Work and Indigenous Wellbeing: Developing a Research Agenda

1. Work and Indigenous Wellbeing: Developing a Research Agenda Kirrily Jordan Centre for Aboriginal Economic Policy Research

3. Unemployment rate by Indigenous status, 1971 - 2006 • Note: Time series comparisons are problematic and should be taken as indicative only • Source: ABS Census of Population and Housing 1971, 1981, 1991, 1996, 2001 and 2006.

4. Labour force status of Indigenous Australians aged 15-64 years, 2006 Note: Based on usual place of residence. Source: Census data, SCRGSP 2009.

5. Paid work as both a right and a responsibility • Paid work as central to wellbeing: “There is nothing more important in managing the Australian economy than to ensure that every Australian has the opportunity to work. A job provides more than just a pay packet—it gives dignity and purpose, provides security for the future and connects people to their community” (ALP 2010). • And for those who can work, it’s not just a right but also an obligation: “Federal Labor believes all Australians on income support should have the opportunity of work—but with greater opportunity comes greater responsibility” (ALP 2010)

6. Is there theory/evidence behind this approach? • It fits very comfortably with Pearson’s approach: • points to the corrosiveness of welfare dependency • identifies the solution as increased participation in the ‘real economy’ • Supported by empirical studies of unemployment • poorer mental and physical health • higher rates of crime and substance abuse • particular problems for the long term unemployed • And by studies of employment • increased income, economic independence • improved self-esteem and self-confidence • skills development • expanded social networks

7. But does this always hold true? • Some types of work may undermine wellbeing • ‘inadequate’ work (intermittent, poorly paid or insecure) • excessive work • unsatisfying work • ‘Australian Work and Life Index’ July 2010 • long work hours increase risks to mental and physical health • Lifeline Newspoll Survey July 2010 • 72% of Australian workers feel stressed and blame their jobs • Wellbeing and happiness studies • most people rate intrinsic factors, like the quality of social relationships, as more important to their wellbeing

8. The cultural value of paid work • The value we attach to work is a cultural / social construct • eg. the ill-effects of unemployment are more pronounced among people with a greater psychological investment in paid work • work as paid employment is a relatively new idea • Weber and the Protestant ethic • Indigenous cultures and the value of paid work • Nugget Coombs: Market employment may involve a trade-off between earning cash and other forms of ‘work’ • Maintaining cultural and family obligations might be the ‘real’ work that confers social status and self esteem • These arguments are supported by more recent research • But information about Indigenous attitudes and aspirations to paid work is still inadequate, particularly for urban areas

9. North East Arnhem Land • A fairly unique colonial history • colonial incursions came relatively late (mid to late 1800s) • Methodist missionaries did not seek to eradicate Yolngu culture or force people off the land • the result is a strong and proud Yolngu culture and some resistance to the notion they have ever ceded sovereignty • Homelands movement of the 1970s • many Yolngu opposed the bauxite mine and perceived threats to their social fabric • they actively sought to reclaim their lands by re-establishing settlements on clan estates • these homelands remain fundamental to Yolngu identities and cultures today

10. ‘Work’ in North East Arnhem Land • Many Yolngu embraced CDEP • the scheme was devised to prevent welfare dependence while facilitating local employment and community development • block grants to local Aboriginal organisations created part-time jobs, with the possibility of additional ‘top up’ payments • at its peak, CDEP employed more than 35,000 people • But CDEP has been very contentious • CDEP as a disincentive to mainstream work, or a form of ‘pseudo welfare’ • there is evidence that some CDEP projects have paid participants regardless of their work effort • CDEP has been used as cost-shifting • In North East Arnhem Land ‘no work no pay’

11. Current changes in employment policy • The ALP has committed to radical reform of CDEP • by July 2011 all participants will be transitioned off CDEP wages onto the new ‘CDEP income support’. • new participants must first sign up for Newstart Allowance, then be referred to a Job Services Australia provider, then be referred to a CDEP program. • the new CDEP is ostensibly a pre-employment program to transition participants into mainstream work • Simultaneous reform of employment services • Job Services Australia • The vision is to restore ‘positive social norms’ around work • ‘the old ways of doing things have comprehensively failed generations of Indigenous Australians’ (Commonwealth of Australia 2010)

12. What do the policy changes mean in practice? • Without CDEP there are few alternative jobs • Working on Country is a promising development, but still a small employer • most Yolngu either don’t want to work in the mine, or have limited capacity to do so • some micro-enterprises are developing but significant sustainable employment is a long way off • in practice, most people are still referred to CDEP (but now on Newstart) • moving away for work is no guarantee of improved outcomes • Is a ‘job services’ approach appropriate? • it may not fit with the reality of the labour market, or with peoples’ current capacities and values

13. Conclusions: Work and Indigenous wellbeing • Unemployment (and CDEP) can be barriers to wellbeing • eg. lack of financial freedom • Many Indigenous people do want paid work • But we should be cautious about narrow definitions • eg. when it’s very narrowly defined, ‘work’ can undermine other productive activity • differences in cultural values may mean the trade-offs are greater for some Indigenous people • Future research: We need to know • what are the costs? • what are the alternatives? • what do Indigenous people want?