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澳洲-National Framework for Protecting Australia's Children 2009-2020

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Protecting Children is

Everyone’s Business

National Framework for Protecting

Australia’s Children 2009–2020

An initiative of the Council of Australian Governments

© Commonwealth of Australia 2009

This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may

be reproduced by any process without prior written permission from the Commonwealth available

from the Commonwealth Copyright Administration, Attorney-General’s Department. Requests and

inquiries concerning reproduction and rights should be addressed to the Commonwealth Copyright

Administration, Attorney-General’s Department, Robert Garran Offices, National Circuit, Canberra ACT

2600, or posted at http://www.ag.gov.au/cca.

ISBN: 978-1-921380-35-8

2 Protecting children is everyone’s business

Contents

Foreword 5

Why we need to work together to protect Australia’s children 6

What is the problem? 6

What needs to change? 7

A national approach to protecting Australia’s children 9

National Framework for Protecting Australia’s Children 11

Supporting outcomes, strategies and indicators of change 11

Principles to guide our actions 12

Everyone has a role to play 12

Supporting outcome 1: Children live in safe and supportive families and

communities 15

Supporting outcome 2: Children and families access adequate support to

promote safety and intervene early 17

Supporting outcome 3: Risk factors for child abuse and neglect are addressed 21

Supporting outcome 4: Children who have been abused or neglected receive

the support and care they need for their safety and wellbeing 25

Supporting outcome 5: Indigenous children are supported and safe in their

families and communities 28

Supporting outcome 6: Child sexual abuse and exploitation is prevented

and survivors receive adequate support 31

Implementing the National Framework 35

Governance arrangements 35

Implementation Plan 36

Evaluation 36

References 38

Appendix A: Current initiatives and reforms 42

Australian Capital Territory 44

New South Wales 47

Northern Territory 50

Queensland 53

South Australia 55

Tasmania 57

Victoria 60

Western Australia 62

3

Foreword

Australia’s children deserve a safe, healthy and happy childhood.

Our children must be able to grow up nourished and supported in loving and caring

environments. They must have time to be children with all the wonder, happiness and innocence

that childhood should bring.

Over recent years the reported levels of child neglect and abuse in Australia have increased at

an alarming rate. Child abuse and neglect has become an issue of national concern. Meanwhile,

statutory child protection systems are struggling under the load.

Protecting children is everyone’s responsibility. Parents, communities, governments and business

all have a role to play.

Australia needs a shared agenda for change, with national leadership and a common goal.

All Australian governments have endorsed the first National Framework for Protecting Australia’s

Children 2009-2020 and are committed to implementing the initial actions it contains. It is a

long-term, national approach to help protect all Australian children.

The National Framework represents an unprecedented level of collaboration between Australian,

State and Territory governments and non-government organisations to protect children. Placing

children’s interests firmly at the centre of everything we do.

Reducing child abuse and neglect is not an easy task and it will take time. The National

Framework provides the foundation for national reform.

Endorsed at the Council of Australian Governments meeting on 30 April 2009 by:

The Hon Kevin Rudd MP, Prime Minister of Australia

The Hon Nathan Rees MP, Premier of New South Wales

The Hon John Brumby MP, Premier of Victoria

The Hon Anna Bligh MP, Premier of Queensland

The Hon Mike Rann MP, Premier of South Australia

The Hon Colin Barnett MLA, Premier of Western Australia

The Hon David Bartlett MP, Premier of Tasmania

The Hon Paul Henderson MLA, Chief Minister of the Northern Territory

Jon Stanhope MLA, Chief Minister of the Australian Capital Territory

Why we need to work together to protect Australia’s children 5

Why we need to work together

to protect Australia’s children

All children1 have the right to be safe and to receive loving care and support. Children also have a

right to receive the services they need to enable them to succeed in life. Parents have the primary

responsibility for raising their children, and ensuring that these rights are upheld.

We recognise that the best way to protect children is to prevent child abuse and neglect from

occurring in the first place. To do this, we need to build capacity and strength in our families and

communities, across the nation.

The vast majority of parents - supported by the community and the broad range of government

supports and services available to all families - have the capacity to raise happy and healthy

children. But some families need more help. And in some cases, statutory child protection

responses will be required.

The investment by governments and the non-government sector into family support and child

protection services is significant, yet our separate efforts still fail many children and young

people (Steering Committee for the Review of Government Service Provision 2009).2 We need

a unified approach that recognises that the protection of children is not simply a matter for the

statutory child protection systems.

Protecting children is everyone’s responsibility.

Families, communities, governments, business and services all have a role. And we need to work

together.

What is the problem?

In 2007-08, there were 55,120 reports of child abuse and neglect substantiated by child

protection services.

For the first time since national data collection there was a reduction in child abuse

substantiations from the previous year (2006-07). This is a promising indication that substantial

increases in family support may be effective at preventing child abuse and neglect. Data in

future years will tell us if this trend continues.

Despite this, the rate has more than doubled over the past 10 years and the number of children

subject to child abuse and neglect remains unacceptably high. Indigenous children also remain

significantly over-represented. Indigenous children are six times more likely to be the subject of a

substantiation than other children (AIHW 2009).

1 Australia is a signatory to the United Nations Convention on the Rights of the Child. In the Convention, the term ‘child’ is defined as

anyone under the age of 18 years. This National Framework follows that definition.

2 The estimated total recurrent expenditure on child protection and out-of-home care services was $2 billion in

2007–08, an increase of 13.5 per cent on the previous financial year.

6 Protecting children is everyone’s business

Some of the increases over time are a result of changing social values and better knowledge

about the safety and wellbeing of children. Child protection services were originally established

in response to serious physical abuse. Now, in response to changing community expectations,

they address physical abuse, sexual abuse, emotional abuse, neglect and domestic violence.

These changes have been a major driver of increased demand on child protection services

(Bromfield & Holzer 2008).

Emotional abuse and neglect are now the most commonly substantiated types of child

maltreatment, followed by physical abuse (AIHW 2009). However, research shows that many

children experience sexual abuse, and that it is often undetected or not reported to authorities

(ABS 2006; Morrison 2007).

As a community we have been shocked and concerned to hear of children who were not

identified or adequately protected by welfare systems – for some, their suffering was not known

until after their deaths. Systems and procedures such as mandatory reporting requirements have

been developed to try to better identify those children who have experienced or are at-risk of

abuse or neglect. For many people concerned about a child or family, their first (and perhaps only)

response is to make a report to child protection services (Bromfield & Holzer 2008).

Substantial numbers of children and their families now come to the attention of child protection

services. In 2007-08, there were 317,526 reports to child protection services in Australia. The vast

majority of these reports were not substantiated – meaning the report was assessed and a child

protection response was not required at that time. In these cases, other forms of support would

have been a more appropriate response.

The numbers of children being removed from their parents has also more than doubled over the

past decade. At 30 June 2008, there were 31,166 young people in out-of-home care (AIHW 2009).

Children in out-of-home care experience significantly poorer long-term outcomes, particularly

where the child did not experience stable care placements (Cashmore & Paxman 2006). Each

year in a small number of terrible cases, children die as a result of child abuse and/or neglect.

The exact numbers are difficult to ascertain due to reporting limitations.

What needs to change?

Australia needs to move from seeing ‘protecting children’ merely as a response to abuse and

neglect to one of promoting the safety and wellbeing of children. Leading researchers and

practitioners – both in Australia and overseas – have suggested that applying a public health

model to care and protection will deliver better outcomes for our children and young people

and their families (Holzer 2007; O’Donnell, Scott, & Stanley 2008; Scott 2006; ARACY 2007). The

components of such a system are illustrated in Figure 1.

Under a public health model, priority is placed on having universal supports available for all

families (for example, health and education). More intensive (secondary) prevention interventions

are provided to those families that need additional assistance with a focus on early intervention.

Tertiary child protection services are a last resort, and the least desirable option for families and

governments.

Just as a health system is more than hospitals so a system for the protection of children is more

than a statutory child protection service.

Why we need to work together to protect Australia’s children 7

Figure 1 – A system for protecting children

In reality, Australia’s child welfare service systems more closely resemble an hourglass than

a pyramid. As demands on child protection services have grown, the size of child protection

services have grown to meet that demand. Child protection services cannot provide a response

to all vulnerable children and their families.

A public health model offers a different approach with a greater emphasis on assisting families

early enough to prevent abuse and neglect occurring. It seeks to involve other professionals,

families and the wider community – enhancing the variety of systems that can be used to

protect children and recognising that protecting children is everyone’s responsibility (Higgins &

Katz 2008).

Ultimately, the aim of a public health approach is to reduce the occurrence of child abuse and

neglect and to provide the most appropriate response to vulnerable families and those in which

abuse or neglect has already occurred.

8 Protecting children is everyone’s business

A national approach for protecting Australia’s children

Australia needs a shared agenda for change, with national leadership and a common goal.

Recognising that the safety and wellbeing of children is the responsibility of all levels of

government, the Australian Government has led the development of the National Framework,

working closely with States and Territories.

Similar challenges are being faced across the nation. State and Territory governments currently

spend in excess of $2 billion annually on child protection alone, with average annual increases of

more than 12 per cent.

State and Territory governments are currently implementing reforms to their statutory child

protection systems - all focused on early intervention. But for these reforms to be truly effective,

they need to be coordinated with Australian Government programs, policies and payments - a

large part of the early intervention response.

The National Framework will deliver a more integrated response but does not change the

responsibilities of governments. States and Territories retain responsibility for statutory child

protection, as the Australian Government retains responsibility for providing income support

payments. The National Framework also recognises the significant existing efforts and reforms

which are being undertaken by governments across Australia in protecting children and

supporting families. A summary of existing effort and reforms underway in each State and

Territory is at Appendix A.

It does however, involve a commitment from all parties to focus our own efforts on protecting

children to, and work together better in areas of shared responsibility. It also involves a

commitment to better link the many supports and services we provide – avoiding duplication,

coordinating planning and implementation and better sharing of information and innovation.

Naturally, the span of activity required to support these outcomes means that new efforts will

build on and link with existing initiatives to achieve the best possible outcomes.

A National Framework provides an opportunity to drive improvements across all systems and

all jurisdictions. National leadership will provide the momentum for key national projects – such

as data, research, information sharing and national consistency in critical areas. A National

Framework also provides a mechanism for engaging the non-government sector and the broader

community on a national level.

Why we need to work together to protect Australia’s children 9

New Full page pic needed here A4 size

National Framework for

Protecting Australia’s Children

The National Framework for Protecting Australia’s Children 2009-2020 consists of high-level and

supporting outcomes, strategies to be delivered through a series of three-year action plans and

indicators of change that can be used to monitor the success of the National Framework.

The actions and strategies that governments and others will agree to take under this National

Framework are all aimed to achieve the following high-level outcome:

Australia’s children and young people are safe and well.

As a measure of this outcome, governments and the non-government sector have set the

following target:

A substantial and sustained reduction in child abuse and neglect in

Australia over time. 3

To demonstrate progress towards achieving the target the following measures have been

identified:

• Trends in key national indicators of children’s health, development and wellbeing

• Trends in hospital admissions and emergency department visits for neglect and injuries to

children under three years

• Trends in substantiated child protection cases

• Trends in the number of children in out-of-home care.

