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You are here: Cabinet PapersProgramme of Action For Maori - Options for practical initiatives

Paper 21: Effective Interventions: Programme of Action for Māori - Funding Options for Practical Initiatives

Background

  1. The Ministry of Justice has been directed to report back to Cabinet Policy Committee (POL) on funding options to enable a group of providers (identified by Te Puni Kokiri) to continue specific initiatives in 2008/09 and 2009/10 financial years. [POL Min (07) 8/6 refers].
  1. Cabinet Policy Committee also directed the Ministry of Justice to identify options for funding for the providers of a number of further practical initiatives (identified by Te Puni Kokiri) and to report to Cabinet.
  1. The report back for both these work items was originally required by 30 September 2007. An extension was sought. Report back is now required by 5 December 2007.
  1. The Minster of Maori Affairs also sought an update from Te Puni Kokiri on work it is undertaking as part of its contribution to the Effective Interventions Programme of Action for Maori.
  1. This paper:
    • Summarises the work undertaken to date
    • Outlines funding options which have been explored
    • Reports on outcomes of discussions of possible funding options for current and further initiatives
    • Proposes next steps in a course of action to fund designed, developed and delivered by Maori crime prevention and reduction initiatives.
  1. The Ministry of Justice has also been directed to conduct a review of funding assistance available to providers and submit a progress report to POL on the outcome of this review by 30 November 2007, and a final report by 30 March 2008. [POL Min (07) 8/6 refers]. This paper provides comment on the progress with this review to date. A further report will be submitted to Cabinet Policy Committee by March 2008.

Executive Summary

The Ministry of Justice, in consultation with Te Puni Kokiri, has been tasked with identifying funding options to support six Maori designed, developed and delivered initiatives to address Maori over representation in the criminal justice system.

  1. The Ministry of Justice and Te Puni Kokiri have consulted with a number of government agencies. A cross agency meeting was convened where information about the six initiatives currently supported by Te Puni Kokiri was presented. The consultation ascertained the level of support for these initiatives and more broadly for initiatives that are designed, developed and delivered by Maori.
  1. In light of the discussion, this report proposes a course of action to enable continued support for crime reduction and prevention initiatives designed, developed, and delivered by Maori.

Over-Representation of Maori

  1. Statistics show disproportionately high levels of offending, re-offending and imprisonment among the Maori population and historical data shows that this over-representation has been longstanding. The proportion of Maori inmates has risen from 26% in the 1960's to 37% in 1970, to just over 50% since the early 1980's. Today Maori men and women comprise approximately 51% (3,552) and 58% (260) of their respective prison populations.
  1. Data from Census New Zealand 2006 indicates that Maori represent 14.6% of the general population aged 15 and over, however Maori make up 42% of criminal apprehensions and 50% of the prison population. The number of Maori in the offending prone age groups (15 to 29 years of age) is projected to increase significantly by 2021. Maori crime statistics have also deteriorated consistently since the 1960s, and significantly in the past decade. In particular, apprehensions among Maori for violent offences have risen from 13,332 in 1997/98 to 18,207 in 2006/07. Unless something is done to stem the flow of Maori into the criminal justice system and better manage the exits of those already there, outcomes for Maori are unlikely to improve and pressure on the prison system is unlikely to abate.
  1. The factors influencing crime are complex. Available research emphasises the roles played by social and cultural alienation, stress, substance abuse, and economic factors. Research findings also reflect the views expressed by Maori providers, practitioners and offenders during recent engagement where they considered offending to be a by-product of urbanisation, child abuse, poor social outcomes and bias in the operations of the criminal justice system.
  1. Typically the justice sector responses to the high imprisonment rate of Maori has been to implement international 'best practice'-based rehabilitation programmes, sometimes with Maori cultural components. Considering the continued deterioration of Maori imprisonment statistics it is timely for the criminal justice sector to explore initiatives that stem from a Maori cultural paradigm, that is, initiatives that are designed, developed and delivered by Maori.
  1. In the social development, health, and education sectors there have been successful outcomes achieved from investment in programmes and services specifically developed by Maori providers who are committed to addressing the multiple needs of their clients. Examples include Te Kohanga Reo, Kura Kaupapa Maori and Wananga (education) and smoking cessation, whanau ora and immunisation programmes (health). Consequently, Cabinet directed Te Puni Kokiri to engage with Maori providers and practitioners on practical initiatives to address Maori people at risk in the criminal justice system [CAB Min (06) 27/3 A refers]. It is expected that this work will strengthen the evidence base in the criminal justice sector on successful approaches for improving outcomes for Maori.

