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Indigenous communications - framework for the Action Plan

Overcoming the barriers to accessing telecommunications services in remote Indigenous communities presents a major challenge, and will require a commitment to action by all levels of government. The Commonwealth Government recognises that overcoming these barriers will not be possible simply by funding the installation of more telecommunications facilities in these communities. The limited take-up of USO telephone services in these communities demonstrates that guaranteeing supply, without addressing the significant demand-side issues, will not bring about higher take-up and effective use of telecommunications services.

Overcoming the range of significant supply and demand constraints in these remote communities will take a coordinated, ongoing effort by governments, industry, communities and other stakeholders. The Action Plan is intended to provide a strategic framework under which effective, coordinated action will be initiated and expanded into the future. The Commonwealth Government will work with stakeholders to develop the detailed Action Plan, with the aim of coordinating telecommunications solutions to support broader community development activities and maximising leverage from other programs and services available to the community or region.

The Action Plan is a basic 'roadmap' which will provide overall direction and guidance for the progressive improvement of telecommunications services for these communities. Improvements will build over time as communities become more ready, governments coordinate efforts more effectively and broader support becomes available. This Action Plan will leverage off existing programs and services and kick start a more integrated approach.

To support the range of strategies under the Action Plan the Commonwealth Government is providing a further $8.3 million over three years. This funding will build on the $35 million provided to Indigenous related projects under Networking the Nation and other Government programs such as the TSI National Communications Fund and mobile phone programs which have the potential to assist Indigenous communities. It will also build on other Commonwealth, State, Territory, local government and community initiated activities.

The Action Plan is underpinned by the following set of guiding principles. With these principles in mind, three key objectives have been identified, under which a number of strategies and programs have been developed. The full details of the programs will be developed in consultation with stakeholders.

Underpinning principles for the Action Plan

1. Recognise and allow for diversity
2. Recognise the value of community involvement and partnerships
3. Build on achievements and strengths
4. Support community development through telecommunications

Discussion of principles

Recognise and allow for diversity

• There is no single telecommunications solution that will suit all remote Indigenous communities. Achieving service improvements across all communities will necessitate testing a range of approaches and service options.
• Indigenous communities differ quite markedly from each other, and in many communities it will not be feasible to access the full suite of advanced services in the foreseeable future, nor is there community interest in doing so. In setting broad priorities for these target communities over the life of the Action Plan, it is important to understand the differences between communities, and how such differences are likely to impact on the feasibility of providing different telecommunications services in an effective and sustainable way.

Recognise the value of community involvement and partnerships

• Community participation in the adoption of telecommunications services is essential. Decisions about identifying and responding to Indigenous priorities for telecommunications services need to closely involve local Indigenous communities. This is not just because communities vary in their needs and priorities, but because community involvement in and ownership of these decisions is crucial for the effective uptake and future viability of these new services.
• The success and viability of new telecommunications services is not guaranteed solely through community interest and participation. Successful implementation will require a coordinated approach involving close and ongoing partnerships between communities, government and industry providers.
• It is important that telecommunications solutions are integrated with other government service delivery structures, as well as with existing, accepted community structures and operations.

• Effective decisions about identifying and responding to Indigenous priorities for telecommunications services are dependent on the flow of accurate information from industry about existing telecommunication service levels in Indigenous communities. Improving information to industry suppliers and regulators about the ongoing levels of telecommunications services in remote Indigenous communities will help ensure that decisions accurately reflect community needs.
• Strategies need to be explored to aggregate demand for telecommunications services in communities to improve the business case for service delivery.

Leverage resources and build on achievements and strengths

• In order for appropriate telecommunications services to be provided to any given community, the capabilities, resources and services within communities need to be identified, encouraged and utilised to maximum effect.
• Remote Indigenous communities are geographically isolated and economically disadvantaged. Supply of services to these communities is costly, and sparse populations mean that demand for services is limited. Therefore, it is highly likely that the commercial roll-out of services to them will continue to be unviable. This will mean that they will continue to rely on a combination of regulatory support mechanisms (mainly through the Universal Service Obligation), in combination with targeted Government support, to achieve an equitable level of service delivery. The Action Plan will build on the guaranteed level of service provided through the USO and other safety net initiatives.
• It is important to draw upon existing programs, infrastructure and other services in order to make maximum use of the services currently in place.