Supporting outcomes, strategies and indicators of change

The six supporting outcomes are:

1. Children live in safe and supportive families and communities

2. Children and families access adequate support to promote safety and intervene early

3. Risk factors for child abuse and neglect are addressed

4. Children who have been abused or neglected receive the support and care they need for their

safety and wellbeing

5. Indigenous children are supported and safe in their families and communities

6. Child sexual abuse and exploitation is prevented and survivors receive adequate support.

The supporting outcomes and strategies help to focus effort and actions under the National

Framework in order to reach the high-level outcome. Indicators of change are provided to

measure the extent to which governments and non-government organisations are achieving the

3 It is acknowledged that measuring a reduction in child abuse and neglect is difficult, as Australia currently does not have robust data

on incidence/prevalence. Even if such data existed, it may not be sensitive to change over a short period.

Why we need to work together to protect Australia’s children 11

supporting outcomes. Given the inherent difficulties in isolating the impact of specific actions

on broader social outcomes, a broad suite of indicators have been identified which, when viewed

collectively, will be reported annually and provide a basis for measuring progress over the life (12

years) of the National Framework.

Principles to guide our actions

Children have a right to be safe, valued and cared for. As a signatory to the United Nations

Convention on the Rights of the Child, Australia has a responsibility to protect children, provide

the services necessary for them to develop and achieve positive outcomes, and enable them to

participate in the wider community.

In line with Australia’s obligations as a signatory to the UN Convention, the National Framework

is underpinned by the following principles:

• All children have a right to grow up in an environment free from neglect and abuse. Their best

interests are paramount in all decisions affecting them.

• Children and their families have a right to participate in decisions affecting them.

• Improving the safety and wellbeing of children is a national priority.

• The safety and wellbeing of children is primarily the responsibility of their families, who

should be supported by their communities and governments.

• Australian society values, supports and works in partnership with parents, families and others

in fulfilling their caring responsibilities for children.

• Children’s rights are upheld by systems and institutions.

• Policies and interventions are evidence based.

The National Framework also recognises the importance of promoting the wellbeing of

Aboriginal and Torres Strait Islander children, young people and families across all outcome areas.

Everyone has a role to play

Under the National Framework for Protecting Australia’s Children, protecting children is everyone’s

responsibility. Some of the key groups and their involvement in the National Framework are

described below.

Parents and families care for and protect their children and engage in decision making that has

an impact on them and their children.

Children and young people participate in decisions affecting them.

Communities support and protect all their members, and support families to raise their children,

particularly vulnerable families.

Non-government organisations deliver services (including on behalf of governments), contribute

to the development of policy, programs and the evidence base and actively promote child safety,

protection, rights and wellbeing.

The business and corporate sector supports parents to raise their children through family-

friendly policies. They may also support programs and initiatives to directly assist children and

families, including direct financial assistance, pro bono activities of their staff and professional

support to community organisations.

12 Protecting children is everyone’s business

Local governments deliver a range of services to vulnerable families, including youth and family

centres and local infrastructure, and play a pivotal role in engaging vulnerable children and their

families in those services.

State and Territory governments deliver a range of universal services and early intervention

initiatives to prevent child abuse and neglect, and fund and coordinate many services by

the non-government sector. They are responsible for the statutory child protection systems,

including the support provided to children and young people in out-of-home care. Other

responsibilities include:

• providing therapeutic and support services for families, children and young people at-risk of

abuse or neglect

• conducting research into child protection

• delivering health and education services, including maternal and child health services,

schools, and specialist services for at-risk children and young people and their families

• providing police and justice systems, including court services to hear child/youth care and

protection matters.

The Australian Government delivers universal support and services to help families raise their

children, along with a range of targeted early intervention services to families and children. 4

The foundation of the Australian Government’s support is the provision of income and family

support payments to provide both a broad social safety net and specifically support families in

their parenting role. This includes pensions, family payments, childcare benefit and tax rebates.

The Australian Government provides a range of services available for all Australian families such

as Medicare, employment services, child and parenting support services, family relationship

services and the family law system. In addition, the Australian Government provides support for

key services through the States and Territories such as hospitals, schools, housing and disability

services.

The Australian Government also offers more targeted services for vulnerable individuals and

families, including mental health, substance abuse, intensive parenting services, intensive

employment assistance, and allowances for young people leaving care to help with the

transition to independent living. The Australian Government also funds and delivers a range of

services for families at higher risk of disadvantage including those in Indigenous communities.

4 Families include foster, grandparent and kinship families

National Framework for Protecting Australia’s Children 13

14 Protecting children is everyone’s business

Supporting outcome 1:

Children live in safe and supportive families and communities

Communities are child-friendly. Families care for children, value their wellbeing

and participation and are supported in their caring role.

Reducing vulnerability of families and protecting children from abuse and neglect begins with

developing a shared understanding of, and responsibility for, tackling the problem of child abuse

and neglect.

Businesses and the broader community can play a part in supporting families through child and

family-friendly policies and practices. It is important to educate and engage the community to

influence attitudes and beliefs about abuse and neglect but also more broadly about children and

their needs. Informing communities about parenting and children’s development can also promote

understanding about the ways in which community members can better support families.

Upholding children’s right to participate in decisions that affect them is a key signal of valuing

and supporting children. In the context of child welfare, this is particularly relevant in judicial

proceedings in care and protection, juvenile justice and family court matters, and in child protection

and out-of-home care services.

National Framework for Protecting Australia’s Children 15

Supporting 0utcome 1

Indicators of

Strategies Initial 3-year actions Delivery change

1.1 Strengthen Continue to establish and support family Ongoing • Community

the capacity and children’s centres such as: attitudes

of families to States & Territories

support children value of children

(TBD, survey)

perception

of their value

community (TBD,

Combine and refocus community programs 2009-10 survey)

within the Department of Families, Housing,

Commonwealth

Community Services and Indigenous • Measure of

Affairs to enhance support for families and children’s and

parenting young people’s

participation in

Continue to improve family support services Ongoing administrative

such as: and judicial

All jurisdictions

sistent with WA’s Strategic Framework for that affect them

Supporting Individuals and Families At-risk (TBD)

1.2 Educate and Support community organisations to Ongoing

engage the deliver cost-effective, community-based

community initiatives, including information and Commonwealth with

about child abuse awareness campaigns, for example funding NAPCAN

and neglect for National Child Protection Week and a

and strategies survey of community attitudes to protecting

for protecting children

children

1.3 Develop and Explore the potential role for a National Advice to Government in

implement Children’s Commissioner including the late 2009

effective relationship with State and Territory

mechanisms Children’s Commissioners Commonwealth in consult-

for involving ation with States & Territories

children and Identify and implement approaches through Ongoing

young people the Supporting Children After Separation

in decisions Program, to assist children from separating Commonwealth

affecting their families to deal with issues arising from the

lives breakdown of their parents’ relationship

and to participate in decisions that affect

them

Finalise, print and distribute an information 2009

booklet for children entering foster care

Commonwealth with

the Australian Childhood

Foundation

Continue to improve the experience of court Ongoing

processes for children, such as:

States & Territories

improve practices and processes in state and

federal jurisdictions involved with children

alternative dispute resolution and the roll-

out of the Magellan project

Support participation of children in decision Ongoing

making such as:

States & Territories

Children and Young Persons

16 Protecting children is everyone’s business

Supporting outcome 2:

Children and families access adequate support to promote safety

and intervene early

All children and families receive appropriate support and services to create the

conditions for safety and care. When required, early intervention and specialist

services are available to meet additional needs of vulnerable families, to ensure

children’s safety and wellbeing.

The basic assumption of a public health approach to protecting children is that by providing the

right services at the right time vulnerable families can be supported, child abuse and neglect can

be prevented, and the effects of trauma and harm can be reduced.

Providing the right supports at the right time will also ultimately reduce demand on State and

Territory child protection systems, allowing them to improve their capacity to perform specific

statutory functions and better support children at-risk.

National and international research shows that:

• families have strengths that can be built upon to keep children safe and well

• families may require advice and support, particularly in times of change

• provision of services early in a child’s life and/or early in the life of a problem can improve long-

term outcomes for children and reduce negative impacts

• a focus on early intervention and prevention is more cost-effective in the long term than

responding to crises, or treating the impacts of abuse and neglect (Stronger Families Learning

Exchange 2002).

Disadvantage and vulnerability can be concentrated in particular communities. Evidence

from Australia (such as implications from the national evaluation of the Stronger Families and

Community Strategy) suggests that area-based interventions can have positive impacts on

vulnerable children and families. Effective elements include:

• an explicit focus on the coordination and collaboration of services by one organisation that is

given responsibility and resources to be a leader in this area in the community

• increased service provision and capacity to work with families previously disengaged from

early childhood services and those from groups traditionally considered ‘hard to reach’.

National Framework for Protecting Australia’s Children 17

Supporting outcome 2

Indicators of

Strategies Initial 3-year actions Delivery change

2.1 Implement an Expand the Communities for Children Realign existing • Proportion

integrated approach program to: sites 2009-10 of pregnant

to service design, - realign existing sites to enhance New sites women who

planning and delivery integration and target the most established by receive perinatal

for children and disadvantaged communities July 2010 care (TBD)

families across the

lifecycle and spectrum - establish new demonstration sites to Commonwealth • Number of at-

of need test models of integrated service delivery in partnership risk children

and provide more intensive assistance to with States & and families

children at-risk Territories and accessing

NGOs support services

Implement integrated and co-located child Ongoing (TBD)

and family service models including: • Rate per

All jurisdictions

(Commonwealth) born with low

program (NSW)

management system (SA) with improved

measures

and their families (ACT) Australian Early

and Care Centres (Commonwealth)

disadvantaged

2.2 Develop new Develop a nationally consistent approach In place by 3 year olds in

information sharing to working with children checks and child December 2009 early childhood

provisions between safe organisations across jurisdictions education

Commonwealth All jurisdictions

agencies, State and • Proportion of

Extend the national protocol for sharing 2009-10 children aged 4

Territory agencies and information on children at-risk to other

NGOs dealing with Commonwealth to 14 years with

Commonwealth agencies starting with mental health

vulnerable families Medicare Australia and the Child Support in partnership

with States & problems

Agency

Territories

• Rate of child

Investigate options for improving Options by protection

information sharing between NGOs December 2009 notifications

and government agencies in secondary

prevention through the Common Approach Commonwealth

to Assessment, Referral and Support and ARACY in

Taskforce (see 3.5) partnership

with States &

Territories and

NGOs

2.3 Ensure consistency Implement a national approach to early Ongoing

of support and childhood education and care including:

services for all Through the

children and families education and care in the year prior to Childhood

schooling by 2013 Agenda

Childhood Education and Care and the

Early Years Learning Framework

18 Protecting children is everyone’s business

Supporting outcome 2 continued

Indicators of

Strategies Initial 3-year actions Delivery change

Support the development of quality States & Territories

assurance processes for registered

community based child and family services;

and out-of-home care services, such as the

Victorian model

Enhance national consistency in child and 2009-11

family health services through:

All jurisdictions

national framework for child and family

health services through the Australian

Health Ministers’ Conference

for 4 year olds to help ensure children are

healthy and ready for school

Implement the National Perinatal Commonwealth

Depression Plan including a national

universal screening program

Increase funding for disadvantaged Ongoing

schools with a focus on improving student

wellbeing Through the Low SES

School Communities

National Partnership

2.4 Enhance services Refocus services under the From 2009-10

and supports for Commonwealth’s Family Support Program

children and families to target vulnerable families and children Commonwealth

to target the most at-risk

vulnerable and

protect children ‘at- Expand and/or target State and Territory Ongoing

risk’ family support programs for vulnerable

families and children at-risk such as: States & Territories

including new Child Wellbeing Units and

expanding Brighter Futures.