    2. Policy Context

  1. Effective Interventions is a package of initiatives agreed by Cabinet to slow the growth of the prison population through addressing the precursors of crime, reducing re-offending and reducing Maori and Pacific peoples' over-representation in the criminal justice system.
  1. As part of Effective Interventions Cabinet directed Te Puni Kokiri and the Ministry of Justice to report to Cabinet Policy Committee with a programme of action relating to Maori [CAB Min (06) 27/3A refers]. On 2 May 2007 Te Puni Kokiri and the Ministry of Justice presented the Programme of Action for Maori (PoAfM) for consideration. The overall objective of the PoAfM is to reduce offending and imprisonment among Maori. It has several components, including research and engagement with Maori providers, practitioners and offenders. Further support for Maori Wardens, and for other innovative approaches, are also included in the Programme of Action for Maori.
  1. The PoAfM aims to inform justice sector policies, programmes and services aimed at reducing offending and imprisonment among Maori, and includes:
    • engagement with Maori providers, practitioners, offenders, and Maori justice sector experts and specialists (via the establishment of a Maori reference group which provides high level advice and support to officials);
    • a research programme that will continue to contribute the Maori Programme of Action over the medium to long-term;
    • investing in a suite of practical initiatives designed, developed and delivered by Maori, and identifying sustainable funding options for these initiatives; and
    • a funding process review and options for the establishment of a fund to support practical initiatives and innovative ideas for programmes and services to reduce offending and re-offending by Maori [CAB Min (07) 15/1 refers] .
  1. A component of the PoAfM addresses funding and other support for promising providers of practical initiatives. A wide range of Maori providers operate in the social and justice sector, some providing services which are aligned to the Te Puni Kokiri Maori Potential Approach (Maori potential, cultural distinctiveness and Maori capability). Maori providers indicated frustration with the lack of opportunity to draw down funding for untried or experimental initiatives. Lack of clarity around funding routes was also said to be impeding creativity. Further, short-term funding did not provide sufficient opportunity for the level of monitoring and evaluation which would demonstrate effectiveness to be undertaken.
  1. It was proposed that a component of the PoAfM build on and enhance capability of the sector to provide effective interventions to prevent and reduce crime. The Programme is an opportunity to identify and test 'what works' for Maori and build up the empirical evidence base.
  1. Cabinet Policy Committee directed the Ministry of Justice to identify options for funding to enable a group of providers (which had been identified and funded by Te Puni Kokiri) to continue the delivery of initiatives designed, developed and delivered by Maori, in the 2008/09 and 2009/10 financial years, and to report to POL by 30 September 2007 [POL Min (07) 8/6 refers].
  1. Cabinet Policy Committee also directed the Ministry of Justice to identify options for funding for further practical initiatives to be identified by Te Puni Kokiri and to report to POL by 30 September 2007 [POL Min (07) 8/6 refers].
  1. The Ministry of Justice sought a deferral of the report back date. Report back is now required by 5 December 2007.