Support community development through telecommunications

• Improved telecommunications can provide benefits to Indigenous communities beyond simply improved communication capacity. Telecommunications is a key tool for community development broadly, and impacts on improved education, health, business and social cohesion. For example, Online Access Centres can act as a focal point for services and information sharing and as such can assist in achieving major community development objectives.

Objectives of the Action Plan

The study found that there are three key areas where improvements need to be made to achieve sustainable telecommunications services in remote Indigenous communities.. The Action Plan will therefore focus on these three key areas:

Improve telecommunications services and online content

The key priority is to provide direct support to increase the provision and uptake of telecommunications services in remote Indigenous communities. Current service take-up is extremely low, and there is an urgent need to support improved access to a range of different services, with basic phone access the main priority. The Commonwealth Government will provide targeted funding over three years to improve telephone and Internet services and to expand the range of relevant online content available. This support will include undertaking a detailed national study to guide the business development of online access centres in Indigenous communities.

Improve information flow

A key finding of the Study was the inadequacy of current information flows to and from communities. The Commonwealth Government will undertake a range of activities to ensure that:

• remote Indigenous communities are provided with better information about telecommunications services and how to access them; and
• service providers and governments have access to better information about the service priorities and needs of the communities.

Improve coordination and support, and facilitate partnerships

Recognising that lasting improvements can only be achieved and maintained through a coordinated, holistic approach by governments and other stakeholders, the Commonwealth Government will put in place a range of strategies to encourage better cooperation and partnerships between key stakeholders, primarily governments, telecommunications service providers, and the communities themselves.

These objectives are interdependent, and the Action Plan will require coordinated implementation of strategies across all the objectives to be successful. For example, provision of equipment required for Internet access will not enable access unless it is accompanied by training and ongoing support, and effective management structures to support ongoing viability.

Broad implementation strategies

The Study has found that communities have differing service needs and differing capacities to initiate and sustain service improvements., Strategies under the Action Plan will need to recognise these differing needs, and respond with tailored, well-targeted approaches. State, Territory and local government assistance will be critical in enabling this community-based approach. It must also be recognised that complete solutions will not be achieved quickly: the access barriers are too pervasive and the most effective solutions too unclear at this point to expect a rapid turnaround in the current situation. Therefore, a longer term approach to improvements in these three broad areas will need to be adopted to enable the particular needs of communities to be addressed over time, in an integrated and holistic manner.

The way in which the strategies under these objectives will be implemented will be the subject of detailed consultation with the relevant stakeholders. The Commonwealth Government will be seeking to establish working partnership arrangements between communities, Commonwealth, State and Territory Government agencies and industry providers to implement the strategies, and to ensure long term improvements in service levels and support for services are achieved.

A Framework for determining Likely Service Priorities

The Study found that for telecommunications improvements to be effective and sustainable in remote Indigenous communities, a coordinated approach, with communities and governments working in partnership, is required. At the core of such partnerships must be a genuine opportunity for communities to participate in identifying service priorities, and to be actively involved in promoting and supporting service outcomes.

This Action Plan proposes that there are steps that can be taken to address supply-side constraints (such as high infrastructure costs) and demand-side barriers (such as lack of spending power, lack of awareness and interest, lack of relevant content), both of which impact negatively on the general take-up of telecommunications and online services in remote Indigenous communities. However it also concludes that Indigenous communities differ quite markedly from each other, and in many communities it is not feasible to access the full suite of advanced services in the foreseeable future, nor is there community interest in doing so.

In setting broad priorities for these target communities over the life of the Action Plan, it is important to understand the differences between communities, and how such differences are likely to impact on the feasibility of providing different telecommunications services in an effective and sustainable way.

The following are considered the key factors that are likely to impact on new telecommunications opportunities for these communities:

• whether it is a 'hub' service community, ie a community which provides services such as education and health for surrounding communities, and which therefore delivers services to a reasonably significant population, has a nucleus of service support, and a possible demand for bandwidth for online service delivery;
• the readiness of the community to adopt services; and
• access to government support, either through supporting funding or regulatory safeguard mechanisms such as the USO.

The concept of community readiness refers to the presence of community factors that act positively to promote community take-up of services. Readiness could be stimulated by:

• the presence of community 'champions' and leaders who are actively promoting community development, new services and the benefits they can offer;
• high community education levels;
• targeted projects (eg through NTN) that have already stimulated communities by demonstrating real benefits; and
• a high degree of community social cohesion and unity, and a strong cultural identity.