Evaluate income management trials in WA, 2009-10

NT and Cape York

Commonwealth in

consultation with

relevant jurisdictions

Comprehensive evaluation of family law Findings by end of

reforms designed to strengthen family 2009

relationships, including:

Commonwealth

care parenting arrangements that work in

the best interests of the child

on relationship breakdown

Expand access to mental health programs 2009-10 to 2012-13

for children including:

Commonwealth

Youth Mental Health Foundation)

KidsMatters and MindMatters

National Framework for Protecting Australia’s Children 19

Supporting outcome 2 continued

Indicators of

Strategies Initial 3-year actions Delivery change

2.5 Provide priority Enhance access to childcare services From July 2009

access to services for for children at serious risk of harm by

children who are at increasing awareness and availability of Commonwealth

serious risk of abuse services and supports in the childcare

and neglect sector, organisations working with

vulnerable children and child protection

agencies

Develop alternative pathways for children Ongoing

who are at serious risk and those at lower

risk, including: States &

Territories

a range of NSW government agencies

referral services in NSW

provide single entry points in TAS

intake centres in 24 locations across

Victoria

20 Protecting children is everyone’s business

Supporting outcome 3:

Risk factors for child abuse and neglect are addressed

Major parental risk factors that are associated with child abuse and neglect are

addressed in individuals and reduced in communities. A particular focus is sustained

on key risk factors of mental health, domestic violence and drug and alcohol abuse.

Key to preventing child abuse and neglect is addressing the known risk factors. Many of the

factors that research has shown to be associated with abuse and neglect are behaviours or

characteristics of parents, which can then be the target of both population-based strategies and

specific interventions.

The problems most commonly associated with the occurrence of child abuse and neglect and

identified in families involved with child protection services are:

• domestic violence

• parental alcohol and drug abuse

• parental mental health problems.

Often, families in which parents experience these problems face broader challenges of exclusion

and disadvantage (Allen Consulting Group 2003; Leek, Seneque & Ward 2004; Wood 2008). Other

known risk factors for abuse and neglect include:

• poverty and social isolation

• unstable family accommodation and homelessness

• poor child and maternal health

• childhood disability, mental health and/or behavioural problems

• young people disconnected from their families, schools and communities

• past experiences of trauma (Fleming, Mullen, & Bammer 1997; Frederick & Goddard 2007;

National Child Protection Clearinghouse 2008).

Many families also experience more than one of these risk factors (Jeffreys, Hirte, Rogers &

Wilson 2009; Wood 2008).

Adult treatment or support services – particularly those addressing domestic violence, substance

misuse and mental health issues, as well as housing, gambling, disability, employment and

income support services – need to be more child-focused, and responsive to the needs of families

(Scott 2009).

These factors can also be the longer-term outcomes for children who have suffered abuse

and neglect, contributing to intergenerational cycles of disadvantage. Disadvantage can

be concentrated in neighbourhoods or geographic areas. Efforts to build and strengthen

communities and address economic and social disadvantage are important elements in an

overall approach to ensuring children’s safety and wellbeing.

National Framework for Protecting Australia’s Children 21

Supporting outcome 3

Indicators of

Strategies Initial 3-year actions Delivery change

3.1 Enhance alcohol Implement the National Binge Drinking Ongoing • Rate per 1,000

and substance abuse Strategy children living

initiatives to provide Commonwealth

in households

additional support to where there is

families Redesign the Strengthening Families Ongoing adult abuse of

Program to implement a more focused alcohol and/

model incorporating parenting support for Commonwealth or other drugs

vulnerable families where children are at- (TBD, previous

risk of harm survey)

Implement community based healthy Ongoing • Rate per

lifestyle interventions in disadvantaged 1,000 children

communities including addressing alcohol Commonwealth accessing

abuse to lead through assistance

the COAG National through

Preventative homelessness

Health Partnership services

3.2 Enhance programs Progress priority actions in areas of From May 2009 (accompanied &

which reduce family Commonwealth responsibility in Time for unaccompanied)

violence Action:The National Plan for Australia to Commonwealth

through COAG • Number of

reduce Violence against Women and their children living in

Children, 2009-2021 from the National jobless families

Council to Reduce Violence against Women (TBD)

and their Children

• Rate per 1,000

Expand models of integrated support to 2009 onwards children living

enable women and children experiencing in households

domestic and family violence to remain at Through the

National where family

home safely violence occurs

Partnership on

Homelessness (TBD)

3.3 Increase services Develop a National Suicide Prevention Commonwealth • Proportion

and support for Strategy of parents

people with mental with a mental

illness Further roll out the Personal Helpers 2009 – 2011 illness who

and Mentors Program with a focus are accessing

on disadvantaged communities and Commonwealth

mental health

vulnerable groups services (TBD)

Enhance support for children or parents Ongoing

with disabilities, such as:

All jurisdictions

services to support specialist disability

assessments with complex needs (QLD)

working with children with a disability

and their families (VIC)

Carer Payment (child) to support more

carers of children with disabilities

(Commonwealth)

for children with autism (Commonwealth)

strengthening availability of disability

support services for children and their

families (NSW)

22 Protecting children is everyone’s business

Supporting outcome 3 continued

Indicators of

Strategies Initial 3-year actions Delivery change

3.4 Expand housing Increase availability of affordable and social By December 2010

and homelessness housing through the:

services for families Commonwealth in

and children at-risk

Nation Building Economic Stimulus Plan

Targeted support to assist children and Ongoing

families who are homeless including:

Through the

at-risk of homelessness through the Partnership on

HOME Advice Program Homelessness

who are homeless including closer

links between homelessness and child

protection services

for up to an additional 9,000 young

people aged 12 to 18 years at-risk of

homelessness to remain connected with

families (where appropriate), education,

training and employment

3.5 Increase capacity Establish professional development Training resources

and capability of: resources on the risk factors for, and to be developed by

services to identify be provided to child and adult focused

services and professions (including joint Commonwealth to

and respond to the lead in partnership

needs of children training across professional groups and

organisations) with States &

at-risk Territories and

services to identify

and respond to the Convene an expert taskforce to develop Establish Taskforce

needs of vulnerable options for shared tools and approaches May 2009, with

families for assessment and referral across services options by end of

to identify children children at-risk of harm: the Common

Approach to Assessment, Referral and Commonwealth

at-risk

Support Taskforce and ARACY in

partnership with

States & Territories

and NGOs

Support the development and distribution 2009

of a resources guide to schools and early

childhood services about responding to the Commonwealth

needs of traumatised children with the Australian

Childhood

Foundation

Build on and extend initiatives to support Ongoing

the workforce, such as WA’s Foster Care

Team Development initiatives States & Territories

National Framework for Protecting Australia’s Children 23

24 Protecting children is everyone’s business

Supporting outcome 4:

Children who have been abused or neglected receive the support

and care they need for their safety and wellbeing

Children and young people who have been abused (or are at-risk of abuse) receive

timely, appropriate, high-quality child protection and other support services to

secure their safety and promote their long-term wellbeing.

Efforts to reduce the occurrence of child abuse and neglect are important. It is equally important

that those children who have experienced abuse and neglect are provided high-quality services

and interventions, as they are among the most vulnerable in our community.

To secure children’s safety and wellbeing in the short and long term they need high-quality child

protection services that are evidence based, child-focused, attend to children’s developmental

needs and help children to overcome the effects of trauma, abuse and neglect (Bromfield 2008).

There is a need for further research and evaluation to ensure that services and interventions

provided actually work to improve outcomes for children and families (Bromfield & Arney 2008).

Out-of-home care is viewed as an intervention of last resort, and the preference is always

for children to be reunited with their natural parents if possible. Many children can be safely

reunited with their families when their families receive appropriate supports and interventions.

Research highlights the need for children to have stable and secure placements, whether that be

with their natural parents or in out-of-home care. The quality of relationships with carers is also

critical. A sense of security, stability, continuity and social support are strong predictors of better

outcomes for young people’s long-term outcomes after leaving care (Cashmore & Paxman 2006).

Young people leaving care are at great risk of experiencing negative life outcomes (Bromfield

& Osborn 2007). Care leavers can be better supported if they are equipped with improved

employment and independent living skills and more social and emotional skills while in care, and

the state continues to act as a ‘good’ parent in the first few years after they leave care (Cashmore

& Paxman 1996; Maunders, Liddell, Liddell, & Green 1999; Mendes & Moslehuddin 2006).

While the need for foster carers has been rising, there has been some evidence of decreasing

numbers of individuals willing to foster (McHugh 2002; Siminski, Chalmers & McHugh 2005).

The attraction and retention of an appropriately skilled and qualified workforce – including

statutory and non-government service workers, as well as voluntary carers – is a high priority.

National Framework for Protecting Australia’s Children 25

Supporting outcome 4

Indicators of

Strategies Initial 3-year actions Delivery change

4.1 Enhance access to Target the Personal Helpers and Mentors 2009-10 • Proportion of

appropriate support Program where appropriate for people who investigations

services for recovery have experienced abuse or neglect Commonwealth

finalised by

where abuse or time taken

neglect has occurred Support community-based recovery 2009 to complete

programs for people who have experienced investigation

abuse or neglect such as, Adults Surviving Commonwealth

child Abuse (ASCA) therapy programs for • Proportion of

survivors of childhood abuse children on

guardianship

4.2 Support Provide specialist supported playgroups for 2009-10 and custody

grandparent, foster grandparent and kinship carers to enhance orders achieving

and kinship carers peer support and provide developmental Commonwealth

national reading

to provide safe and opportunities and numeracy

stable care benchmarks

Continue to explore options through 2009-10

CDSMAC working group for improving • School retention

financial and non-financial support to All jurisdictions

rates (Years

grandparent, kinship and foster carers such 10 & 12) of

as: young people

support care or under

on the child (TBD)

Increase the focus of support and services From 2009-10 • Retention

available for grandparent and kinship rate of foster

carers through Indigenous Child and Family Commonwealth carers and child

Centres protection

workers (TBD)