Promising Providers of Maori Designed, Developed and Delivered Initiatives

  1. As directed by Cabinet, Te Puni Kokiri identified and began working with providers of Maori designed, developed and delivered initiatives [CAB Min (06) 27/3A refers]. The following criteria were used to select the initiatives:
    • cognisant of criminological literature;
    • current governance capability and management capacity;
    • accompanied by evaluation; credibility/proven track record of service delivery; and
    • aligned to the Maori Potential Framework.
  1. These initiatives stem from a Maori cultural paradigm which highlights a preference for utilising a whanau development approach rather than working with individuals, taking a holistic approach to addressing multiple needs of clients; and utilising tikanga as a central theoretical and practice platform for programme design, development and delivery.
  1. The focus of the initiatives in terms of the clientele, the issues they respond to and the outcomes these initiatives are designed to effect, can be located at various points of a service delivery spectrum within criminal justice, from prevention (Mana Social Services' restorative justice programme) to early intervention (Taonga Education's teen parents and their children) and rehabilitation (Te Whare Ruruhau o Meri recidivist offenders programme). These initiatives are aimed at (but in most cases, not limited to) responding to the needs of Maori.
  1. It should also be noted that while the predominant focus of these initiatives is to prevent criminal offending and re-offending, all of the initiatives contribute to making improvements to wider social development outcomes while also meeting the specific needs of Maori offenders, their whanau, hapu, iwi and communities and improving justice sector outcomes [POL Min (07) 8/6 refers].
  1. The following table summarises the six initiatives funded by Te Puni Kokiri. Further information about the initiatives has been included in Appendix One.
Initiative Description of Initiatives Funding Contract Dates
Te Whakaruruhau Maori Women's Refuge (Waikato) Strengthen the organisation so that it can better meet the needs of its clients. Through their services and programmes, develop and implement strategies with clients to keep them safe and reduce likelihood of domestic violence incidences occurring. Funded to undertake a quality assurance review and establish a transitional and wellbeing programme, build organisational capability and capacity, establish two houses and an administration block and increase staff numbers to better manage the client base.
TOTAL $546,000		 February 2007 through to December 2007
Hoani Waititi Marae (Auckland) Identify the ways in which whanau have successfully reduced the negative impacts of methamphetamine, whanau will then be better informed in order to protect themselves from the negative impacts of methamphetamine use. Carry out a literature review, a review of existing services, and identify service gaps, develop and deliver at least 25 presentations and develop and distribute resources to support the presentations, whanau interviews and focus groups, conduct whanau interviews and the focus groups (post presentations) and present the findings from those interviews and focus group discussions.
TOTAL $304,000 		April 2007 through to April 2008
Taonga Education Trust (Auckland) Providing support to teenage mothers so that they may utilise the skills and opportunities available to them to better inform their decisions about their future and the future of their children. Funds utilised to increase the capability of the Centre through the establishment of 2 whanau support workers.
TOTAL $139,000		 March 2007 through to March 2008
Mana Social Services Trust (Rotorua) Promote positive engagement between students, the schools and whanau and the likelihood of students being stood down, suspended and excluded, will be reduced. To increase organisational capacity and capability to deliver a restorative justice programme targeted at 9-13 year olds which will better meet the needs of students, their whanau and associated schools.
TOTAL $258,000		 March 2007 through to April 2008
Te Whare Ruruhau o Meri (Auckland, Whangarei, and Kaitaia) Provide offenders with the skills and opportunities to actively make better informed decisions, they will make positive changes to their behaviours and reduce the likelihood of re-incarceration and negative impacts on their whanau. To support the organisation to undertake its administrative functions more effectively and support the enhancement of their services and programmes, to set up and run a holiday programme for the children who come with this client group.
TOTAL $151,000		 March 2007 through to April 2008
Consultancy Advocacy and Research Trust Implement effective engagement, liaison and mediation processes with hard to reach youth so that they can make positive choices to realise their full potential. The initiative engages with hard to reach youth, liaise with relevant agencies to facilitate access to their services and provide information to Te Puni Kokiri to inform its policy work.
TOTAL $150,000		 September 2007 through to June 2008
  1. Te Puni Kokiri has funded the initial six practical initiatives from their "Maori Potential Fund" for the 2007/2008 financial year to the sum of $1.55 million GST exclusive (as identified in the table above). Te Puni Kokiri has allocated funding to undertake evaluative activities around each of the initiatives and there is anecdotal evidence that positive outcomes are being achieved.
  1. Following Ministerial direction, Te Puni Kokiri will continue to fund the six initiatives until June 2008. After June 2008 further funding with the six providers will be drawn from Justice Sector, Social Sector, Health and Education agencies' baselines. The particulars of this funding arrangement are yet to be finalised. The initiatives will be funded for a further two-three years to enable evaluations to be completed.
  1. As agencies have indicated their baselines are fully committed, Cabinet will need to direct agencies to fund the initiatives so that funding will be reprioritised.
  1. At the direction of Cabinet, Te Puni Kokiri officials have also identified further promising practical initiatives that are designed, developed and delivered by Maori. These initiatives were primarily identified through the engagement process with Maori providers, practitioners and offenders. The same selection criteria developed and used to select the first six initiatives. [CAB Min (07) 15/1 refers] was applied to assist selecting these further promising practical initiatives. These initiatives include:
    • a reintegration initiative to support Maori offenders as they transition from prison back to the community, including access to suitable programmes targeting educational attainment, employment and training, alcohol and drug rehabilitation, drivers license requirements, defensive driving courses and basic life skills such as budgeting;
    • an academy to provide training and development opportunities to a small group of 'at-risk' and 'in-risk' youth in the Hawke's Bay, using sports as the lever for participation;
    • a marae-based rehabilitation programme to guide offenders through healing processes that are grounded in tikanga based theories and practices; and
    • two initiatives based in secondary schools which aim to reaffirm the links between the schools and their communities so that the needs of students are being met, and whanau are actively participating in the educational activities of their youth.

