What Does "Closing the Gap" Actually Mean?
Written by Jennifer Lamb
The phrase ‘Closing the Gap’ is commonly used when discussing the differences in outcomes and opportunities between first nations Australians and other Australians. But, what does it actually mean?
Where Did ‘Closing the Gap’ Come From?
In 2005 there were calls for the Australian Government to commit to equality for Aboriginal and Torres Strait Islander people in health and life expectancy by 2031.[1] In 2007, ‘Closing the Gap’ was launched as a government initiative to reduce the inequality faced by First Nations people, particularly in health, justice and education. The program focused on improving outcomes in life expectancy, incarceration, education and employment. The results of these goals are underwhelming as First Nations people were not effectively consulted.[2]
The National Agreement and the 2022 Annual Report
In 2020 the revised National Agreement on Closing the Gap was signed by a Joint Council made up of Commonwealth, State and local governments, and the ‘Coalition of Peaks.’ The Coalition of Peaks included 50 Aboriginal and Torres Strait Islander community-controlled peak organisations such as the National Aboriginal and Torres Strait Islander Legal Service, and National Native Title Council.[3] This group makes decisions on the implementation of sector-wide changes and policies.[4]
The National Agreement has four priority areas, designed to improve statistical targets, which can be found below. The success of these priorities is detailed in the 2022 annual report.
The Priority Reforms in the 2022 Annual Report
1. Formal Partnerships and Shared Decision Making
This reform aims to build structures that enable First Nations people to work with the government to accelerate policy and place-based progress. Place-based progress is based on specific regions and partnerships are formed between the government and First Nations representatives from those regions.
Policy progress involves forming partnerships between a peak organisation and a corresponding government area, including; justice, social and emotional wellbeing, housing, early child development and First Nations languages. For example, the National Aboriginal and Torres Strait Islander Legal Service is co-chair of the Justice Policy Partnership, which started in 2021.[5] The success of this priority is a formal partnership arrangement between First Nations people and governments in each state and territory, where First Nations people have chosen their representatives. The success of place-based partnerships is closely related to the First Nations Voice to Parliament and an independent ‘Makarrata Commission.’ The report details that for place-based partnerships in the regions to empower First Nations people, there needs to be a Voice at every level of government, and in every jurisdiction.[6]
2. Building the community-controlled sector
This reform is about prioritising First Nations service providers because they are in a unique position to provide services to their communities. The current focus areas are; early childhood care and development, housing, health and disability.[7]
Each area has a Sector Strengthening Working Group, which produces sector-strengthening plans, similar to the policy partnerships in priority area one. In 2021 and 2022, the Joint Council implemented the plans for each focus area.[8]
Furthermore, the Commonwealth is developing a ‘Grant Connected Policy’. This would make First Nations organisations, where all other requirements are met, the preferred recipient of relevant grants. This policy is expected to be revisited in the second half of 2023 for implementation in the coming years. In the meantime, the National Indigenous Australians Agency (NIAA) assists in guiding Commonwealth agencies in prioritising First Nations organisations for existing grants and funding.[9] The Commonwealth also provides corporate training to First Nations service providers to improve management and financial stability.[10]
3. Transforming government organisations
The aim is that governments, their organisations and institutions are accountable for their responsibilities to close the gap and are responsive to the needs of First Nations people in a culturally aware way. The success of this priority is a decrease in the proportion of First Nations people who experience racism, through structural reforms like improving corporate practices, building the cultural capability of the public service, and the reconciliation action plan.[11] Starting in 2024, the Productivity Commission will conduct independent First Nations led reviews three times a year, to better understand First Nations people's experiences with government institutions.[12] The first step is identifying key concepts such as cultural safety, institutionalised racism and discrimination, and unconscious bias. By identifying these practices, they can be better understood and support cultural safety at a nationally consistent standard.[13]
This reform also involves the Stolen Generation Redress Scheme. This programme received critical advice from trauma-informed individuals and First Nations cultural authorities to ensure the programmes are appropriate.[14]
4. Shared Access to Data and Information at a Regional Level
This priority would enable First Nations people to have access to and capability to use locally relevant data and information to monitor the Closing the Gap statistical targets.[15] Community data projects, like those established in Western Sydney and the Kimberly area, will enable First Nations communities to make decisions about their development using relevant and current information. The Commonwealth established the ‘Data and Reporting Working Group’ that includes representatives from all parties in the National Agreement and key Commonwealth agencies with data responsibilities.[16] This group will work with the Joint Council to expand community data projects, through the Data Development Plan (DDP).
The DDP includes provisions to ensure data is used ethically, that there is shared decision-making with First Nations people and that the objectives of Closing the Gap are prioritised.[17] Furthermore, Commonwealth agencies, like the Department of Education, the Australian Bureau of Statistics, the Attorney Generals Department and the National Disability Insurance Scheme, are granting access to data through partnerships with the Coalition of Peaks.[18]
Is the Gap closing?
The 2022 annual report details the inequality of outcomes experienced by First Nations people. It is clear from the table below that many of these priorities are not on track. The four priority reforms are aimed at getting these outcomes back on track, but this depends on the success of the partnerships and policies developed by the Coalition of Peaks, and the State, Territory and Commonwealth Government.
Although the Gap may be Closing in some areas, it is clear that lots of work, in direct consultation and partnership with First Nations people, still need to occur to achieve these goals.
[1] Closing the Gap 2008-2018: Introduction; Closing The Gap Report 2020.
[2] Ibid
[3] Partnership Agreement on Closing the Gap 2019-2029.
[4] Closing the Gap Report 2022 p160.
[5] Ibid p19.
[6] [n4] p21.
[7] [n4] p25.
[8] Closing the Gap Resources: Understanding the National Agreement.
[9] Closing the Gap Report 2022 p25.
[10] Ibid p30.
[11] [n4] p32, 37.
[12] [n4] p34.
[13] [n4] p35.
[14] [n4] p37.
[15] [n4] p40.
[16] [n4] p42.
[17] [n4] p44.
[18] [n4] p45, 46, 47.
[19] [n4] p47-121.