Support programs for grandparent, kinship Ongoing

and foster carers, such as: • Number of out-

States & of-home carers,

Kinship Care program model by type of carer

including providing a resource manual to

carers; and establishing Regional Foster

Care Advisory Groups

includes a support line, caring allowance,

flexible respite options and training

Continue to explore options through the Report by end of

Australian Health Ministers’ Conference in 2009

relation to the healthcare needs of children

entering and in out-of-home care All jurisdictions

Enhanced support for grandparent and 2009-10

kinship carers as a specified target group

under the Communities for Children Commonwealth

program

26 Protecting children is everyone’s business

Supporting outcome 4 continued

Indicators of

Strategies Initial 3-year actions Delivery change

4.3 Improve support Increase support through NGOs for young Ongoing from July

for young people people leaving care to establish their 2009

leaving care independence Commonwealth in

partnership with

NGOs

Continue and improve State and Territory Ongoing

initiatives targeting young people as they States & Territories

leave care, such as:

Implement policy of ‘no exits into Ongoing

homelessness’ from statutory care

Through the

National

Partnership on

Homelessness

4.4 Support Develop and introduce ambitious National To CDSMC for

enhanced national Standards for Out-of-home Care which: approval by June

consistency - focus on key areas that directly impact on 2010

and continuous the outcomes and experiences of children

improvement in child Commonwealth,

and young people in out-of-home care

protection services States & Territories

State and Territory quality assurance

standards and processes that meet the

requirements of the National Standards

evidence tool to verify, review and monitor

progress against agreed national standards

Support child protection services to Ongoing

maintain continuous improvement, such as:

States & Territories

system towards relationship based practice

standards

reforms

Support the Australian New Zealand Child By 2010

Death Review Committee to develop more Commonwealth to

consistent data to help better understand lead in partnership

the circumstances of child deaths and how with States &

these could be prevented Territories

Improve our understanding of children in By 2011

the child protection and care system by:

Commonwealth to

the collection and analysis of confidential with States &

unit record data across homelessness, Territories

juvenile justice and child protection records

protection to improve national reporting

Support a National Research Agenda for 2009-10 to 2013-14

Child Protection Commonwealth to

lead in partnership

with States &

Territories

National Framework for Protecting Australia’s Children 27

Supporting outcome 5:

Indigenous children are supported and safe in their families and

communities

Indigenous children are supported and safe in strong, thriving families and

communities to reduce the over-representation of Indigenous children in child

protection systems. For those Indigenous children in child protection systems,

culturally appropriate care and support is provided to enhance their wellbeing.

Preventing child abuse and neglect and improving responses to those children who have

experienced maltreatment are priorities for all Australian children. However, those who are

particularly disadvantaged require additional responses. Aboriginal and Torres Strait Islander

children are significantly over-represented in all parts of the child protection system.

Indigenous communities experience intergenerational cycles of adversity and trauma, leading

to entrenched social problems including poverty, high levels of violence, psychological distress,

destructive behaviours, and individual, family and community dysfunction. These problems are

also associated with heightened rates of abuse and neglect (Atkinson 2002; Berlyn & Bromfield

2009; Robertson 2000). Addressing Indigenous disadvantage is critical to addressing the factors

that put Aboriginal and Torres Strait Islander children at-risk of abuse and neglect.

Child abuse and neglect can be prevented by addressing disadvantage (for example, overcrowded

and inadequate housing); recognising and promoting family, community and cultural strengths

that protect children; and developing community-wide strategies to address specific risk

factors where they occur in high concentration, such as alcohol misuse and family violence. It

is critical that approaches to address Indigenous disadvantage and the underlying causes of

abuse and neglect are holistic and culturally sensitive, and empower families and communities

to develop and take responsibility for community-identified solutions (Aboriginal Child Sexual

Assault Taskforce 2006; Anderson & Wild 2007; Atkinson 2002; Gordon, Hallahan & Henry 2002;

Robertson 2000; Silburn, et al. 2006).

The best interests and safety of a child are paramount. Where Aboriginal and Torres Strait

Islander children cannot remain safely in the care of their parents or community, timely and

culturally appropriate responses for their care, protection and nurture are needed.

Maintaining connection to family, community and culture is essential within a framework that

respects the physical, mental and emotional security of the child. This is particularly important

in light of the historical experiences that Aboriginal families have had with child protection

agencies.

In order to provide culturally appropriate responses, strategies developed under the National

Framework need to be based on partnerships between Indigenous families and communities,

and between Indigenous agencies, mainstream service providers and governments. Strategies

should build on existing strengths, match expectations with appropriate supports, and recognise

the importance of Indigenous-led and managed solutions (Higgins 2005).

28 Protecting children is everyone’s business

Supporting outcome 5

Indicators of

Strategies Initial 3-year actions Delivery change

5.1 Expand access Expand Indigenous Parenting Support Commence • Rate per 1,000

to Indigenous and Services to additional sites 2009-10 Indigenous

mainstream services Complete by children with

for families and 2011 substantiated

children cases compared

Commonwealth

to other children

Link 35 Indigenous Child and Family Centres By 2011

with the range of family and community • Rate per 1,000

programs for at-risk children Through COAG Indigenous

Indigenous children in out-

Improve access to child and maternal Early Childhood of-home care

health services for Indigenous families Development compared with

Partnership other children

Support SNAICC to develop resources and Over 3 years to • Proportion of

materials to support and promote child 2011 Indigenous

and family services within Indigenous children placed

communities Commonwealth in accordance

with the

Continue to focus new activities in the Ongoing Indigenous

Indigenous Family Violence Partnership Child Placement

Program and Indigenous Family Violence Commonwealth

Principles

Regional Activities Program on child

protection issues • Proportion of

Indigenous 3

5.2 Promote the Ongoing support and strengthening of the Ongoing to 4 year olds

development of Northern Territory Emergency Response participating

safe and strong including: Commonwealth

in quality early

Indigenous - the Family Support Package which childhood

communities provides Remote Aboriginal Family education,

and Community workers, Mobile Child development

Protection Team and 22 safe houses in the and child care

Northern Territory services

specialist AFP officers in the child abuse • Rate of

taskforce as part of additional AFP hospitalisations

positions for injury and

poisoning for

Continued support for Indigenous Ongoing Indigenous

community building activities, such as: children aged 0

All jurisdictions to 4 years

Aboriginal children and young people • Ratio of

with opportunities to explore their culture Indigenous

and develop a sense of connectedness to out-of-home

family, kin and community (NSW) care placement

targeting Indigenous communities mainstream

(Commonwealth) or Indigenous

Indigenous community organisations

(Commonwealth)

families in Cape York (Commonwealth)

National Framework for Protecting Australia’s Children 29

Supporting outcome 5 continued

Indicators of

Strategies Initial 3-year actions Delivery change

5.3 Ensure that Develop and expand the Indigenous Ongoing

Indigenous children child protection and welfare workforce,

receive culturally including: States &

appropriate Territories

protection services deliver support to Aboriginal families (NT)

and care

Improve child protection service delivery for Ongoing

Indigenous families and children:

States &

increase capacity and play an enhanced

role in out-of-home care and other service

options (NSW & SA)

the learning agenda to build capacity of

organisations (WA)

and wellbeing of Aboriginal children in the

child protection system (WA)

the transfer of some or all guardianship

responsibilities for Aboriginal children

(VIC)

Aboriginal agencies in all decisions about

placements for Aboriginal children (VIC)

Safe including working with Aboriginal

communities to develop capacity of

services (NSW)

Aboriginal and Torres Strait Islander

communities (QLD)

Program to provide treatment for parents

of children at-risk (QLD)

Strengthen the application of, and Ongoing

compliance with, the Aboriginal and Torres

Strait Islander Child Placement Principle States &

Territories

30 Protecting children is everyone’s business

Supporting outcome 6:

Child sexual abuse and exploitation is prevented and survivors

receive adequate support

Children are protected from all forms of sexual exploitation and abuse through

targeted prevention strategies, and survivors are supported by the community, and

through specific therapeutic and legal responses.

Strategies and services designed to support vulnerable families are important in preventing

maltreatment – especially neglect, emotional and physical abuse. However, child sexual abuse

may require a different response.

Perpetrators may come from inside or outside the family. Sexual abuse can also occur in a range

of settings, including the family home, friendship networks, schools, churches, community

organisations, and online. Legal responses to sexual abuse require the involvement of police and

criminal justice processes alongside child protection services; family law processes may also be

underway (Higgins 2007).

It is estimated that fewer than 30 per cent of all sexual assaults on children are reported and that

the reporting rate is even lower for Aboriginal and Torres Strait Islander children (Stanley, Tomison

& Pocock 2003). Sexual abuse specific strategies are needed both to increase detection of child

sexual abuse and to prevent child sexual abuse across a range of settings.

The vast majority of child sexual abuse perpetrators are family members or someone well known

to the child or young person (Healey 2003). There is also increased reporting of children and

young people with sexually abusive behaviours and of sibling sexual abuse (Neave, Friedman,

Langan, & Little 2004). Risk factors for child sexual abuse are exposure to family violence, other

types of abuse and neglect, pornography, highly sexualised environments and inadequate

supervision (Boyd & Bromfield 2006; Irenyi, Bromfield, Beyer & Higgins 2006).

Raising awareness and knowledge in children and the broader community about risks can foster

protective behaviours and may help to increase detection of abuse. The importance of educating

young people about healthy relationships is increasingly being recognised. Raising awareness

about the role of the internet as a mechanism for the sexual abuse or exploitation of children

and young people is also a central focus. Organisations, businesses and institutions can also play

an important role in protecting children through the development of policies and procedures to

create child-safe organisations (Boyd & Bromfield 2006; Irenyi et al. 2006).

National Framework for Protecting Australia’s Children 31

Supporting outcome 6

Indicators of

Strategies Initial 3-year actions Delivery change

6.1 Raise awareness Implement cyber-safety initiatives Ongoing •Rate per 100,000

of child sexual including: children aged

exploitation and All jurisdictions

abuse, including warning mechanisms (Commonwealth) 10–14, and

online exploitation - Who’s Chatting to Your Kids information 15–19 reported

produced by police (QLD) with sexually

transmitted

Increase support for community-based May–July 2009 diseases

strategies to raise awareness in children,

families and the community about child Commonwealth • Number of

sexual abuse, such as Braveheart’s White individuals and

Balloon Day organisations

prosecuted

Continue to introduce strategies to prevent Ongoing for sexually

sexual exploitation, such as: exploiting

States & children (TBD)

intervene earlier with young people who

exhibit sexually abusive behaviour to help • Number

prevent ongoing and more serious sexual and rate of

offences (VIC) children with

substantiations

Assault in Aboriginal Communities (NSW) abuse

6.2 Enhance Implement a national framework for inter- Trial to conclude

prevention strategies jurisdictional exchange of criminal history December

for child sexual abuse for people working with children 2009 with

Implementation

to follow

Through

the COAG

Exchange of

Criminal History

Information

About People

Working with

Children Project

Implementation

Committee

Investigate best practice therapeutic From July 2009

programs for children displaying sexually

abusive behaviours, such as: States &

Territories with

agencies and therapeutic treatment support for

service providers to build a state-wide research

therapeutic treatment service system to

implement the relevant provisions of the

Children, Youth and Families Act 2005 (VIC)

10-17 years who display sexually abusive

behaviours (NSW)

32 Protecting children is everyone’s business

Supporting outcome 6 continued

Indicators of

Strategies Initial 3-year actions Delivery change

6.3 Strengthen law Extend work in the detection, investigation By 2011-12

enforcement and and prosecution of online sexual

judicial processes exploitation Commonwealth

in response to child

sexual abuse and

exploitation

6.4 Ensure survivors Support workshops for adult survivors of 2009

of sexual abuse have sexual abuse, parents and spouses

access to effective Commonwealth

treatment and with Heartfelt

appropriate support House

Review service delivery options and Ongoing

approaches for survivors to align with best

practice such as WA’s expanded network of States &

Child Sexual Abuse Therapeutic Services Territories

National Framework for Protecting Australia’s Children 33

New Full page pic needed here A4 size

Implementing the National

Framework

The National Framework is a 12-year overarching strategic framework for reform (2009-2012),

supported by rolling three-year action plans identifying specific actions, responsibilities and

timeframes for implementation.

