Closing the Gap


The Closing the Gap framework is an Australian government strategy that aims to reduce disadvantage among Aboriginal and Torres Strait Islander people, based on seven targets. From adoption in 2008, after meetings with the Close the Gap social justice campaign, until 2018, the federal and state and territory governments, worked together via the Council of Australian Governments on the framework, with the Department of the Prime Minister and Cabinet producing a report at the end of each year analysing progress on each of its seven targets.
The Closing the Gap targets relate to life expectancy; child mortality; access to early childhood education; literacy and numeracy at specified school levels; Year 12 attainment; school attendance; and employment outcomes. Since 2008 there have been as of 2019 eleven Closing the Gap Reports presented to Parliament, providing data in areas that previously had none and updates on progress. The Closing the Gap Report 2019 reported that of the seven targets, only two – early childhood education and Year 12 attainment – had been met. Aims to halve the gap in child mortality by 2018, close the gap on school attendance by 2018, close the gap in life expectancy by 2031, halve the gap in literacy and numeracy by 2018 and halve the gap in unemployment by 2018 were not on track.
In 2019, the National Indigenous Australians Agency was established, and this agency took over the responsibilities of Closing the Gap in partnership with Indigenous Australians, after The Partnership Agreement on Closing the Gap, 2019-2029 had been signed by representatives of the National Coalition of Aboriginal and Torres Strait Islander Peak Organisations, each state and territory government, and the Australian Local Government Association.

History

In March 2006, the Steering Committee of the Close the Gap, a social justice campaign focused on Indigenous health, in which "Australia's peak Indigenous and non-Indigenous health bodies, NGOs and human rights organisations are working together to achieve equality in health", first met. Their campaign was launched in April 2007 by patrons Catherine Freeman OAM and Ian Thorpe OAM.
During meetings held in December 2007 and March 2008 the Council of Australian Governments adopted six targets to improve the wellbeing of Indigenous Australians over the next five to twenty years. As part of Prime Minister Kevin Rudd's February 2008 Apology to Indigenous Australians, he pledged the government to bridging the gap between Indigenous and Non-Indigenous Australian health, education and living conditions. He also proposed to establish a commission to "close the gap" between Indigenous and non-Indigenous people in "life expectancy, educational achievement and economic opportunity", all in a way that respects their rights to self-determination.

2008–2018 framework

The Australian government adopted the goals of the Close the Gap campaign in 2008, in a strategy known as "Closing the Gap". Rudd and Health Minister Nicola Roxon signed the Close the Gap Statement of Intent to close the gap. This document serves two purposes: firstly, as a formal agreement between the Australian government of the day and Aboriginal and Torres Strait Islander peoples; and, secondly, as an embodiment of a human right, a blueprint for achieving health equality. The strategy has been funded by the government to develop a long-term action plan targeted at health services to achieve health equality and life expectancy equality for Aboriginal and Torres Strait Islander people.

2019–2029 framework

In the Prime Minister's Foreword to the Closing the Gap Report 2019, Prime Minister Scott Morrison said that while some improvements had been made, including greater retention to Year 12, successive governments had been reporting failure to meet targets. After beginning the process of a Closing the Gap "refresh" two year earlier, this would be the final report of the framework established in 2008. In December 2018, a coalition of Aboriginal and Torres Strait Islander Australians had met with Morrison, and shortly afterwards COAG First Ministers had agreed to a different form of partnership with Indigenous organisations, entailing greater collaboration. In future, there would be a transition to a different phase of Closing the Gap, involving a whole of government approach, with "all governments sharing accountability for progress, and extending this shared accountability to include Aboriginal and Torres Strait Islander people".
A formal partnership between COAG and the National Coalition of Aboriginal and Torres Strait Islander Peak Organisations came into effect in March 2019, which included arrangements for a Joint Council on Closing the Gap, enhancing shared decision-making. The Partnership Agreement on Closing the Gap, 2019-2029 was signed by representatives of the NCATSIPO, each state and territory government, and the Australian Local Government Association. The Joint Council on Closing the Gap met for the first time on 27 March 2019.
The National Indigenous Australians Agency was established in July 2019, under the Minister for Indigenous Australians, Ken Wyatt, and this agency is now responsible for "lead and coordinat the development and implementation of Australia’s Closing the Gap targets in partnership with Indigenous Australians".