Exploration of Funding Options

  1. The Ministry of Justice and Te Puni Kokiri began liaising with relevant agencies in early 2007 to establish an inter-agency fund and explore the availability and feasibility of establishing sustainable funding for the six existing initiatives and also future initiatives.
  1. The Ministry of Justice and Te Puni Kokiri jointly facilitated a meeting with senior government officials from a number of agencies to progress this work. This meeting included representatives from: Treasury, Department of Internal Affairs, Ministry of Social Development, Department of Corrections, Ministry of Education, Ministry of Health, NZ Police and Department of Prime Minister and Cabinet.
  1. At the meeting Te Puni Kokiri presented information about the six initiatives they currently fund. Following the presentation, views were sought about how these initiatives might be supported to continue their delivery. Discussion also took place more broadly on how government agencies might jointly support the implementation and evaluation of crime prevention and crime reduction initiatives that are designed, developed and delivered by Maori. The approach was broadly supported by all agencies. The Ministry of Justice then followed up with individual discussions with the agencies that have non-operational budgets (NZ Police, Department of Corrections, Ministry of Education, Ministry of Health, and Ministry of Social Development, Department of Internal Affairs).
  1. Agencies have expressed support for the principle of a funding arrangement which will encourage creativity and innovation in the justice sector to better meet the needs of Maori. The agencies also endorsed the concept of interventions designed, developed and delivered by Maori, and of the Maori potential approach.
  1. There is recognition that a co-ordinated multi-agency approach to supporting crime prevention and reduction initiatives is likely to be the most effective approach. A number of agencies have expressed a willingness to explore this approach further with a view of clarifying the aims and outcomes sought by each of the initiatives.
  1. When discussing the funding options are available for these initiatives, the following general points were made by agencies:
    • Agencies indicated that budgets have already been allocated and that there is no unallocated funding available from baseline. Should any unexpected under spend existing outcome framework.
    • Larger agencies (for example Health and Education) have devolved funding arrangements to regional and local bodies, which limits the amount of funding available at a national level.
  1. A number of possible funding options for Maori designed, developed and delivered crime reduction initiatives have been identified and critiqued. These options include:
    • Option One: Agencies identify funding for the initiatives within their current baselines for 2008/9 and 2009/10.
    • Option Two: Agencies make a contribution of $250,000 each to a cross agency funding pool from which these initiatives would be funded in 2008/9 and 2009/10.
    • Option Three: A budget bid through the Effective Interventions process be submitted to provide new funding to support Maori designed, developed and delivered initiatives.
  1. There is limited support across wider government for the 'rolling out' of further initiatives, when sustainable funding for the six initiatives currently funded by Te Puni Kokiri has not been secured. As such, officials recommend that no engagement with further initiatives be undertaken until sustainable funding is identified.
  1. The Ministry of Justice in conjunction with Te Puni Kokiri proposes to continue work with relevant government agencies to explore ways to support crime prevention and reduction initiatives that are designed, developed and delivered by Maori. Building a Base of Empirical Evidence about Maori Designed, Developed and Delivered Initiatives
  1. Outcome evaluations are only useful when initiatives have been operating over a three - five year period of time to enable them to have an impact on outcomes.
  1. Currently, the six providers have been funded for up to a year, and as such, outcome evaluations have not been planned for. Evaluative activities of the providers will focus on the initial programme design and implementation phases of these initiatives to elicit information on the effectiveness and appropriateness of the intervention logics, implementation and administrative processes and the efficacy of resourcing.
Initiative Evaluation Activity Completion Date
Te Whakaruruhau Inc Process Evaluation 28 May 2008
Te Whare Ruruhau o Meri Process Evaluation 30 May 2008
Taonga Education Centre Process Evaluation 30 May 2008
Mana Social Services Process Evaluation 30 May 2008
Hoani Waititi Marae Research 30 May 2008
CART Research 30 July 2008
  1. The majority of the preliminary evaluation activities will be completed by May 2008 and the findings will provide agencies with further indicative information on the attributes of Maori designed, developed and delivered initiatives that facilitate their success (i.e. what works for Maori).

Comment

  1. The Ministry of Justice has also been directed to conduct a review of funding assistance available to providers from the Ministry of Justice and report on the findings of this review by 31 July 2007, and from the wider sector by 20 December 2007 [POL Min (07) 8/6 refers]. Work has commenced on this review and a final report will be made available by 30 March 2008.
  1. A final report on the review of funding assistance available to providers will be submitted to Cabinet Policy Committee by March 2008.