The task of ensuring the safety and wellbeing of all Australian children is a long and difficult

one. The action plans provide a staged approach to achieving the necessary reforms identified

within the National Framework. They also allow governments to address current and emerging

priorities, as resources permit. The Australian, State and Territory governments and non-

government agencies are committed to working together to develop actions under these

triennial plans, implementing key actions and reporting on progress.

Governance arrangements

A focus on broader early intervention and prevention across a range of areas which impact

on the safety and wellbeing of children requires a move away from the traditional ‘single

agency’ approach for the ongoing management and monitoring of the National Framework.

The National Framework will require integrated governance arrangements that cut across

government boundaries and include the non-government sector in order to plan and implement

actions.

The Community and Disability Services Ministers’ Conference is responsible for the implem-

entation of the National Framework. It will report annually to the Council of Australian

Governments on progress on the first years, action plan and provide further action plans for

consideration.

In addition, a Ministerial Forum on Protecting Australia’s Children will be convened to bring

together Ministers with responsibilities under the National Framework. This Ministerial

Forum, hosted by the Community and Disability Services Ministers’ Conference, will also invite

contributions from non-government representatives, such as State and Territory Children’s

Commissioners and children and young people.

The Community and Disability Services Ministers’ Conference will continue to be supported by the

officials’ forum - the Community and Disability Services Ministers’ Advisory Committee (CDSMAC)

to manage the National Framework.

A tripartite National Framework Advisory Committee will be established to advise on the

operation of the National Framework. This tripartite Committee will comprise CDSMAC officials

with nominees from other sectors (such as health, education and justice) and non-government

representatives (such as leading academics, practitioners and peak organisations). Children and

young people are critical stakeholders who will need to be involved in this Committee through a

relevant representative organisation.

Supporting the formal governance mechanisms will be a series of working groups, with

members drawn from government and non-government organisations as appropriate. They will

be asked to assist with the development and implementation of specific action areas or items.

Implementing the National Framework 35

Implementation Plan

With the release of the National Framework the Australian, State and Territory governments will

work together to develop an Implementation Plan. The Implementation Plan will focus on the

actions agreed to for the first three years and will outline their scope, resourcing and timing.

The Implementation Plan will be developed within three months and considered by the

Community and Disability Services Ministerial Advisory Committee at its August meeting.

The Implementation Plan will be a key tool in measuring progress of the National Framework. All

jurisdictions and stakeholders will be able to monitor progress against activities and milestones

outlined in the Implementation Plan. A set of performance indicators will be developed as part

of the Implementation Plan, providing another opportunity to monitor progress and outcomes.

Reporting processes for the National Framework will provide an opportunity to streamline

existing reporting processes to ensure greater levels of transparency.

As part of the Implementation Plan the options for a periodic information symposium will be

explored.

Evaluation

At the conclusion of the first three year period (2012) the Community and Disability Services

Ministers’ Conference will seek an evaluation of the National Framework. Central to this

evaluation will be the collection and analysis of data against the outputs and performance

indicators identified in the Implementation Plan, as well as the progress and performance

against each of the attached State and Territory action items.

The evaluation process will also draw from data collected and analysed in associated portfolio

areas, such as early childhood, housing and health.

36 Protecting children is everyone’s business

Implementing the National Framework 37

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Siminski, P., Chalmers, J., & McHugh, M. (2005). Foster carers in New South Wales: Profile and

projections based on ABS Census data. Children Australia, Children Australia (30) 17-240.

Stanley, J., Tomison, A. M., & Pocock, J. (2003). Child abuse and neglect in Indigenous Australian

communities. Child abuse prevention issues, 19. Retrieved from www.aifs.org.au/nch/issues/

issues19.html

Stronger Families Learning Exchange (2002). Early intervention and prevention: The evidence base

underpinning family and community policy. Bulletin, 1, 5. Retrieved April 2009 from www.aifs.gov.

au/sf/pubs/bulletin1.html

Van der Kolk, B. (2003). The neurobiology of childhood trauma and abuse. Child and Adolescent

Psychiatric Clinics of North America, (12) (2), 293-317.

Wood, J. (2008). Report of the Special Commission of Inquiry into Child Protection Services in

NSW: Volumes 1-3. Sydney: State of NSW through the Special Commission of Inquiry into Child

Protection Services in NSW.

40 Protecting children is everyone’s business

References 41

Appendix A

Current initiatives and reforms

The process followed by child protection agencies to deal with concerns about children involves:

• receiving reports of concern from mandated reporters or members of the public

(notifications)

• gathering information to determine if an investigation is necessary and conducting an

assessment of the risk to the child and the needs of the child

• determining whether the report is substantiated (i.e. the child has been abused/neglected or

is at-risk of harm)

• determining whether the safety concerns for the child can be dealt with through referral to a

family support service, or whether the risk is so high that the child must be removed from the

family and placed in care.

These actions are defined in legislation and policy. Certain legislative principles are common to all:

• The child’s best interests are paramount. Interests of the parent/s or carers cannot override

this principle; nor can the Aboriginal placement principle.

• The Aboriginal placement principle requires that Aboriginal or Torres Strait Islander children

who are removed from home will be placed with their own family, community or other

Indigenous carer. This is achieved in 74 per cent of placements nationally.

In the last decade all State and Territory care and protection systems have undergone major

reviews. In most, but not all case, reviews have been triggered by revelations of severe abuse

and/or death of children in State care. There are a number of reforms which are common to all

systems:

• the safety and wellbeing of children is a shared community responsibility

• collaborative interagency partnerships and, in some instances, priority service to children and

young people in the care and protection system

• expanded role for non-government providers of family support and out-of-home care services

• strengthened requirements for the recruitment and training of foster and kinship carers

• charters of rights for children and young people in care

• children and families empowered to participate in decision making

• Children’s Commissioner and/or Children’s Guardian positions created to advocate for

children within systems, monitor the performance of child protection agencies and, in some

cases, monitor the performance of the out-of-home care system

• significantly increased investments in services available to vulnerable families and children

at-risk

• specific services for Aboriginal and Torres Strait Islander clients established

42 Protecting children is everyone’s business

• new service delivery models established so many children at-risk can be diverted from

statutory intervention. 5

Today, while many of the challenges have been tackled. A number remain, these include:

• reducing the incidence of abuse and neglect of children and young people across Australia

• working with Indigenous communities to address the complex causes of child abuse and

neglect 6

• recruiting/retaining people with specialised skills demanded in government, non-government

and carer workforces

• providing more therapeutic residential facilities for severely affected children and young

people who require intensive, sustained interventions

• building local evidence of the extent of child abuse and neglect within Australia and what

works to prevent it - for both Indigenous and non-Indigenous populations

• developing service standards so that any child or young person entering the child protection

system, or care, receives quality care

• removing barriers to improved information sharing and comparable national data collections

• creating a strong and responsive network of services (universal, secondary and tertiary) that

are accessible, inclusive and non-stigmatising

• improving the care options available and increasing the stability of placements

• building capacity in families, communities and services

• providing much more support in the transition to independent living for young people leaving

care at age 18.

The National Framework for Protecting Australia’s Children will align with existing

initiatives and reforms. Some of the current Australian, State and Territory key reforms

and initiatives are described. Further mapping and alignment will take part throughout

the life of the National Framework.

5 Victoria led the way for other jurisdictions in this regard, when its research showed that 1 in 5 Victorian children would be reported

to child protection authorities if the trends in notifications of recent years were allowed to continue (ChildFIRST program in

Victoria).

6 In this context, it should be noted that neglect is by far the biggest causal factor for involvement in the child protection system for

all children.

Appendix A 43

AUSTRALIAN CAPITAL TERRITORY

Agency functions

The functions of the ACT Department of Disability, Housing and Community Services cover care

and protection of children at-risk of harm, youth justice, early intervention services, out-of-home

care services, Indigenous policy and programs, adoption, children’s services, therapy services for

children, disability services, women’s policy, disaster recovery, multicultural policy and public

housing (including services to homeless people).

Care and protection services are delivered from a centralised location which operates intake,

assessment using a differential response model, substantiation and referral functions. Two

regional Child and Family Centres offer midwifery baby health clinics, targeted playgroups,

parenting skills development programs, and case management for vulnerable families.

Outposted child protection officers, located in the two Child and Family Centres, work

collaboratively with the government and non-government sector to provide early intervention

services. The Department funds a number of home care agencies and sets standards and

regulates their operations.

The Office for Children, Youth and Family Support (OCYFS) and the non-government sector

provide an Integrated Family Support Project (IFSP). The IFSP is a joint initiative between the ACT

Government, Australian Government and the non-government sector across the ACT targeting

children under 8 years and their families who have multiple and emerging difficulties. The aim

of the project is to divert families from the statutory system and prevent re-entry using a case

coordination framework.

Major recent and planned reforms

• Children’s Plan Services

• Early Intervention and Prevention Unit established

• Established new Child and Family Centres to provide universal and targeted services

• Established the Indigenous Integrated Service Delivery Program

• In partnership with SIDS and Kids, developed easy to read messages and pamphlets on

‘safe sleeping’ have been developed

• Therapy ACT

• Service development for children by

• Establishing Early Learning Centres and Child and Family Centres

• Child Protection Reform

• Established the IMPACT Program to provide a coordinated service for pregnant women,

their partners and their children under two years of age

• Established the Integrated Family Support Project for families at-risk of entering the

statutory system

• Reformed Child Protection legislation

• Reforming Out-of-home Care Program including a new framework which articulates

contemporary service models

44 Protecting children is everyone’s business

• Information exchange and established Care Teams.

• New Out-of-home Care Standards developed.

• A ‘Time to Fly’ leaving care kit developed

• Legislative requirements for day care planning

• Child Protection Protocols in cooperation with other government agencies

• Sharing Responsibility: A Framework for Service Collaboration for the Care, Protection and

Wellbeing of Children and Young People in the ACT outlines the responsibilities of the ACT

Government and its approach to working together for the care and protection of children and

young people in the Territory.

• Supervision Framework with Supervision Standards developed to support clinical staff in

their roles as practitioners

• A compliance framework that will include the development of a compliance auditing

and quality assurance process with the developmentof compliance monitoring tools and

applications

• A newly developed and implemented Case Management Framework to provide more

integrated and collaborative responses within the government and non-government

sector

• The development of a Neglect Policy to better support staff in identifying and dealing with

this form of abuse

• Establish a vulnerable Families Project focussing on care co-ordination, referral pathways

and information exchange

• Protocols for the Interstate Transfer of Care and Protection Orders Protocol

• A complex case review panel to provide a forum for care and protection caseworkers to

present and discuss cases with significant complexity with a panel of professionals.