On the negative side inhibitors of community readiness might include:

• lack of leadership and internal community dissension;
• socially damaging problems such as widespread alcohol and substance misuse;
• very low education and literacy levels; and
• very low levels of awareness and exposure to IT&T opportunities.

The 'Framework for Likely Service Priorities', as set out below, is a guide which provides further assessment of these 'community readiness factors' as they relate to telecommunications service development, and the types of services that are therefore likely to be achievable in each community grouping. The services identified for each group are further explained in following parts of the Action Plan. The Framework can be used by communities to assess which category they fit and therefore what strategies they may need to employ to improve services.

Communities which are identified as 'hub' communities, ie those to which people from smaller outlying communities travel to access services, will likely need different services than 'non-hub' communities.

'Hub' communities, which may support online access centres, will need a greater level of ongoing involvement and decision making to maintain sustainable services. Therefore they require more established and effective leadership and decision making community structures. By contrast, 'non-hub' communities are likely to require shorter term leadership and management to implement the immediate solutions. These communities could receive ongoing technical support and training from 'hub' online access centres.

In setting out this Framework, there is no assumption that particular communities will be 'pigeon-holed' as having an unchanging state of readiness. On the contrary, strategies need to be put in place to raise the level of telecommunications and online readiness, together with the level of telecommunications service delivery, across all communities over time as part of their broader community development capacity building.

Most remote Indigenous communities are expected to require a high level of support from governments and the industry to achieve their goals for improved telecommunications services. The partnerships developed between communities, governments and industry service providers will support improved services to these communities in an ongoing and holistic way. The strategies employed will build on existing programs and services to gain the maximum benefit for communities and to ensure assistance reaches the communities of highest need.

Table 1 : Community Service Priority Framework

The strategies of the Action Plan are:

Table 1 : Community Service Priority Framework

Community A - 'Hub' Community / High Level of Readiness Characteristics of readiness Well established and effective leadership and decision making processes. A community development plan exists or the community has developed broad priorities for economic and/or social development. Awareness of telecommunications needs or can develop these according to community priorities. The capacity and willingness to progress telecommunications improvements and be a 'driver' or 'champion' for improvements over the longer term. Demonstrates the capacity to establish and operate an online access centre and encourage and support use. Service priorities Phone services - private or community based. Dial-up Internet services. Online Access Centre (via terrestrial or satellite backbone) which provides the opportunity to enhance education, health services etc through online delivery including videoconferencing, and with training and support facilities. Community publishing facility. E-commerce support for local businesses. Training and technical support.

Community B - 'Hub' Community / Low Level of Readiness Characteristics of readiness May need assistance to develop effective leadership and decision making processes. The community has not determined its economic or social development priorities and may require support to do this. Low level awareness of telecommunications benefits and needs. Will need support to progress improvements and to develop community support for improving telecommunications services. Will require support to develop and operate an online access centre. Service priorities Phone Services - private or community based. Online Access Centre likely to be smaller scale, and satellite based or even dial-up access. Strong emphasis on support and awareness raising and training.

Community C - 'Non-hub' Community / High level of readiness Characteristics of readiness The capacity exists in the community to consult, gain agreement and implement solutions over the short term. Have an awareness of community priorities or the capability to determine these. Can identify person/s with an interest in progressing telecommunications who can update and represent the community over the longer term. Capacity to implement phone and Internet services and to take responsibility for their ongoing operating condition. Service priorities Phones services may have a strong community emphasis - perhaps an opportunity for satellite phones if community is highly mobile, or alternatively HF/UHF radio systems Internet - community two-way satellite facility could be possible. Alternatively community dial-up Internet facility Training and technical support E-commerce support for local businesses.

Community D - 'Non-hub' Community/ Low Level of readiness Characteristics of readiness Will need assistance to consult and gain agreement to implement solutions. Has not determined community priorities. Will need support to progress improvements and encourage community interest. Will require assistance to implement services. Service priorities Phone services - private or community based. There may be a stronger emphasis on community solutions. For example, payphone and fixed phone provision could be melded into a community phone facility. Perhaps an opportunity for satellite phones if community is highly mobile or alternatively HF/UHF radio systems. Strong emphasis on support awareness raising and training.

