (Parliamentary Paper No. 324/1985) at 80. F. Maas, Australian Institute of Family Studies, Transcript at 916. Child Welfare Practice and Legislation Review, Equity and Social Justice for 鱨վ, Families and Communities (1984) at 104. Supported Accommodation Assistance Program Review, Homes Away From Home (1988) at 156. S.120D, Victorian Government, at (ii). Senate Standing Committee on Social Welfare, op cit,at 80-81. S.120D, Victorian Government, at (ii). Homes Away From Home, op cit, at 111. Royal Commission on Australian Government Administration, Report (AGPS, 1976) at 356. Id, at 326. S.120A, Queensland Government, at 19. C. Keogh, Council of Social Service (WA), Transcript at 655. S.120C, South Australian Government, at 37. See also, G. McLimont, Homeless Persons' Council (Vic), Transcript at 957. Homes Away From Home, op cit, at 111. Ibid. D. Cook, Transcript at 1584. S.120D, Victorian Government, at (i). See, eg, M. McGregor, SA Department for Community Welfare Port Augusta, Transcript at 1403; D. Mugford, Salvation Army (SA), Transcript at 1320. E. Wilkinson and G. Vickas, Beyond Refuge: A Study of Longer Term Housing Projects for Youth in Inner Sydney (1984) at 55. S.44, Victoria Park Youth Accommodation (WA), at 4-5. C. Crowe, Youth Accommodation Group (ACT), Transcript at 518. D. Cook, Transcript at 1584. See also, S.106, Youth Affairs Council (SA), at 4. D. Cook, Transcript at 1584. G. McLimont, Homeless Persons' Council (Vic), Transcript at 952. C. Morgan, Youth Sector Training Project (Qld), Transcript at 431. S.53, North Queensland Youth Accommodation Coalition, at 8. K. Barnett, Factors Affecting the Development of a Training Strategy for the Supported Accommodation Assistance Program (1987). Homes Away From Home, op cit, at 101-102. Id, at 101. Id, at 99. C. Morgan, Youth Sector Training Project (Qld), Transcript at 4 34. See also, S.44, Victoria Park Youth Accommodation (WA), at 4. C. Morgan, Youth Sector Training Project (Qld), Transcript at 432. D. Mugford, Salvation Army (SA), Transcript it 1320. Homes Away From Home, op cit, at 99. D. Cook, Transcript at 1585. C. Morgan, Youth Sector Training Project (Qld), Transcript at 432. Homes Away From Home, op cit, at 100. C. Morgan, Youth Sector Training Project (Qld), Transcript at 432. Id, at 430; B. Grahame-Higgs, Barwon 鱨վ's Welfare Association (Vic), Transcript at 1240. Homes Away From Home, op cit. at 92. Id, at 100. 45. Ibid. The Hon P. Duncan, Minister for Employment and Education Services, 'Social Justice for Australian Youth', Paper presented to Youth Affairs Council of Australia Congress (Canberra, October 1988) at 1. See generally, Chapter 4, The Rights of the Child. Senate Standing Committee on Social Welfare, op cit, at 25. J. Schwager, Youth Supported Accommodation Program (SAAP Review Working Paper, 1988) at 34. S.43, Council of the Shire of Warringah (NSW), at 2. D. McConackie, Wollongong City Council (NSW), Transcript at 1865. J. Wills, Local Government and Community Services: Fitzroy - A Study in Social Planning (Hard Pressed Publications, Melbourne, 1985) at 123. See Elizabeth City Council (SA), Housing Young People in Elizabeth (Cwth Office of Local Government, 1986) at 135-136. Task Force of the 1986 Local Government Ministers' Conference, Community Development, Human Services and Local Government (1987) at 137. I. Vett, Inner East Youth Accommodation Support Service Project (Vic), Transcript at 1010. Homes Away From Home, op cit, at 104. Ibid. Ibid. There is one outstanding precedent in this area - a job placement scheme for disadvantaged youth conducted by the Coles-Myer Group. Eg, according to the Commonwealth Employment Service Manual, the normal subsidies available to employers are supplemented significantly for employers who take on homeless young people: vol. 7, paras 7.0707, 7.0732. See generally, Chapter 5, The Experience of Homelessness, and Chapter 19, Health Needs and Services. See particularly Chapter 8, Families Under Stress, and Chapter 10, 鱨վ in the Care of the State. Community Development, Human Services and Local Government, op cit, at 141. S.44, Victoria Park Youth Accommodation (WA), at 5. The Inquiry heard evidence about the burden imposed by current bureaucratic requirements on over-worked youth workers: S. McLoghlin, Open Family Box Hill Inc. (Vic), Transcript at 1170. Homes Away From Home, op cit, at 157. Ibid. It has also been proposed that Youth Co-ordination Units should be established (where they do not already exist) at the State level, within the most appropriate government department: ...to more effectively examine planning, funding, resourcing and the development of youth services in [the State]. Such a Unit, it was submitted, should 'have a comprehensive brief' and should deal with: policy co-ordination and development; information dissemination to and consultation with both young people and workers; program development; development of training models for both government and non-government sectors; rationalisation of funding programs; and rationalisation of capital works programs: S.112, Bankstown Workers With Youth Network (NSW), Appendix C, at 3-4. Living in a Nursing Home: Outcome Standards for Australian Nursing Homes (AGPS, 1987) at iii. Ibid. Royal Commission on Australian Government Administration, op cit. at 356. Indeed, some witnesses representing youth services advised the Inquiry that they are now making moves, if necessary independent of governments, to introduce co-ordinating mechanisms: ...there are many agencies involved in giving support, giving counselling, giving advocacy and all sorts of services to young people. There are some encouraging signs that those agencies are now starting to look to co-operate. It seems to me that in the past, and until very recently, there has been great fragmentation of the services provided and that the sooner that we can get some overall co-ordination so that everybody knows what is available and all the information is available to other services, so that we are not cutting each other's throat asking for funding for the same things, so that we can actually co-operate and work together...we cannot continue to do our own thing at the expense of the young people whom we say we are trying to help: C. Halsey, Noarlunga Youth Accommodation Services (SA), Transcript at 1363. A similar finding was made in 1985 by the Senate Standing Committee on Social Welfare with respect to substitute care and family welfare services: ...the Committee has gained an impression that the provision of child and family welfare services, and particularly substitute care services, is an area in which there is little co-ordination and communication between the States and the Territories and the Commonwealth in the development of new policies and practices, and that it is one in which service delivery is fragmented, lacking in design and cohesion, and inadequate in its coverage. At the local level, the Committee found that services are often reactive, show little, if any, evidence of forward planning and tend to operate in isolation from other services. Too much time seems to be devoted to direct service delivery and not enough to co-ordination and outreach activities. As a result, problems identified by one agency are often not referred to other more appropriate agencies, nor are other practitioners in the field, including informal 'gatekeepers' such as doctors, infant welfare sisters, school teachers, and so on made aware of what resources are available for their clients: op cit, at 80. The Standing Committee concluded that this state of affairs meant the potential of new initiatives could not be fully realised and it could not be confirmed that resources were being used efficiently, effectively or equitably. S.120F, Tasmanian Government, at (ii). D. Otto, Youth Accommodation Coalition (Vic), Transcript at 907. S.77, Youth Accommodation Coalition (Vic), Appendix 9. 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