Reforms since 2000

A review of child protection services in the ACT in 2004 led to the Government adopting and

implementing a 3 year reform program from August 2004, in which the primary goals were:

• to improve the quality standards for care and protection services and immediately expand

services targeted at children and young people most at-risk of entering the care and

protection system

• to develop a continuum of early intervention and prevention services from birth to 18 years.

Practical measures to achieve these goals have included:

• DHCS’ second wave of overseas recruits to Care and Protection positions was undertaken in

2008 resulting in a full complement of staff being achieved in Care and Protection Services

• strengthening accountability measures including the development of a complementary

auditing and quality assurance process

• establishing new and better partnerships between government and non-government

agencies

• expanding community education and awareness of child safety and wellbeing

Appendix A 45

• improving training for foster carers

• developing specific responses to meet needs of Aboriginal and Torres Strait Islander children,

including establishing a specific functional unit with the department

• establishing the Office of Commissioner for Children and Young People and promoting the

participation of children and young people in decision making

• exchange of staff between ACT Health and DHCS

• introducing an interagency agreement for service provision to clients with high level, complex

needs

• reviewing Children and Young People legislation in 2005 and again in 2008. The first review

introduced the concept of child or young person at-risk of abuse and neglect; clarified who

mandatory reporters are; protection and release of information; principles to safeguard

culture and community connections for Indigenous children and young people. The second

review led to the development of the new Children and Young People Act 2008 and introduced

significant reform to the law relating to children and young people in the ACT, particularly in

the areas of care and protection including in-utero reporting, youth justice, the regulation of

childcare services and employment.

Reforms for the future

• Legislation provides for new OOHC standards – these are currently being developed.

• Continuing with work to improve interactions between care and protection and the legal

system, including the Court

• Case Management Framework supporting improved work practices

• Common Assessment Framework is being piloted and will provide a common method of

assessment that can be used across all agencies

• Compliance Framework for the Children and Young People Act 2008 is currently being

developed.

46 Protecting children is everyone’s business

NEW SOUTH WALES

Agency functions

The NSW Department of Community Services (DoCS) functions cover care and protection of

children at-risk of harm, early intervention services, out-of-home care services, adoption, children’s

services, disaster recovery, and services to homeless people. DoCS’ services are available through 7

regional offices and 86 community services centres across the state.

Major recent and planned reforms

Following the Special Commission of Inquiry into Child Protection Services in NSW, the NSW

Government response, Keep Them Safe: a shared approach to child wellbeing 2009-2014 was

released on 3 March 2009. Keep Them Safe is a five-year action plan that aims to build a stronger,

more effective child protection system in NSW.

A key objective of Keep Them Safe is to create an integrated system that supports vulnerable

children, young people and their families. This includes the establishment of new reporting

and referral arrangements to allow families to access appropriate services from government

agencies and non-government services without having to come in contact with the statutory

child protection system. The establishment of alternative service pathways is a similar approach

to that adopted by some other jurisdictions, including Victoria.

Key reforms contained within the NSW Government action plan include:

• Establishing Child Wellbeing Units in NSW Health, NSW Police, the Departments of Education

and Training, Housing, Ageing, Disability and Home Care and Juvenile Justice, to advise

mandatory reporters within these agencies on the new statutory reporting threshold of “risk

of significant harm” and to assist in responding to matters which do not meet this criteria

• Expanded services and a focus on prevention and early intervention, including:

• expanding the Brighter Futures early intervention program to support vulnerable families

with children aged 0-8 by providing access to a range of services, including quality child

care, case management, parenting program and home visiting. Consideration will also be

given to extending Brighter Futures to 9-14 year olds, including priority access for Aboriginal

children and their families, following examination of the evidence base

• extending intensive family preservation services to support families whose children are at-

risk of entering out-of-home care

• continuing to trial Sustained Health Home Visiting, with further expansion to be

considered in 2010, which employs specialist child and family health nurses to work

intensively with high needs families in pregnancy and during the first two years of a

child’s life

• employing additional Home School Liaison Officers to work with families where there are

concerns about non-attendance at school

• A new partnership with, and an enhanced role for, the non-government sector, including:

• funding NGOs and/or local councils to establish new Regional Intake and Referral services.

These organisations will work with the Child Wellbeing Units to improve access to

services for children and families. Three initial Regional Intake and Referral services will be

established in 2009

Appendix A 47

• enhancing the role of the NGO sector in the delivery of OOHC and the Brighter Futures

early intervention program

• investing in capacity building and reform of funding arrangements. In particular, the

Government will work with Aboriginal communities and organisations to support

communities to address the unacceptable overrepresentation of Aboriginal children

and young people in the child protection system. Priority work will be undertaken with

Aboriginal organisations to build their capacity to play an enhanced role in the provision of

out-of-home care and other services.

Reforms since 2000

The Children and Young Persons (Care and Protection) Act 1998 was implemented in stages from

2000, and reviewed in 2005-2006.

• Brighter Futures early intervention program, introduced in 2002, is a voluntary program

providing targeted, tailored support to vulnerable families with children aged under nine

years, or who are expecting a child

• Aboriginal Intensive Family Based Service is a unique strengths-based service targeting high

risk children. The program provided support to 175 children in 2007-08

• Families NSW brings relevant government agencies together to provide support to families

raising children up to 8 years of age. DoCS provided $5.2 million over four years to roll out

the Triple P parenting course to all parents with children 3-8 years. First courses began in

September 2008. By 2011, 1200 health, welfare and education professionals will be accredited

in use of this program

• Preschool Investment and Reform Plan $85 million additional funding for DoCS will provide

expansion of the preschool program throughout the children’s services sector; 10,500

additional children will attend preschool for two days a week in the year before they start

school

• Aboriginal Maternal and Infant Health Strategy, jointly funded by DoCS and NSW Health,

was implemented across the State. The strategy is aimed at improving the health of

Aboriginal mothers and their newborn babies by providing accessible, culturally appropriate

maternity care programs for women and their families. Since its introduction in 2000, the

strategy has achieved remarkable outcomes such as halving the rate of premature birth and

perinatal mortality, improving breast-feeding and increasing access to antenatal care early in

pregnancy

• Collaboration is promoted through the following interagency plans and processes

• Joint Investigation Response Teams (JIRT) with DoCS, police and health, who investigate

cases of child abuse that may constitute criminal offences. in 2007-08, 3,000 such cases

were referred

• a new policy trialled in 2008 to improve collaboration between DoCS and NSW Health, to

support at-risk pregnant women. A joint evaluation is scheduled for 2009. Both agencies

have funded statewide expansion of the NSW Aboriginal Maternal and Infant Health

strategy

• NSW Interagency Guidelines for Child Protection Intervention 2006 (first introduced in 1991)

were updated and evaluated

48 Protecting children is everyone’s business

• Interagency Plan To Tackle Child Sexual Assault In Aboriginal Communities 2006-2011

contains 88 actions to prevent child sexual assault in Aboriginal communities and improve

the way services are planned, coordinated and delivered to victims and their families, with

a budget of more than $52.9 million over four years.

Appendix A 49

NORTHERN TERRITORY

Agency functions

The Department of Health and Families includes the Northern Territory Families and Children’s

Division (NTFC), the responsible agency in the Northern Territory for child protection, out-of-

home care, family and parenting support, support for individuals and families in crisis including

those who are homeless or at-risk of homelessness, women’s policy, victims of domestic or

family violence or sexual assault, youth services including youth diversion services, and adoption.

Mandatory reporting is universal in the Northern Territory. This contrasts with all but one other

jurisdiction, where only specified categories of employees are required by law to report child

abuse.

The Care and Protection of Children Act 2007 provides the legal framework for care and protection

services, screening for child related employment, employment of children, prevention of child

deaths and regulation of children’s services, and establishes a Child Death Review Committee

and the post of Children’s Commissioner. The Act requires decisions to be made in the best

interests of the child, and describes the considerations that apply in making such a decision. The

Act requires children to be treated with respect and to participate in decisions affecting them.

Specific provisions relate to the treatment and placement of Aboriginal children. The Act provides

for access to support for young people leaving care up to age 25.

Major recent and planned reforms

• Child Abuse Taskforce including Aboriginal Community Resource workers

• Co-located NTFC child protection workers in Indigenous Targeted Family Support Service

organisations

• Mobile Response Teams able to be deployed as needed to relevant communities

• Remote Aboriginal Family and Community Workers

• Structured Decision Making tools and systems

• Secure Care initiatives for high-risk young people

• Linked up for Safe Children initiative to coordinate local solutions across the government and

non-government sector using a place-based framework

• Family Group Conferencing with an emphasis on providing a culturally secure approach to

developing plans for the wellbeing of children at-risk

• Child Protection research partnership with the Menzies School of Health Research

• A Practice Advisor initiative to support case work practice

• A network of Safe Houses established in key communities

Reforms since 2000

The child protection system in the NT has undergone significant change since 2003 when the

Caring for Our Children reform agenda was announced. Two critical elements of this reform

agenda were the introduction of new legislation and the development of different responses

to vulnerable children and families through the implementation of a Differential Response

Framework.

50 Protecting children is everyone’s business

In 2006 the Board of Inquiry into the Protection of Aboriginal Children from Sexual Abuse (the

Inquiry) was established by the Northern Territory Government. The Inquiry’s subsequent report

(Anderson & Wild 2007) – the Little Children are Sacred report - supported legislative and systemic

reforms in the NT as critical child protection measures. Report recommendations focused on the

priority action areas including:

• education (getting children to school is vital; at school they are safe) and education

campaigns to raise awareness of child sexual abuse and how to respond to it

• reducing alcohol consumption

• improving family support services

• empowering Aboriginal communities

• creating a position of Commissioner for Children and Young People

In response, the NT Government developed a generational plan of action (Closing the Gap) to

combat Indigenous disadvantage, with funding of $286.43 million over 5 years for initiatives

across child protection, family violence, policing, justice, alcohol and drugs, health, housing,

education, jobs, and culture. Since 2007, the Australian Government Northern Territory

Emergency Response (NTER) and the Northern Territory Government’s responses through Closing

the Gap have contributed to the strength and direction of reforms in the child protection system.

Major provisions of the Care and Protection of Children Act 2007 (CPCA) were introduced in late

2008. This legislation makes provision for the development of many new initiatives including:

• a Children’s Commissioner

• Working with Children checks for all people working in child-related employment

• mediation / family group conferencing

• child Safety Review Teams

• leaving Care support

In addition the CPCA provides the legislative basis for increased interagency collaboration in child

protection by supporting the sharing of information between agencies and the development

of different responses to child protection reports. The NT Differential Response Framework (the

Framework) envisages low risk high needs families being referred to support agencies rather

than being the subject of forensic child protection investigation. The Framework is being rolled

out in a number of NT centres through the funding and establishing of Targeted Family Support

Services (TFSS) to respond to the needs of these families.