Improve telecommunications services

1. Indigenous Community Phone Program
2. Investigate, promote and support more appropriate products
3. Improve payphone services
4. Build the case for viable online community access centres in 'hub' communities
5. Subsidise community Internet access points in less 'ready' communities
6. Investigate alternative delivery of Internet services
7. Support online content development

Improve information flow

8. Develop a communications framework
9. Conduct a Public Awareness Information Campaign
10. Improve monitoring and reporting on service levels

Improve coordination and support, and facilitate partnerships

11. Improve government coordination
12. Promote coordination and information sharing
13. Facilitate community involvement, coordination and capacity building
14. Improve Coordination of training and support
15. Improve Coordination of service provision

Objective - Improve telecommunications services and online content

The most important objective is to improve telecommunications services in remote Indigenous communities. Communities currently experience a low level of services; the priorities range from improving basic phone services to higher bandwidth services such as videoconferencing.

Phone Services

Improving telephone services is the highest priority need for remote Indigenous communities. The very low income levels of these communities mean that basic telephone services are not affordable for many people, even taking into account the price controls that apply to such services. The Study has found that connection costs (including the cost of trenching and network extension) in remote communities are a particular barrier to phone take-up. The Study also found that the current billing arrangements are not always suited to the lifestyles of remote Indigenous communities and that communities are not adequately aware of service availability and procedures.

Improving phone services to remote Indigenous communities will require a multi-faceted approach, including targeted funding, introduction of more appropriate pricing packages and billing arrangements and improved payphone availability. The following two strategies are aimed at increasing take up of basic residential or community phone services and improving the availability and reliability of payphone services. These will be implemented in conjunction with the awareness and information programs described in Strategy 8.

Indigenous Community Phone Program

This program will provide funding assistance of around $3.5 million to improve access to phone services for remote Indigenous communities. The Commonwealth Government will work in partnership with communities to identify their priorities to improve phone services, either through residential or community-based services, and will provide funding to support improved access to telephone services. Subsidies could be provided to reduce or eliminate such costs as:

• residential phone connection, including trenching and network extension;
• connection to more flexible and appropriate residential services such as Telstra's Communic8Ã" ;
• community-based phone systems such as PABX type systems or other more flexible community phone systems where this can be demonstrated to deliver more appropriate and cost effective services to the community; and
• alternative mobile solutions such as satellite and open radio-based communications systems where there is no terrestrial mobile coverage and these provide a cost effective solution to meet a demonstrated need.

Investigate, promote and support more appropriate products

The Government will work with industry service providers, particularly Telstra (as the Primary Universal Service Provider), to encourage the development of more appropriate technologies and services, and refine existing services to better suit remote Indigenous communities. This will take place in close consultation with communities and other stakeholders.

The outcomes of this strategy will be built into the community phone program and the information and awareness program.

Improve payphone services

To meet the Commonwealth Government's TSI objective of improving payphone services:

• the Government will work with Telstra, as the Primary Universal Service Provider, to accelerate the provision of payphones and improve fault and repair timeframes;
• Telstra's guidelines for payphone provision will be clarified to ensure it is meeting the needs of remote Indigenous communities. These guidelines will be further reviewed following implementation of the community phone program to assess the impact of increased residential phone penetration on the need for payphone services.
• a better information base for the location of public payphones in remote Indigenous communities will be established and maintained, to enable better identification of needs and service gaps. The ACA will work with Telstra to improve reporting on Indigenous payphone activity and sustainability;
• communities will be encouraged to increase their contribution to payphone reliability through a commitment to protecting and maintaining payphone facilities.

The information campaign (Strategy 9) will complement this strategy by improving community awareness of payphone availability and the processes to apply for payphone facilities under the USO.

Internet and Higher Bandwidth Services

The Study found that the take up of Internet services in communities is extremely low, much lower than phone services.

Addressing the barriers to Internet take-up will require a strong emphasis on training and skills development, identification and development of appropriate online content, as well as on financial support to access the necessary equipment and services. The challenge of addressing these difficulties is significant and means that, apart from a limited number of individual subscribers such as Indigenous small businesses, the emphasis for Internet access is likely to be on public access facilities, at least in the short to medium term.

In the larger 'hub' communities public access facilities could be part of a larger online access centre, incorporating government service provision, and perhaps videoconferencing facilities and other business and community support services. In smaller communities such a facility would need to be scaled down, and at the bottom of the scale might consist of a stand-alone computer connected to either a dial-up or satellite Internet service (two-way or one-way). It is recognised that these services have been made available in some communities through such funding programs as the Commonwealth's Networking the Nation and the Rural Transaction Centres Programs, and the Telstra two-way satellite Internet offering under the Untimed Local Calls (Extended Zones) Agreement. The programs under the Action Plan would build on the achievements of these existing programs. The following strategies aim to improve community access to the Internet and further develop the case for online access centres for remote Indigenous communities.

