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Paper 21: Progress Report On Programme Of Action For Maori: Funding

Purpose

  1. This paper updates Cabinet on work to progress Cabinet's directives regarding the Effective Interventions Programme of Action for Māori. Specifically, it responds to the Cabinet directive to identify sustainable funding for six Māori initiatives aimed at reducing Māori offending and a process for funding five additional initiatives [CBC Min (07) 26/5 refers].
  1. The paper also provides a final report on the Ministry of Justice funding process review for Māori designed, developed and delivered initiatives [POL Min (07) 8/6 refers].

Executive Summary

  1. The Ministries of Justice, Social Development, Health and Education, and the Department of Corrections have been directed by Cabinet to identify appropriate funding from their existing baseline resources to fund six Māori crime reduction initiatives from 1 July 2008 to 30 June 2009.
  1. Cabinet also directed the Ministry of Justice, Te Puni Kōkiri, and other departments as appropriate, to report to Cabinet Policy Committee on funding options for five additional initiatives.
  1. The Ministry of Justice has convened a series of meetings with relevant agencies to progress these directives. Agencies have identified funding for the six original initiatives (paragraphs 23-30) and a process for funding additional initiatives that meet the criteria to test the Māori 'designed, developed and delivered' hypothesis (paragraphs 36-38).
  1. Agencies have committed to continue cross-agency work that will link into the Effective Interventions (EI) steering committee and reporting framework. This work is described in paragraphs 32-35.

background

  1. As part of the EI package of initiatives Te Puni Kōkiri and the Ministry of Justice developed the Programme of Action for Māori (PoAfM) at Cabinet's direction. The Programme has the overall aim to reduce offending and imprisonment among Māori, and aims to inform justice sector policies, programmes and services aimed at reducing offending by, and imprisonment of, Māori.
  1. Other sectors have recognised the importance of investment in programmes and services specifically developed by Māori providers for a Māori target audience. Consequently, Cabinet directed Te Puni Kōkiri to engage with Māori providers and practitioners on practical initiatives to address Māori over-representation in the criminal justice system [CAB Min (06) 27/3 A refers]. This work was also expected to strengthen the evidence base of successful approaches for improving outcomes for Māori in the criminal justice sector.
  1. Te Puni Kōkiri identified six providers as candidates to receive future funding. These providers had been previously funded by Te Puni Kōkiri and (in some cases) other agencies, and had shown promise in achieving justice related goals for Māori. Te Puni Kōkiri officials engaged with these providers in late 2006 to identify the intervention logic and conceptual basis of their initiatives. It was reported to Cabinet Policy Committee that Te Puni Kōkiri had committed approximately $1.5 million initial funding for the six promising Māori designed, developed and delivered initiatives.
  1. A series of papers and engagement with relevant agencies have followed, which culminated on 10 December 2007 in the Cabinet Business Committee directing:
    • 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 (subject to appropriate monitoring and evaluation results) the six Māori initiatives from 1 July 2008 to 30 June 2010; and
    • The Ministry of Justice, Te Puni Kōkiri, and other departments as appropriate, to report to Cabinet Policy Committee by 31 March 2008 on funding options for five additional Māori initiatives identified by Te Puni Kōkiri [CBC Min (07) 45/1 refers].

Policy context

  1. The PoAfM responded to feedback from a number of providers in the justice and social sector. These providers felt that the development and implementation of promising programmes for Māori is inhibited by agency fragmentation, and agencies' varying abilities to understand and respond to Māori issues. In addition, the lack of an evidence base was seen to hinder providers' access to funding and therefore capacity development. It was proposed that a component of the PoAfM build on and enhance the capability of the sector to provide effective interventions to prevent and reduce Māori crime rates. This part of the PoAfM is an opportunity to identify and test 'what works' to reduce offending by Māori and build up the empirical evidence base.
  1. The PoAfM champions the concept of Māori designed, developed and delivered initiatives. This concept stems from the hypothesis that programmes and services that are designed, developed and delivered by Māori and for Māori, are likely to be effective in addressing Māori offending and re-offending. This hypothesis is based on the results of engagement with Māori providers and communities, and models drawn from initiatives that have successfully progressed in other sectors to identify 'what works' for Māori. Examples include Te Kohanga Reo; Kura Kaupapa Māori and Wānanga (Education); Aukati Kaipaipa (smoking cessation); and Whānau Ora and promotional activity around immunisation programmes for Māori (Health).
  1. There is also an identified need to fund initiatives over a minimum three-year period as this will enable evaluations to be undertaken to test the validity of the hypothesis that Māori designed, developed and delivered initiatives are more effective than mainstream programmes for reducing offending by Māori.
  1. At the direction of Cabinet, Te Puni Kōkiri identified a further five initiatives/concepts that are designed, developed and delivered by Māori [CAB Min (07) 15/1 refers]. A process for identifying funding options for these five initiatives is outlined below in paragraphs 36-38.