The development of Aboriginal Child Protection and Family Support Services by Aboriginal

agencies is a key focus in the NT’s reforms and in particular the Northern Territory Government

has focused on supporting Aboriginal agencies to develop TFSSs. Additionally, Remote Aboriginal

Family and Community Workers are being based in a number of major remote Aboriginal

communities. NTFC is undertaking a place-based approach to the development and delivery of

services for families in remote communities and is planning to engage with communities to

ensure that new services meet the needs of the community and that NTFC funded services are

linked up with services in the areas of child care and health.

Appendix A 51

Forensic responses have been strengthened through the establishment and ongoing

development of co-located NTFC/Police teams, mobile response teams, and increasing resources

within child protection offices including stronger risk management and decision making

frameworks for child protection and out-of-home care (OOHC) through the introduction of a

suite of assessment and decision making tools

More therapeutic responses and a greater range of options for children in OOHC are being

developed through the provision of Specialist Care placements, therapeutic services to children in

care and the development of secure care options in line with the OOHC Strategic Plan.

52 Protecting children is everyone’s business

QUEENSLAND

Agency functions

The Department of Communities includes Child Safety Services, which provides statutory child

protection services delivered under the Child Protection Act 1999, foster and kinship care and

adoption services and has 49 metropolitan and regional Child Safety Service Centres.

The Department of Communities includes Community Services, which has responsibility for

delivering early intervention and family support services.

Major recent and planned reforms

• One Chance at Childhood initiative, a specialist program to secure safety and stability for

babies and toddlers in the child protection system

• Establishment of Safe Houses in Aboriginal and Torres Strait Islander communities to provide

on-community placement and support services for children and families subject to statutory

child protection

• Establishment of Therapeutic Residential Services to provide an intensive therapeutic

environment to support young people to recover from the impact of physical, psychological

and emotional trauma and pain experienced from abuse and neglect

• Suspected Child Abuse and Neglect (SCAN) system to provide a multi-agency response to the

protective needs of children within the tertiary child protection system

• Establishment of Early Years Centres providing a ‘one-stop-shop’ where early childhood

education and care, family support and health services are available for families expecting a

child or with children aged up to eight years

• Referral for Active Intervention Services for families at-risk of entering statutory child

protection services

• Evolve Therapeutic and Behaviour Support Services for children with complex and extreme

emotional and behavioural issues

Reforms since 2000

• The Queensland Government has undertaken significant reform of its tertiary child protection

system in recent years. Children in care now have education and health plans and a range of

new services to support the wellbeing of children in care.

• Foster carers are supported with increased allowances, enhanced foster carer training, an after

hours carer helpline and a carer handbook setting out carer rights and entitlements.

• Referral for Active Intervention services provide intense family support for families of children

at-risk of entering out-of-home care.

• Recognised Indigenous entities are funded to provide support and advice about child

protection decisions and placements for Aboriginal and Torres Strait Islander children.

• The Child Safety Practice Manual, Structured Decision Making tools and the statewide

Integrated Client Management System have enhanced the quality of child protection practice

and the capacity of child protection staff to manage their cases.

Appendix A 53

• A range of specialist positions support quality practice, including court coordinators,

recordkeeping officers, early childhood experts, family group meeting coordinators and

therapeutic and behavioural support professionals.

• The Queensland child protection system is more accountable, overseen by the Commission

for Children and Young People and Child Guardian and the external child death case review

committee.

• Child protection officers today receive enhanced training, incentives and support to attract

and retain staff, particularly in rural and remote areas.

54 Protecting children is everyone’s business

SOUTH AUSTRALIA

Agency functions

The South Australia Department for Families and Communities (DFC) is responsible for child

protection, family support, out-of-home care, young offenders, adoption, refugee children,

support to families in poverty, and disaster recovery. Services are delivered through 18 district

centres across three regions.

The safety and wellbeing of children is considered a shared community responsibility. Accordingly,

government continues to work towards greater collaboration between government agencies

(particularly health, education and police), with the non-government sector and with families.

Major Recent and Planned Reforms

• New targeted early intervention initiatives

• New family preservation and reunification initiatives;

• A new integrated child and family case management system

• New models for out-of-home care

• Reshaping the child protection system towards relationship based practice

• Children’s Centres that bring together health, education, community and family services for

families and their children aged 0-8 years

• Whole of government protocol for sharing information where a child is at-risk

• New responses to drug and alcohol related concerns for the care and protection of children

• The Keeping Them Safe – in Our Care strategy will continue in 2008-09 with more community

based services to support families who are subject to child protection notifications, to

stabilise the family situation and enhance parenting capacity, and to develop intensive family

preservation services for families with children at high risk of entry to alternative care, and to

return those children who are in alternative care to the safe care of their family.

Reforms since 2000

In 2002, the government commissioned Robyn Layton, QC, to conduct a Review of Child

Protection in South Australia.

The Government responded to the recommendations of the Review with Keeping Them

Safe: the South Australian Government’s child protection reform program. The reform agenda

prioritises children’s safety and wellbeing and promotes greater collaboration between

government agencies, with the non-government sector and with families. The program included

amendments to the Children’s Protection Act 1993 (proclaimed in 2006) that were proclaimed in

2006 that:

• prioritise the care and protection of children as the first consideration in all planning and

decision making

• provide a stronger commitment to make sure that children and their families have access to

support services

• build community capacity to protect children through the establishment of child safe

environments

Appendix A 55

• establish common standards across all sectors for criminal history checking

• extend mandatory reporting of suspected child abuse

• establish the Office of the Guardian for Children and Young Persons to promote the best

interests of children under guardianship of the Minister

• establish the Council for the Care of Children to review the operations of legislation, and

report to and advise the Minister on all matters affecting the safety of children

• establish the Child Death and Serious Injury Review Committee to review the circumstances

and causes of deaths and serious injuries to children and make recommendations to

Government.

In 2005 South Australia established Rapid Response: Whole of Government Services – a Framework

and Action Plan with the aim of ensuring that children and young people under the guardianship

of the Minister for Families and Communities receive the supports and services available to

those with strong family networks through priority access to government funded services. Part

of the focus of Rapid Response is the provision of transition planning from care, including the

provision of post Guardianship supports and services.

In 2008 $192 million was committed over four years to the Keeping Them Safe – In Our Care

strategy. It emphasises early intervention, early years services, whole child within family

context, and ‘joined up’ government responses. Reforms through the Stronger Families Safer

Children program emphasise strengthening families and keeping them together wherever

possible; tackling problems and building capacity in families; providing stable, high-quality

care; individualised and integrated care plans; taking better care of children with complex

needs; training carers and keeping them informed; better remunerating carers; and helping

grandparent carers access services for children.

Policies, procedures, practice frameworks and practice guidelines are undergoing considerable

review and development across all aspects of the care and protection process to support the

substantial reforms.

Aboriginal-specific initiatives include:

• embedding the Aboriginal Child Placement Principle in legislation and policy

• a dedicated Aboriginal service providing advice and assistance on abuse and neglect of

Aboriginal children

• a specialist metropolitan-based team of Aboriginal service providers delivering targeted

youth work services

• the Aboriginal Culture and Identity Program which supports preservation of family and

cultural ties for Aboriginal children and young people who are under the Minister’s

guardianship.

In April 2008 SA Parliament received the Children in State Care Commission of Inquiry Report

(the Mullighan report) on abuse of children in care from Commissioner The Hon E.P. Mullighan

QC. The Government responded initially with services for survivors of abuse and neglect and

made compensation available to adult victims. Commissioner Mullighan also investigated

allegations of child sexual abuse on the APY lands. The Government is progressing responses to

Commissioner Mullighan’s recommendations including proposals for legislative reform.

56 Protecting children is everyone’s business

TASMANIA

Agency functions

The responsibilities of the Department of Health and Human Services (DHHS) cover a broad

range of services including both acute and primary health care as well as mental health and

drug and alcohol services, and human services. Human Services comprise Housing Tasmania

and Disability, Child, Youth and Family Services, which are delivered through four area offices. As

part of a staged reform process commencing in 2009 some human services will be delivered by

the non-government sector. Ongoing partnership arrangements between the Department and

service providers will ensure that services are coordinated with a client focus and quality assured.

The Tasmanian Government both provides and funds a range of services to ensure that children

and families are supported, particularly in the early years. These are delivered through the

universal Child Health and Parenting Services (DHHS); the Department of Education (Launching

into Learning); and an array of non-government organisations. Tasmania recognises the need

to strengthen parenting capacity and family functioning, as well as the importance of early

intervention and the need to monitor any potential for cumulative harm in family circumstances

that are less than ideal.

As well as this, the Children, Young Persons and Their Families Act 1997 mandates that all adults

have a responsibility to report suspected abuse or neglect of a child; and certain “prescribed

persons”, such as health sector staff, teachers, people who work with children, must report

concerns or face a penalty. The legislation describes the safety and wellbeing of children as

a shared community responsibility; has a focus on taking on the viewpoint of the child; and

includes principles of the best interests of the child and Aboriginal placement.

This legislation is complemented by the Safe at Home Program, an integrated whole of

Government response to family violence in Tasmania. Safe at Home is enabled by the provisions

of the Family Violence Act 2004. In 2008 the Tasmanian Safe at Home Program was the National

Winner of the Australian Crime and Prevention Award.

The Tasmanian Commissioner for Children examines legislation, policy and practices that affect

the health, welfare, care, protection and development of all children to help ensure they operate

in the best interests of the child. Children includes all children and young people under the age of

18 years.

A series of recent reviews revealed a system with limited capacity to respond to the needs of

children, young people and families. Services were not reflecting current research findings

about early brain development and the need for a focus on prevention and early intervention to

alleviate the stress on the tertiary system. As a result, Tasmania wanted to adopt well researched,

outcome-focused service models from other jurisdictions.

Major recent and planned reforms

• Establishing Community Gateway Services to provide a single community entry point in each

area which will enable children and families to ask for support (and other professionals to

refer them for support) through the Community Gateways without reference to the child

protection system.

• Establishing integrated family support services in each of the four areas in Tasmania.

• Establishing 30 child and family centres across Tasmania, with construction on the first eight

to begin in 2009.

Appendix A 57

• Reforming out-of-home care services and disability services including funding to have these

services provided by the non-government sector.

• Staged implementation of a new Child Protection Information System (CPIS) from 2008. The new

system has given Child Protection Services an increased capacity to manage the entry, allocation

and approval of notifications and investigations.

• Integrating local services.

• Introducing the Tasmanian Child Protection Practice Framework based on New Zealand research

and practice.

Reforms since 2000

The primary aims of Tasmania’s reforms have been to meet the needs of children, young people

and their families; to identify and support children and young people at the highest risk of abuse

or neglect; to be culturally responsive and strengths and evidence based; and to build a more

responsive system through greater use of non-government family services.

Four regional service centres have been created to replace the centralised intake. Each service

centre is required to develop a network of service supports building on existing resources (health

services, schools, police etc.). Over time these service centres and networks will integrate with the

Community Gateways providing a community intake point for children and young people at-risk.

A co-located child protection worker will assist with this process.