The Study has found that higher bandwidth services are likely to be confined to single publicly accessible online centres. These services offer a range of online services, and can be linked, for demand aggregation purposes, to other key facilities, such as schools and health centres. These centres are more likely to be viable in the larger 'hub' communities from which people currently access government and other community services. Typically the suite of online services could be delivered via Internet and videoconferencing facilities.

A number of such facilities have been established in remote Indigenous communities and more broadly in rural Australia with the support of Commonwealth programs and State/Territory initiatives.

There is a major challenge to ensure that online access centres are sustainable. Sustainable operation will only be achieved through the combined and cooperative efforts of government agencies, communities and industry service providers. The 'hub' communities will need a high level of capability to operate an online access centre successfully.

There needs to be a national approach developed and implemented to enable a coordinated, integrated approach to this online opportunity.

Build the case for viable community access centres in 'hub' communities

The Commonwealth Government will contribute $200,000 to develop a national strategy for implementation of higher bandwidth services into remote Indigenous communities. This will build on existing strategies and programs (such as Networking the Nation projects and the Western Australian Telecentre program), and will include:

1. further investigation of the business case for establishing online access centres, primarily in 'hub' communities. This investigation will focus on the different needs of communities according to population and online 'readiness', and could seek to determine required capital and operational costs (including required levels of funding support), and potential revenues, for online access centres of varying scale and scope;
2. investigation of the most appropriate and cost-effective way of delivering ongoing training, support and maintenance for community access centres, with a focus on community empowerment and skills transfer into communities;
3. investigation of options to better utilise services currently operating in communities for broader community use, such as those available in schools, council offices etc;
4. development of an Indigenous online access centre 'toolkit' that will assist communities to implement and operate sustainable online facilities. The development of the toolkit will complement strategy 13;
5. negotiations through Online Council to achieve greater cooperation between service delivery agencies within and across States, Territories and the Commonwealth. This could include a commitment to shared services, a commitment to provision of revenue levels required for sustainable services, and provision of more accurate information on the service and bandwidth needs of each sector; and
6. development of partnership arrangements between government, community and industry service providers to enable high bandwidth services to be delivered, managed and supported in communities. The Cape York Development Partnership could provide a valuable example of a successful collaborative approach, as could the experience of the Balkanu (ODN) in building community partnerships.

In smaller 'non-hub' communities (and perhaps in some 'hub' communities as well) a smaller scale, simpler approach to providing online access will be more feasible and appropriate. The following strategy will target those communities which are more likely to need to small scale community Internet access points.

Subsidise community Internet access points

This Program will provide funding of around $1 million to subsidise smaller scale connectivity to the Internet through terrestrial dial-up, or through one-way or two-way satellite services. This program will primarily target 'non-hub' communities, and will be subject to the demonstration of sustainability of the service in the community. Other public access equipment, such as Internet kiosks, could be considered under the Program. An important element of the Program will be support for appropriate training and skills development, including training to manage such facilities.

This program will seek leverage from existing Internet related projects, the two-way satellite program under the Untimed Local Calls (Extended Zones) Agreement and established training and support opportunities within regions. It will also explore opportunities for broader use of existing equipment in communities.

There is potential for online services to be delivered through the existing widespread broadcasting networks, as suggested by Imparja Television Pty Ltd in its submission to the Study. Emerging trends towards convergence of broadcasting and telecommunications may provide ways to increase access to communications services while minimising cost and skill requirements. These convergent technology models are in early stages of development and will require testing and further investigation to determine feasibility, cost effectiveness and community acceptance.

Investigate alternative delivery of Internet services

The Commonwealth Government will work with key stakeholders to explore options and the feasibility of alternative delivery of Internet services, such as through existing broadcasting equipment.

Improving the availability of culturally relevant online content is likely to be a key factor in improving the utility and take-up of the Internet and online services for remote Indigenous communities.