Targets

During meetings held in December 2007 and March 2008 the Council of Australian Governments adopted six targets to improve the well-being of Indigenous Australians over the next five to twenty years:
, there have been eleven Closing the Gap Reports presented to Parliament, providing data in areas that previously had none and updates on progress. The Close the Gap campaign has produced 10 reports, including a 10-year review in 2018.

2020 targets

The draft targets for 2019 aimed to address multiple areas to improve the lives of Indigenous peoples. These were created by the Council of Australian Governments in December 2018, and listed the following areas:
The new justice targets relate mainly to the levels of incarceration of Indigenous people. This matter, along with Aboriginal deaths in custody, was highlighted at the Black Lives Matter rallies around Australia in June 2020. The new CtG plan proposes that each state and territory would commit to reducing the level of Indigenous youth in detention by 11% to 19%, and to reduce adult imprisonment by 5%. Despite the poor record of achieving targets in past years, Indigenous leaders involved with Closing the Gap, such as Pat Turner believe that the strategies put in place for this round – including implementation plans, accountability and involvement from Aboriginal services – are more likely to bring about the changes needed. Ken Wyatt believes that both law reform and attitudes, such as unconscious bias, are needed, if relationships between police and Indigenous people are to improve.
Western Australia had had some specific issues needing addressing, including systemic discrimination and the matter of jail sentences for unpaid fines. On 17 June 2020 reforms to the legislation relating to the latter was finally passed. Under the new legislation, most fine defaulters will do community service if they fail to pay, with imprisonment a last resort.

Progress

, there have been eleven Closing the Gap Reports presented to Parliament, providing data in areas that previously had none and updates on progress.
In 2018, the government's ten-year progress report against the key areas of the framework indicated that only three of the target areas were likely to be met, with ongoing concerns in areas such as education and school attendance, and health.
The 10-year review published by the Close the Gap campaign in 2018, assessing the progress of the Closing the Gap strategy, included major findings as follows:
The Closing the Gap Report 2019 reported that of the seven targets, only two – early childhood education and Year 12 attainment – had been met. Aims to halve the gap in child mortality by 2018, close the gap on school attendance by 2018, close the gap in life expectancy by 2031, halve the gap in literacy and numeracy by 2018 and halve the gap in unemployment by 2018 were not on track.
The Closing the Gap Report 2020 shows little progress on any of the targets, with still only two of the seven targets having been met. The Prime Minister's foreword says that the final results of the evidence of the previous twelve years are not had been hoped for, but that there were stories and successes worth celebrating, and some progress on almost every measure, including the key areas of health and education. Morrison wrote that "the new framework is based on true partnership...".

Health

Indigenous Australians living in poorer rural communities may have to travel long distances to access hospitals or medical help; subsequently, compared to non-Indigenous Australians, they experience a lower standard of health, a shorter life expectancy and other statistically confirmed outcomes. The extra cost of accessing health care has contributed to a growing life expectancy gap, as Australians living in cities have 24-hour access to doctors and nurses, while those living in rural areas are three times more likely to have shorter lives due to the lack of healthcare options.
According to a 2014 article in the Australian and New Zealand Journal of Public Health, improvement to nutrition would help to close the gap.
Major contributing factors to Indigenous Australians' lower life expectancy and poorer health outcomes originate from the effects of colonisation. Between one third and one half of the life expectancy gap may be explained by differences in the social determinants of health. They affect the health of people and can also influence how a person interacts with health and other services. For example, Aboriginal and Torres Strait Islander adults are less likely to smoke if they have completed Year 12, are employed and if they have higher incomes. Additionally, higher levels of education are associated with healthier lifestyle choices and improved health literacy.

Education

Closing the Gap has focused on improving education for Indigenous people, with some success. Attainment of Year 12 or equivalent for ages 20–24 has increased from 47.4% in 2006 to 65.3% in 2016. This has led to more Indigenous people undertaking higher or vocational education courses. According to the Closing the Gap report, Indigenous students in higher education award courses more than doubled in number over the decade from 2006 to 2017.
However, most of the Closing the Gap targets for education are not on track. In general, the gaps have improved or not devolved have not met targets. Remoteness seems to be a factor; students in isolated or remote communities do not perform or attend as well as students in urban areas. The Closing the Gap Report 2019 reported that of the seven targets, only two – early childhood education and Year 12 attainment – had been met. Only Year 9 numeracy was on track in all states and territories, with variations among them.

Employment

The target to halve the gap in employment by 2018 is not on track; the gap has actually widened. The overall rate of employment for Indigenous Australians had risen by at least 4%, and that in remote areas by about 11% between 2006 and 2016.

Footnotes