The aim of the coordinated children and family services is to:

• focus on early intervention and prevention

• create system capacity to respond to needs of vulnerable families

• monitor cumulative harm

• provide therapeutic services where required

• use coordinated planning for intervention and integrated responses.

Because of the overall focus outlined above, Child Protection Services is able to target the more

serious cases of abuse and neglect. Further, in 2008 Child Protection Services adopted a response

model which reorientates staff into three teams: intake, response and case management. Intake

has been decentralised to each area and intake teams work with senior child protection staff to

determine which cases require a child protection response, while the response team is required to

conduct an assessment of the risk to children in a way that is timely (completed within four weeks).

A five-year reform plan for out-of-home care services commenced in 2008 and includes:

• providing a greater range of placement options

• improving stability of placement for children and young people in care including the option of

transfer of guardianship to an approved stable carer

• improving support to carers

• better coordination and matching of child to carer within the placement process

• a move in the future to recruitment, training and accrediting carers being undertaken by the

non-government sector

• the development and implementation of individual care plans for each child or young

person in care.

58 Protecting children is everyone’s business

Appendix A 59

VICTORIA

Agency functions

The Victorian Government has a progressive and ambitious reform agenda for Victorian child and

family services. Developed in close partnership with Victorian community service organisations,

the Every Child Every Chance reforms have focused on putting children and young people first, the

goal being to ensure that vulnerable children and young people thrive, learn and grow and are

respected and valued so that they can become effective adults. The reforms are underpinned by a

commitment to best practice. They have been informed by contemporary national and international

research and innovative approaches to strengthening vulnerable families, protecting children and

young people and promoting vulnerable children’s healthy development, safety and wellbeing –

learning that has been tailored to Victorian circumstances and needs.

Victoria’s approach recognises that all children need capable, nurturing parents and a caring child

and family friendly community. The reforms emphasise the importance of supporting parents to

play this role. Where parents experience stresses that impact on their care of children, Victoria’s first

goal is always to work supportively with them to keep families together. If children cannot live safely

at home, work is undertaken intensively with their parents to address problems, build resilience

and enable a child to return home safely as quickly as possible. Where this is not possible, the goal

is to ensure that children experience stable and high-quality alternative care. Victoria’s approach

recognises that the protection of children cannot be separated from policies and programs to

improve children’s lives as a whole.

Major recent and planned reforms

Enshrining children’s best interests at the heart of all decision making

• The Victorian legislation builds a shared responsibility for protecting children and young people,

but also proactively promotes their development and longer term wellbeing. Harm needs to

be better understood so as to encompass accumulated harm, as well as acute crisis, or a single

serious incident. The new best interests principles provide a common framework for everyone

working under the Victorian legislation.

Building an integrated service system that is more localised, better coordinated and is responsive to

family needs

• The problems facing vulnerable families have become more complex in recent times. Substance

abuse and family violence have become the most common characteristics of families in contact

with child protection. Where children and young people are at-risk of harm, their families are

often grappling with one or more issues from amongst long-term poverty, social exclusion,

relationship breakdown, family violence, substance abuse, mental illness or disability. A one-size-

fits-all approach will not work. Services need to be tailored to local conditions and needs

• There is no evidence that relying on child protection as the primary service to protect vulnerable

children and families makes a sufficient lasting difference. Victoria’s approach is based on

building a flexible and graduated range of service responses. Major system reform is necessary

to bring earlier intervention and child protection sectors together, and link them to early

childhood services to form a coordinated system

• From April 2007, Child FIRST (Child and Family Information Referral and Support Teams) were

introduced to provide an identifiable entry point to services needed to support children, young

60 Protecting children is everyone’s business

people and families where there are concerns for the wellbeing of a child or young person.

Child FIRST is now in place across all of Victoria, covering 24 catchments.

Reforms to assist Aboriginal children and families

• The recognition of the positive value of Aboriginal culture is reflected in the Best Interest

Principles governing all decision making in Victoria

• The Victorian legislation permits the transfer of gu.ardianship responsibilities from DHS to an

Aboriginal Head of an Aboriginal organisation.

• Measures are underway to build the capacity of Aboriginal Community Controlled

Organisations to provide child and family welfare services, including out-of-home care, for

Aboriginal families.

Children in out-of-home care – improving children’s stability

• A critical theme of Victoria’s reforms is improving vulnerable children and young people’s

stability in care and wellbeing, recognising scientific knowledge about the lasting impact of

early experiences on the development of young children’s brains. This is reflected in a focus

on stability planning to address how a child will receive continuous, stable care away from

home and the use of specified time frames. Despite reducing the number of new entrants

into out-of-home care, Victoria’s out-of-home care system is faced with a number of new and

emerging challenges into the future.

A new response to children aged 10-15 exhibiting sexually abusive behaviour

• Recognition of the inability of the criminal justice system to provide a reliable pathway into

treatment for young people who exhibit sexually abusive behaviour led to a new legislative

basis for providing a therapeutic intervention earlier to help prevent ongoing and more

serious sexual offences.

The Victorian reforms have so far contributed to a 7.2 per cent drop in substantiated abuse

between 1999-00 and 2006-07 while substantiation rates have risen 143 per cent nationally.

Reforms since 2000

The continued progress of Victoria’s broad reforms includes:

• enshrining children and young people’s best interests at the heart of all decision making and

service delivery

• encouraging the participation of children, young people and their families in the decision-

making processes that affect their lives

• building a more integrated service system across the universal, secondary and tertiary tiers

of child, youth and family services – a service system that is localised, better coordinated and

that is responsive to family needs

• boosting earlier intervention and prevention through the use of community-based intake,

assessment and referral when families first show signs of difficulty, and targeting family

support services at the most vulnerable groups and communities

• improving children’s stability, especially in the critical early childhood years

• strengthening the cultural responsiveness of services so that community services are

inclusive of children and young people from Aboriginal and other cultural backgrounds

• keeping Aboriginal children and young people better connected to their culture and

community when in care

• ensuring that all child, youth and family services are accountable and of high quality.

Appendix A 61

WESTERN AUSTRALIA

Agency functions

The Department for Child Protection’s mission is to provide for the protection of and care for

children and young people, and to support at-risk individuals and families in resolving crises.

The Department has the central role in providing for the protection and care of children and

young people throughout Western Australia, which is best achieved in partnership with other

Government agencies and the community services sector.

Section 21(1)a of the Children and Community Services Act 2004 describes the functions of the

Chief Executive Officer of the Department for Child Protection as including to consider and

initiate, or assist in, the provision of social services to children, other individuals, families and

communities. Directing and encouraging children and families to engage in social services to

best address their problems is one of the primary objects of the legislation.

As part of, and in addition to, its statutory functions, the Department for Child Protection

provides core service funding to the community services sector to respond to the issues and

challenges faced by vulnerable children, families and individuals. This partnership enables a wide

range of services and programs to be delivered throughout the State.

The 2007 Ford Review examined the key functions and systems of the former Department for

Community Development, resulting in a significant focus on child protection reform in Western

Australia. The Ford Review made 79 recommendations to address deficits in the child protection

system, and each has been addressed through a comprehensive reform program.

Following the Ford Review, the following three service areas were defined by the Department for

Child Protection:

1. Supporting children and young people in the CEO’s care.

2. Protecting children and young people from abuse.

3. Supporting individuals and families at-risk or in crisis.

These areas reflect the priority that the Department has placed on its protection and care

responsibilities through the direct provision of tertiary services. It is important to recognise

as well that it also has responsibility in supporting individuals and families at-risk or in crisis

through the delivery or contracting of secondary services.

The Department works across government and the community services sector to prevent child

abuse and neglect. This is achieved through interagency collaboration and promoting joint

responsibility with key stakeholders for responding to concerns about children’s safety and

wellbeing.

Major recent reforms

The Department is adopting and implementing the Signs of Safety framework as the basis of

consistent, evidence-based child protection practice across all Departmental child protection

services. Signs of Safety seeks to create a more constructive culture around child protection

organisation and practice. Central to this approach is the use of specific practice tools and

processes where child protection and other professionals and family members can engage to

address situations of child abuse and neglect.

Child protection practice policy and field worker guidelines are being streamlined and revised to

reduce unnecessary processes and be more accessible and relevant for front line practitioners.

62 Protecting children is everyone’s business

On 1 January 2009, mandatory reporting of child sexual abuse by teachers, doctors, nurses,

midwives and police officers came into effect.

The Department’s Foster Care Partnership was developed in partnership with the Foster Care

Association. It encompasses a partnership model and associated practice guidelines. The model

is centred first on the child, and second, highlights the critical role of the foster family team in

providing daily protection and nurture to the foster child. The third element of the model is the

surrounding, encompassing role of the Department care team supporting the foster placement.

The introduction of health and education plans for children in care is underway. All children who

enter care will be screened for physical, developmental and educational difficulties. Once their

needs have been assessed, a plan to address these needs will be put into place and monitored on a

regular basis.

A Strategic Framework and State Plan for Supporting Individuals and Families At-risk is being

developed, to bring together the significant range of secondary services that the Department

and other government agencies directly provide or fund through the community services sector.

A framework that spans current and future directions will help to improve the planning and

provision of services, and remain responsive to the community’s needs.

A family and domestic violence co-location model places Senior Field Workers (Family and

Domestic Violence) with the Police Service to improve screening, information sharing and expedite

responses.

A range of initiatives to improve the safety and wellbeing of Aboriginal children and young people

in the child protection system are being implemented. They include the creation of Consultants’

Aboriginal Services to assist caseworkers to work more effectively with Aboriginal families, and

integrating Aboriginal perspectives through the Department’s learning framework.

Educational resources and guidelines to promote information sharing between as provided for

under S23 of the Children and Community Services Act 2004 are being introduced together with a

simple model for local Interagency Child Safety Teams.

Reforms since 2000

Organisational arrangements

• The Children and Community Services Act 2004 has been enacted.

• A new portfolio advisory structure has been established comprising:

• Ministerial Advisory Council on Child Protection

• Child Safety Directors Group (interagency)

• Community Sector Advisory Group

• CREATE Advisory Group (young people)

• Aboriginal Reference Group

• The State Government appointed the first Commissioner for Children and Young People.

Aboriginal services

• Initiatives to strengthen responses to Aboriginal families and communities have been

implemented, including securing an ongoing commitment to the Strong Families interagency

case management program, Community Child Protection Workers in remote areas, Youth and

Family Engagement Workers and the Best Beginnings early childhood intervention program.

Appendix A 63

• A multi-agency approach to dealing with sexual abuse in remote Aboriginal communities has

been implemented.

Care standards

• Processes to investigate and respond to allegations of abuse in care have been implemented.

• The Better Care Better Services (Standards for Children and Young People in Protection and

Care) have been implemented by the newly established Standards Monitoring Unit.

Interagency developments

• The childFIRST Assessment and Interview Team has been expanded, and provides a joint

response between the Department for Child Protection and the WA Police.

• A tripartite protocol has been signed by the Departments of Health, Child Protection and

Police regarding the reporting of sexually transmitted infections in children.

Workforce

• A comprehensive workforce development plan has been developed to comprising attraction

and retention strategies, role and position redesign, and enhanced quality assurance systems.

64 Protecting children is everyone’s business

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