Consultation

  1. This paper was developed jointly by the Ministry of Justice and Te Puni Kokiri.
  1. Discussions with representatives from Treasury, Department of Internal Affairs, Ministry of Social Development, NZ Police, Department of Corrections, Ministry of Education, Ministry of Health and Department of Prime Minister and Cabinet have also occurred during the formation of this paper.

Financial Implications

  1. Te Puni Kokiri is providing funding for the six initiatives to 30 June 2008. As agencies have indicated their baselines are fully committed, Cabinet will need to direct agencies to fund the initiatives so that funding can be reprioritised from 2008 to 2010. Human Rights Implications
  1. The proposals in this paper are consistent with the Bill of Rights Act and the Human Rights Act 1993.

Gender Implications

  1. While women make up a relatively small proportion of the total offender and prison populations, Maori women are significantly over-represented in all stages of the criminal justice system, from apprehension to imprisonment. It is expected that Maori women will benefit from improvements outlined in the Effective Interventions package.

Disability Perspective

  1. There are no specific disability implications.

Recommendations

  1. The Minister of Justice and the Minister of Maori Affairs recommend that the Committee:
  1. note that consultation and discussion with key government agencies has occurred to ascertain the level of support for the six initiatives funded by Te Puni Kokiri as part of the Effective Interventions Programme of Action for Maori;
  1. note that there is support among central government agencies for the concept of crime prevention and crime reduction initiatives which are designed, developed and delivered by Maori, for Maori.
  1. direct Te Puni Kokiri to continue to fund the six initiatives until 30 June 2008;
  1. note that Te Puni Kokiri will have completed formative evaluations for each of the six initiatives by 31 May 2008 and the findings will be provided to relevant agencies;
  1. direct the Ministries of Justice, Social Development, Health and Education and the Department of Corrections to identify appropriate funding from their existing baseline resources to fund the six initiatives from 1 July 2008 to 30 June 2010; subject to appropriate monitoring and evaluation results
  1. direct the Ministry of Justice, in consultation with Te Puni Kokiri and other relevant agencies to report back to Cabinet Policy Committee by 31 March 2008, identifying which government agency, or agencies, will provide sustainable funding for each of the six initiatives from 1 July 2008 to 30 June 2010;
  1. note that Ministry of Justice has commenced a review of funding assistance available to providers and will submit a final report on the outcome of this funding process review to Cabinet Policy Committee by 31 March 2008.
Hon Annette King Hon Parekura Horomia
Minister of Justice Minister of Maori Affairs

Appendix One: Further Information on Promising Providers

Te Whakaruruhau Maori Women's Refuge

Te Whakaruruhau Maori Women's Refuge has been providing services to women and children affected by domestic violence in the Waikato region for just under 20 years. Te Whakaruruhau operates on the philosophy that where there is collective ownership of and contribution to clients realising their aspirations, then lifelong learning and positive knowledge is being transmitted.

Te Puni Kokiri is providing funding of $546,000[1] to Te Whakaruruhau to assist the organisation to continue to respond to the increased demand on their services and to support the implementation of strategies that promote positive outcomes for women and children affected by domestic violence. This funding ends in December 2007.

Te Whakaruruhau is also one of two organisations involved in a programme being piloted by the New Zealand Police - POL 400, which aims to improve the reporting of and responses to domestic violence incidences. As a result of their involvement in this pilot programme, the number of reported domestic violence incidences received by Te Whakaruruhau from June 2006 - December 2006 increased by 300%.

To date, Te Whakaruruhau has:

  • Strengthened its organisational capability and administration processes and systems to better manage the allocation of cases, communication with NZ Police and other service providers and the collection and collation of data on domestic violence incidences;
  • Established itself as a provider of 24 hour, 7 day a week domestic violence services and programmes (other than the NZ Police and the CYFs Social Workers on call-out);
  • Employed eight staff to alleviate the workload pressures on current staff and implemented a training programme to increase staff skills and competencies required in this area of work;
  • Improved their communication with Police leading to a more rapid response to reports of domestic violence;
  • Secured two new houses (through successful negotiations with HNZC) to enable it to provide its newly developed transitional and wellbeing programmes;
  • Successfully engaged with the management of Waikeria prison to facilitate access to programmes for the partners of the women affected by domestic violence and to gain support from the Waikeria Prison community working party who has been repairing damages to houses rented by women who have experienced severe domestic violence;
  • Negotiated access to skilled tradesmen to build and repair furniture for these houses;
  • Successfully secured funding from Child, Youth and Family to support its increased workload resulting from taking over full responsibility for the Crisis Line operating in the Hamilton area;
  • Initiated more effective collaboration and cooperation from government agencies and community organisations that they work with in the area of domestic violence; and
  • Created opportunities for women affected by domestic violence to seek out and undertake positive actions that result in improved circumstances for them and their children.