While this is already occurring to some extent under existing programs, the Commonwealth Government will provide additional funding support to enable important further development of relevant content, particularly at the community level. The development of appropriate content will predominantly be undertaken by providers of online services, such as educators, health providers and businesses. However, experience to date has shown that the development and provision of relevant community content also provides a major incentive for community members to access the online environment. Content may include local websites, language dictionaries and cultural history sites

Support online content development

The Commonwealth Government will provide targeted funding of around $1 million to further support the development of Indigenous online content, with a particular focus on:

• the information needs of remote Indigenous communities;
• cultural and/or language content initiated by communities;
• enhancing existing relevant content or applications to suit the specific needs of Indigenous users in remote communities;
• designing content for narrow bandwidth application. This content could be developed in an integrated way with the implementation of online access centres;
• ensuring community involvement in content development projects, including provision of appropriate support tools and training in managing and maintaining online content; and
• working with State and Territory Governments and communities to encourage online content development and to gain leverage from existing and proposed content development activities, including the activities of State and Territory service agencies.

Objective - Improve information flow

A key finding of the Study was the inadequacy of current information flows to and from communities. There are low levels of awareness in remote Indigenous communities of service availability, price and procedures for gaining access to services. Equally, there is a lack of information available to policy-makers and service providers about telecommunications service levels in communities and the gaps in service provision.

Telstra, the major provider of services to remote Indigenous communities, made the point to the Study that it is often difficult for them to communicate effectively with remote Indigenous communities. Apart from the high costs of travel into communities, they may not be aware of who is the most appropriate person or people within a community to discuss community needs.

Dealing effectively with communities is made more challenging by language barriers and low levels of English literacy in communities. It may also be difficult to gain an understanding of the cultural situation in communities and how that impacts on the use of services by community members.

ATSIC has expressed an interest in establishing better relationships with Telstra to facilitate better information flows with Indigenous communities. A greater degree of collaboration between key stakeholders to share information and maintain more comprehensive and accurate records will enable better reporting on service levels.

The following strategies are aimed at improving the flow of information to and from communities and enabling better analysis of telecommunications service gaps.

Develop a communications framework

To improve information to communities, DCITA will approach Telstra and ATSIC with a view to developing a Memorandum of Understanding (MOU) to establish a framework for better communications. The content of the proposed MOU will be reflected in Telstra's USO Marketing Plan where relevant.

The proposed MOU will cover matters such as:

• communications protocols and procedures;
• community rights under the USO (including the DDSO) and CSG;
• service offerings and options;
• work plans for service improvements;
• access to communities;
• service design and placement; and
• other issues arising from the Untimed Local Calls (Extended Zones) Agreement.

The MOU will have the objective of establishing a more proactive and culturally appropriate approach than currently taken. Achieving better communications will also require the involvement of other stakeholders, such as communities, industry providers, other relevant government agencies (State/Territory, Commonwealth or local) such as Centrelink and the ACA. Where appropriate, other stakeholders may also be signatories to the proposed MOU.

Public awareness information campaign

The Commonwealth Government will undertake an information campaign to raise awareness of existing telecommunication rights and obligations of service providers and highlight and promote existing and new services and programs, to assist service take-up. The campaign will also raise awareness of the role communities can take in the implementation of telecommunications services as part of broader community development.

The campaign will provide information about such rights and services as the USO, the DDSO, the Untimed Local Calls Initiative, Telstra priority services and the Action Plan itself. It will also provide communities with information concerning the procedures for applying for a phone service, maintaining such a service and reporting problems or faults if or when they occur.

The target audience for the information campaign is the remote Indigenous communities identified in the Study. The Campaign will be developed and implemented in a culturally appropriate manner with consideration of language and English literacy issues. It will therefore be conducted using appropriate communication channels, methods and materials for remote Indigenous communities, including: using the Broadcasting for Remote Aboriginal Communities Scheme (BRACS); Indigenous media; production of appropriate educational and bilingual materials; promotional opportunities and other innovative means of reaching the target audience. These will be developed in consultation with ATSIC and other Indigenous stakeholders.

The campaign will coincide with the initial implementation of the Action Plan and will be coordinated with broader consultation with communities on the implementation of support programs under the Plan.

Improve monitoring and reporting on service levels

In order to capture and consolidate specific telecommunications information relating to Indigenous communities, the ACA will monitor and report on services, including fixed telephones, payphones, mobile phone coverage and bandwidth availability. This will include requests from Indigenous communities for payphones and timeframes for installation and repair of faults.

ATSIC, as the key policy development agency, will be involved as appropriate in the monitoring process, with a view to including more comprehensive telecommunications reporting in future Community Housing and Infrastructure Needs Study (CHINS) reporting.

The communications framework developed under Strategy 8 will assist monitoring and reporting activities.