Mana Social Services Trust

Since 2002, Mana Social Services has been delivering this restorative justice programme for 9 - 13 year olds who are at 'high risk' of disengaging from the education system. Mana Social Services works with schools in the Rotorua area to promote positive engagements with students and their whanau. This in turn reduces the likelihood of those students being suspended, stood down or excluded from school. Te Puni Kokiri is providing further funding of $357,000 to the Trust to enable it to continue to deliver this programme through to April 2008.

To date, Mana Social Services have:

  • Engaged twenty one schools in the Rotorua area to inform and engage them in the Awhi Whanau programme;
  • Received referrals and provided interventions to twenty one students from these schools (in some cases, a range of interventions to one student);
  • Established and delivered whanau support services such general counselling, educative programmes and made referrals onto appropriate organisations, such as Budget Advice;
  • Developed reparative plans for the participants currently involved in the Awhi Whanau programme; and
  • Developed different modules and/or programmes to respond appropriately to the needs of the child and family/whanau and/or school (these include restorative justice processes, how to manage negative behaviours, such as anger and damage to property, grief and loss, low self esteem, and relationship issues).

Hoani Waititi Marae

This initiative aims to strengthen whanau that have been or are being affected by the negative effects of Methamphetamine abuse. It does this through gathering and sharing information on the ways that whanau have successfully reduced the negative impacts of methamphetamine, allowing other whanau to make informed decisions as they respond to the negative impacts of methamphetamine. Te Puni Kokiri is providing funding of $304,000 for Hoani Waititi Marae to implement this initiative - Patua te Ngangara. This funding ends in April 2008.

There are three phases to this initiative:

  • Information gathering (interviews, literature search and service identification);
  • Information sharing (presentations and focus groups); and
  • Information collation and dissemination (educational resources and information).

Hoani Waititi is currently undertaking the information gathering phase of this initiative. As such it has:

  • Interviewed thirty whanau to identify the strengths, strategies and actions that supported those whanau to deal with the negative impacts of methamphetamine;
  • Engaged with providers in the Auckland region to identify appropriate services and programmes for whanau to access and seek support from;
  • Undertaken a literature search to identify any new information and literature on methamphetamine that will inform their presentations;
  • Developed a range of presentations to suit specific targeted audiences (such as youth, men, service providers and mothers);
  • Piloted the focus groups methodology and format to identify ways in which they can better gather information from participants; and
  • Produced a set of resources to distribute at the presentations which are focused on providing contact details for help and assistance, as well as service provider information gathered to date.

Taonga Education Centre

Taonga Education Centre provides alternative education to teenage mothers in Clendon, Manurewa (Auckland). The aim of the current initiative is to increase students' skills, abilities, support networks, and confidence in all areas of their lives so they are well equipped to raise healthy whanau as well as achieving their academic goals.

Te Puni Kokiri provided funding of $139,400 to the Taonga Education Trust to support the delivery of this programme through to March 2008.

To date the Trust has:

  • established its whanau support programme which includes two whanau support workers;
  • established whanau plans with students to identify goals for the coming year and pathways to achieve those goals;
  • facilitated the establishment of a Health Nurse on site at the Trust;
  • facilitated access to other service providers and supported students to engage effectively with those services to ensure their needs are being met;
  • established activities that encourage and promote independence amongst students so they can actively make independent and informed decisions; and
  • increased visibility of, and secured support for the programme from local businesses and community organisations.

Te Whare Ruruhau o Meri

Te Whare Ruruhau o Meri delivers a programme aimed at reducing re-offending among 20 recidivist offenders. These high risk offenders have been identified and referred to Te Whare Ruruhau o Meri by NZ Police.

Te Puni Kokiri provided funding of $151,000 to Te Whare Ruruhau o Meri to continue the delivery of this programme to April 2008. The programme aims to strengthen offenders' communication skills and develop coping mechanisms to bring about positive changes in the individual's behaviour. If offenders have new skills to communicate better with their whanau, then their relationships with their whanau will improve and the likelihood of domestic violence incidences occurring will reduce. The base of the programme is the provision of individual and whanau therapy and other activities to support the reestablishment of and reconnection with the offenders' whanau.