Objective - Improve coordination and support, and facilitate partnerships

Effective coordination between key stakeholders will underpin achievement of improved telecommunications services in remote Indigenous communities. Sustainable solutions will depend on the development of practical partnerships between communities, governments and industry service providers. The range of opportunities and scope for partnership arrangements will be further explored during consultation. The focus of these consultations will be to build on existing partnership arrangements and promote existing successful models.

Better coordination needs to occur at community and government levels.

Telecommunications is a key tool for community development broadly, and impacts on improved education, health, business and social cohesion outcomes. In this respect it is important that telecommunications solutions are integrated with other government service delivery structures, as well as with existing and accepted community decision-making structures and operations. To achieve lasting improvements in telecommunications, mechanisms are required to:

• better identify and respond to telecommunications needs in a timely way;
• better inform people in the community of rights and opportunities;
• avoid duplication and enable leverage from existing programs;
• represent community interests to governments and to the industry;
• achieve whole of Government demand aggregation and other coordination strategies to improve the business case for high bandwidth services;
• increase the use of telecommunications in providing services to communities; and
• improve the capacity to identify and disseminate successful models of service delivery.

Government Coordination

Broad government coordination of online service delivery will be essential to improving services to communities. This will involve coordination within and between Commonwealth, State, Territory and local government agencies. The strategies identified below will tap into existing consultative processes and will assess partnership models currently being trialed. Other mechanisms will be considered in consultation with stakeholders.

The Advisory Group, established as the key consultative mechanism for the Study, has proven an effective vehicle to oversight the implementation of the Action Plan and should be retained for this purpose. In particular this will ensure ongoing close cooperation between DCITA, ATSIC and the ACA in the implementation of the Action Plan.

The Online Council is the appropriate forum to coordinate State, Territory, Commonwealth and Local Government online activities, in this area, as part of its broader mandate for the coordinating information economy matters.

The Study found that the Cape York Partnerships in Queensland is emerging as a good model of community coordination and partnerships that could be used more widely. However, this and other models are still in the early stages of development and will be examined as part of the Online Access Centre Business Study to ensure that telecommunications services underpin broader community development activities.

Improve government coordination

Government coordination will be driven through the established consultative mechanisms of the Advisory Group to the Study and the Online Council. The Advisory Group, comprising representatives from ATSIC, OATSIA, the ACA and NOIE, will remain in place to oversee the implementation of the Action Plan from the Commonwealth Government perspective. Participation by representatives from relevant Commonwealth, State and Territory government agencies (including health, education and Centrelink) will be an essential factor for success. The Online Council Working Group, which will be encouraged to accord a high priority to telecommunications issues for remote Indigenous communities, will be a key forum.

In order to maximise outcomes for communities the implementation of the Action Plan will be coordinated closely with other projects and initiatives, in particular significant projects funded under Networking the Nation. DCITA's Regional Activities Database is a repository for information on regional telecommunications services and will provide a tool with which to conduct analysis of existing and new data on an ongoing basis. This will improve the Government's capacity to work with other stakeholders to improve services.

Facilitating community engagement with telecommunications issues and providing mechanisms for ongoing community feedback and coordination will be essential if the strategies in the Action Plan are to be effectively implemented. ATSIC, as the key national Indigenous policy and program agency, obviously has a key role to play, as does the Indigenous Communications Australia Advisory Committee convened by ATSIC.

There are also a range of other key Indigenous organisations that could play a major role in building community involvement and capacity. These include Indigenous broadcasting organisations, which are already playing a very active and well-recognised role in the provision of communications services to communities. Equally, the Outback Digital Network organisation has made substantial efforts to work with Indigenous communities and instigate improvements to telecommunications services across the 'top end' of Australia.

A regular national forum on remote Indigenous communications issues will provide an arena for discussing key emerging issues and will provide the Government with an opportunity to track the progress of the Action Plan on an ongoing basis. The Government will also explore other mechanisms for information sharing and discussion of issues.

Promote collaboration and information sharing

The Commonwealth Government will facilitate channels for ongoing discussion and information sharing such as the New Connections website, convening online discussion forums, and participating in forums relevant to Indigenous telecommunications.

DCITA's New Connections website can be used by stakeholders to access and share information and best practice models, and includes capabilities for mapping and online discussion.

As part of the Department's regular national Regional Communications Forums, DCITA will convene a national forum on remote Indigenous communications issues, involving key participants from communities, government and the communications industry. These forums will provide an opportunity to share information about best practices and contact networks.

Community involvement and capacity building

Indigenous community support for, and involvement in, improved telecommunications solutions will be essential to the success of the Action Plan. Consideration of telecommunications issues and opportunities needs to be an integral part of the fabric of community discussion and decision-making, both within individual communities, and at the level of representative community organisations.

There are many decisions that are most appropriately made at the community level before implementation of telecommunications solutions are implemented. These issues include:

• needs and priorities, which will differ between communities;
• community management of facilities;
• identification of a local champion to drive implementation and encourage acceptance;
• location of facilities;
• resources available to assist telecommunications projects, such as premises to house facilities, volunteer assistance or paid assistance, local technical skills, etc;
• cultural issues which may impact on the take-up of Internet opportunities; and
• the establishment of rules of operation for community facilities.

Communities often have a wealth of local resources which can assist the community to achieve viable telecommunications services. These include community leaders and members who could:

• drive the process;
• be trained and employed to undertake maintenance and support;
• consult within the community;
• liaise with service providers;
• provide security for equipment; and
• encourage interest.

These resources generally require harnessing and coordination to be effective. Where implementation issues are technically complex communities are likely to require advice and support to make and implement decisions. Such support would be expected to come from either governments, service providers, or specialist-based community organisations.

The 'Framework for Likely Service Priorities', as outlined in the report, is intended to be a useful device for communities to self-assess and develop strategies to progressively improve telecommunication services. Through the partnership arrangements proposed under the Action Plan, this Framework can form the basis of community telecommunications development. An important component for success will be linking telecommunications to other community development activities and to external sources of assistance and support.

Facilitate community involvement, coordination and capacity building

In line with the Action Plan's focus on recognising and supporting the differing needs of different communities, the Commonwealth Government will work with communities to use the 'Framework for Likely Service Priorities' to assist community capacity building. The framework will enable communities to identify the most appropriate telecommunications services, timeframes and management structures to meet their broader economic and social development needs. It will also enable promotion of best practice models and useful contacts or networks to and between communities.

The Online Access Centre Toolkit, developed under Strategy 3, will provide a useful additional supporting resource for 'hub' communities.

Training and support for use of telecommunications equipment will be key to successful take-up in communities. These activities can also assist in community capacity building by creating employment opportunities. Relevant Action Plan strategies provide for training and support where appropriate. The impact of this funding will be increased if leverage can be achieved using existing programs (eg NTN training projects) and skills (eg BRACS operators) in communities.

Telstra has initiated a number of projects to improve maintenance and support of phone services in remote Indigenous communities. These include training and employing local people to undertake maintenance, cabling and trenching. These programs are in the early stages of development, and are being implemented in a small number of remote communities.

Coordinate training and support

The Commonwealth Government will work with stakeholder groups such as community broadcasters, training providers and government agencies to better integrate training and employment activities that will be necessary elements of successful Action Plan outcomes.

In particular, the Government will work with Telstra to expand its current training and employment programs.

Planning and installing telecommunications facilities in remote Indigenous communities presents a difficult challenge. Uncoordinated supply and connection processes can compound already high costs. The following strategy aims to reduce these one-off installation costs through a better planned and coordinated approach to general infrastructure provision, and more efficient infrastructure connection.

Coordinate service provision

The Commonwealth Government will work with ATSIC and other Indigenous housing providers to explore ways to integrate the provision of basic telephone services with provision of other essential infrastructure and services such as housing, power and water, in order to eliminate or reduce infrastructure installation costs, such as network extension and trenching charges.

The Government will also work with Telstra to explore more efficient and affordable ways to reduce the cost of delivering phone services through a program to encourage better cooperation between telecommunications carriers and Indigenous employment programs. This may include exploring more efficient and affordable ways of providing trenching in communities.

Implementation of the Action Plan

The Strategies in the Action Plan are intented to provide an immediate catalyst for service improvement. They also have a longer term focus, and are intended to provide a guiding framework into the future. The detail of programs will be developed in consultation with stakeholders, community groups and members, governments and other relevant parties, and consultation will be ongoing throughout the life of the Action Plan.

The programs under the Action Plan will be implemented over three years from 2003. After this time an evaluation will be undertaken to analyse and report on the outcomes of the Action Plan and consider remaining needs and future priorities.

An interim evaluation after two years may be considered, to assess whether there is a need for modification or adjustment of the Action Plan, including through application of further resources.

 

Document ID: 3460 | Last modified: 6 February 2008, 12:17pm