To date, Te Whare Ruruhau has:

  • Increased the number of counsellors available to work with these offenders;
  • Established a holiday programme and therapy sessions to support the children of the programme participants;
  • Established individual and group counselling sessions for participants which are delivered at regular times each week;
  • Facilitated ongoing access to a number of support services and networks for the partners of these offenders;
  • Set up clear communication lines with the NZ Police to seek assistance with facilitating access to clients that have been re-incarcerated;
  • Established a programme to respond to the negative behaviours being displayed by youth aimed at reducing the risk of them becoming involved in criminal activities; and
  • Engaged with other community and government agencies to facilitate access to services that will better meet the needs of their clients and their whanau.

Consultancy Advocacy and Research Trust (CART)

Te Puni Kokiri currently funds CART through a joint contract with the Ministry of Health. Among other things, CART facilitates access to health services for hard to reach whanau. This programme has increased immunisation rates of Maori at high risk of developing Hepatitis B, Tuberculosis infections, and other diseases.

This joint contract ended on 30 June 2007 and discussions around further funding for this initiative are still underway between the Trust, Te Puni Kokiri and the Ministry of Health. Over the last ten months, the Trust has also been involved in working with hard to reach youth gangs and groups in the South Auckland area. This work was initiated after a number of homicides occurred in 2006 that were attributed to youth gang members in Counties Manukau. Government undertook research and formulated an action plan to address the situation.

The research[2] highlighted that the majority of existing community service providers did not work with criminal youth gangs (as they were difficult to access). The research also identified that the existing service providers had no desire to work with these groups. The action plan included increasing funding and the deployment of youth workers in the Counties Manukau area. There was an expectation by the Ministry of Social Development for the youth workers to mediate between the rival groups. However, gang mediation is a specialised field and can be dangerous for people who are not familiar with gang sub culture and dynamics. Further to this, unless the mediator has credibility with the gang community, it was highly unlikely that they would be able to penetrate gang groups.

Following a meeting between the NZ Police and senior members of one of the established gangs on 19 September 2006, it was agreed that there was an immediate need to penetrate the various youth gangs and hard to reach youth groups to:

  • identify the groups in conflict, and the basis of their rivalry;
  • identify whether the hard to reach youth groups have formal or informal connections with the established gangs;
  • liaise with various hard to reach youth groups on the need to resolve issues in a non-confrontational way;
  • inform hard to reach youth group members on the negative lifetime ramifications of being a gang member;
  • liaise with the established gangs to identify whether or not they have influence with the various hard to reach youth groups;
  • encourage the established gangs that have influence with the hard to reach youth groups, to exercise their influence and to encourage the hard to reach youth groups to undertake mediation as a means of resolving their disputes;
  • facilitate gang mediation between the various hard to reach youth groups; and
  • to link hard to reach youth group members to positive youth development programs within their community; or
  • to assist hard to reach youth groups to establish their own positive youth development activities or programmes within their community

A pilot initiative was implemented as a response to the immediate need to penetrate these hard to reach youth groups and support them to make positive changes to their circumstances. As a result of this pilot initiative and other activities in the South Auckland area, the number of violent incidences between these youth groups has decreased and mediation processes have assisted these youth groups to resolve issues in a non-confrontational way. Te Puni Kokiri has just confirmed funding of $150,000 to continue with the implementation of this initiative for the remainder of the 2007/08 financial year.

Appendix Two -Other Work Streams

A number of work items that complement the Programme of Action for Maori focus on cross-agency collaboration and co-operation. Some of these initiatives are noted below:

Building the Capacity and Capability of Maori Wardens

  1. As part of Budget 2007 an investment of $2.53 million was allocated from Vote:Maori Affairs to build the capacity and capability within the New Zealand Maori Wardens. This investment focuses on providing the required resources directly to Maori Wardens operating at the frontline and includes: introducing six regional coordinators; a national training package to up-skill wardens; a funding pool for supporting implementation of local initiatives; investing in portable radios, vans, and uniform enhancements; and promoting the work of the wardens through increased marketing and recruitment.
  1. A joint project team consisting of members from both Te Puni Kokiri and NZ Police has been appointed to manage the design, development and piloting of the capacity and capability programme. Activities to date include:
    • a series of regional hui carried out in August with Maori Wardens to discuss the overall project;
    • the development of the training package for wardens. The first module was delivered at the Police College in Porirua on 14-17 October 2007;
    • establishing six regional centre's and the appointment process for appointing regional coordinators. It is anticipated that all the coordinators will be appointed and operational by the end of November and early December 2007;
    • securing an order for six 12-seater vans (one for each of the pilot regions); and
    • exploring options for establishing a new national governance entity for Maori Wardens, and establishing an advisory group to assist this work.
  1. The advisory group will consider other relevant matters such as the future vision and strategic goals for Maori Wardens, updated functions of Maori Wardens and any legislative change required to implement this initiative. It is anticipated that key recommendations for a preferred structure that best supports Maori Wardens will be presented for my consideration by the end of November 2007.

Iwi-Led Crime Prevention Plans

  1. Late last year, iwi leaders approached New Zealand (NZ) Police for support to develop their own iwi-led crime prevention plans (ICPPs), under the umbrella of a New Zealand Maori Crime Reduction Strategy (NZMCRS). Unlike previous government crime prevention strategies, these strategies will be driven by iwi and supported by officials. Preliminary endorsement for the NZMCRS has come from Justice Sector Chief Executives. Work began in May 2007, when Te Puni Kokiri and NZ Police officials began engaging with iwi to develop a framework to guide iwi through designing the their individual crime prevention plans.
  1. To date, officials have held eight preliminary Hui attended by a mixture of local Police (including Iwi Liaison Officers), iwi delegates, taurahere groups, urban authorities, Maori service providers, and regionally based officials[3]. These preliminary Hui sought to gauge Maori support for the concept of ICPPs, provide some background and contextual information around ICPPs, and initiate the development of Maori criminal justice profiles at the Police area level. Feedback received from hui attendees to date has been overwhelmingly positive. It is likely that officials will return to each of those areas to assist iwi with their transition from agreeing to the general concept through to developing detailed crime prevention plans.

Mediation and Whanau Development with Hard to Reach Youth Groups

  1. In response to a perceived rise in violent conflict between youth in South Auckland, the Ministry of Social Development led the development of an inter-agency action plan for Counties Manukau and Otahuhu youth. This action plan was released in September 2006. The action plan did not include a component that focused on identifying the sources of tension amongst youth or any strategies for alleviating those tensions with hard to reach youth groups in South Auckland. Consequently, officials from Te Puni Kokiri and NZ Police developed a mediation and social development initiative to engage with hard to reach youth groups in South Auckland. Te Puni Kokiri contracted the Consultancy Advocacy and Research Trust to employ two experienced outreach workers[4] to engage with hard to reach youth through initiative. To date, the outreach workers have:
    • held hui with up to 40 hard to reach youth groups in South Auckland;
    • worked closely with 18 hard to reach youth groups to mediate tensions and carry out social development work;
    • identified the sources of tension and violence between some of the groups;
    • mentored youth to utilise non-violent means to resolve their disputes;
    • identified the social development needs of some of these hard to reach youth groups; and
    • assisted hard to reach youth to identify and design their own whanau development initiatives to respond to their social development needs.[5]
  1. A review of the South Auckland mediation initiative highlighted the complex social development needs and aspirations of hard to reach youth. In response to this finding, my officials are supporting an initiative that assists the outreach workers to identify:
    • the social development aspirations and needs of hard to reach youth; and
    • the level/type of access to social development initiatives experienced by hard to reach youth.
  1. The information gathered from this initiative will be utilised to link these youth to programmes that will respond to their social development needs and aspirations.

Footnotes

1. All funding figures listed in this appendix are GST exclusive.
2. Roguski. M, (2006) Draft Report: Youth Gangs in Counties Manukau. Centre for Social Research and Evaluation (Te Pokapu Rangahau Arotake Hapori) Ministry of Social Development, Wellington.
3. The eight preliminary hui were held in Counties-Manukau (two hui), Auckland city central, Waitemata (thus covering the three Policing areas that comprise Auckland metro), Hamilton, Rotorua, Wellington (with Iwi Liaison Officers from all of the Police Districts, and Commissioner Broad's Maori Focus Forum), Christchurch and Nelson.
4. Previously the outreach workers have been referred to as 'mediators'. However, their role extends beyond mediation.
5. In addition, the outreach workers have been involved in mediating gang tensions in Naenae, Tokoroa, Whanganui and Hamilton. Police have reported that their mediation has been instrumental in preventing further violence.