Funding process review

  1. A wide range of Māori providers operate in the social and justice sector. One component of the PoAfM addresses access to funding and other support for promising providers of practical initiatives. In 2007, to support the development of the PoAfM, Te Puni Kōkiri and the Ministry of Justice engaged with Māori providers, practitioners and offenders. Many of those consulted indicated frustration with the lack of opportunity to obtain 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 opportunity for sufficient monitoring and evaluation to be undertaken, which would demonstrate effectiveness and build an evidence base.
  1. As part of the PoAfM it was recommended the Ministry of Justice conduct a funding process review to consider the clarity of information available to providers, flexibility and consistency of funding arrangements, and the greater use of joint contracting. Cabinet Policy Committee directed the Ministry of Justice to provide a final report to the Cabinet Policy Committee on the outcome of the funding process review by 30 March 2008 [CAB Min (07) 15/1 refers]. This paper provides that final report.
  1. A full summary of review findings are attached as an appendix. Overall, the review findings supported the opinions voiced by providers during engagement in early 2007. The key review findings were:
    • Publicly available information on funding options for Māori providers of Justice related initiatives is limited. A range of funding opportunities exist but not all funders have easily accessible, comprehensive application information and only a small proportion are represented on a widely-accessed public funding database (FundView, operated by the Funding Information Service);
    • Agency processes for funding vary widely, ranging from grants to contracts for service to joint contracts, and funding is actioned at local, regional and national levels. This reflects sectors' varied outcome and service priorities and funding structures. Some agencies transfer discretionary budgets to regional bodies, which have regulated autonomy in tendering processes and selecting programmes for funding. There are logical reasons for the individual funding approaches, however providers would benefit from a more coordinated approach;
    • Key justice and social sector government funders have, for some years, been investing in both crime reduction and other initiatives provided for Māori, by Māori. This is reflected in the funding of a broad range of Māori providers and the existence of Māori focus units and strategies for many agencies. These initiatives may be based on overseas models and adapted, by local providers or government agencies, to include some elements of tikanga, as opposed to being designed from a Māori perspective. There is evidence to support the effectiveness of certain Māori-specific programmes that are not necessarily designed from a Māori perspective (an example is described in paragraph 20);
    • There is significant scope for agencies to establish more joint approaches to funding. The Ministry of Social Development's Integrated Contracts model is a useful tool in achieving benefits for both providers and funders in areas that have been highlighted by this review and through prior engagement with providers. The Integrated Contracts model facilitates agency collaboration to (where possible) merge contract requirements into an integrated contract, which reduces contract compliance costs for providers and enables greater provider input to the contract development.
    • Quantifying funding options for Māori providers is challenging for a number of reasons. Māori providers are commonly funded as a Māori-specific component of a larger strategy or through regional agreements; therefore it is difficult to disentangle funding provided for Māori (particularly Māori designed, developed and delivered) specifically.
  1. Agencies are making significant investment in justice and relevant social sector initiatives for Māori. Greater agency collaboration through joint funding and sharing evaluation outcomes for Māori designed, developed and delivered initiatives, will better test the Māori designed, developed and delivered hypothesis.
  1. The concept of Māori 'designed, developed and delivered' is a relatively new concept in government. This may offer some explanation for the apparent lack of funding for programmes that fulfil all three aspects of 'designed, developed and delivered'. Many Māori initiatives currently funded are a partial combination of these components, but rarely all three.
  1. The social and justice sector agencies are building their knowledge about 'what works' for Māori in their individual sectors. This knowledge is based on research, provider and user feedback, and experience in implementing practical initiatives targeting Māori. An initiative with proven effectiveness is the Department of Corrections' Te Piriti and Kia Marama special treatment units that provide treatment to male sex offenders in order to reduce sexual re-offending against children. The treatment integrates cognitive behavioural therapy (CBT) with tikanga Māori. Evaluation of the programme found that it was effective in reducing the recidivism rate of both Māori and non-Māori men.[1]
  1. In undertaking the work on these Cabinet directives, agencies have recognised that similar and overlapping services are being purchased from, or grants awarded to, the same providers. Opportunities for joint contracting have been identified, which would reduce providers' compliance requirements and help to avoid funding overlaps. Considerable value would be added by regular sharing of best practice in terms of both knowledge and of funding practice.
  1. Establishment of a cross-agency group and a potential mechanism for integrated funding development is proposed below (paragraphs 32-35).

Sustainable funding for practical initiatives

  1. The Ministries of Justice, Social Development, Health and Education, and the Department of Corrections, and Te Puni Kōkiri (recognising their involvement in the process to date, their interest in Māori development and their role as initial funders of the six initiatives), have focused on identifying where the required funding should be drawn from, based on how the practical initiatives align with agency priorities, and establishing a negotiation process between the agencies and the providers.
  1. In committing to adhere to the Cabinet directive, agencies are attempting to locate funding for the first six initiatives from budgets which are already committed from July 2008 and beyond. Funding is therefore being reallocated from other areas within budget.
  1. The table below provides a summary of which agency, or agencies, have identified alignment with the outcomes of each initiative and which will enter into funding agreements for the 2008/09 and 2009/10 years. This commitment to fund is subject to appropriate monitoring and evaluation results. New funding contracts will include monitoring and evaluation requirements and other criteria for ongoing funding agreed between funders and providers.
  1. Te Puni Kōkiri is managing the initial evaluation of these initiatives and reported to Cabinet that this process will be completed by 31 May 2008, and findings shared with the relevant agencies [CBC Min (07) 26/5 refers]. Evaluations will consider the original intervention logic presented to Te Puni Kōkiri in the proposal/selection stage. Some initiatives have had previous evaluations and consistency with previous evaluation methodology is sought.
Initiative Agency/agencies with commitment to fund (pending evaluation)
Te Whakaruruhau Maori Women's Refuge (Waikato)
Strengthening the organisation so that it can better meet the needs of its clients; develop and implement strategies with clients to reduce the likelihood of domestic violence incidence occurring 		Ministry of Social Development - the Ministry has review its existing funding for these providers and is working closely with Te Puni Kokiri to confirm the services being delivered under current contract arrangements. Once this is complete the Ministry will engage with providers, in partnership with Te Puni Kokiri, to confirm ongoing funding requirements.
Hoani Waititi Marae (Auckland)
Research component of this initiative has been completed; moving forward the provider will work with Health officials to develop future outcomes and deliverables 		Ministry of Health[2] - Health officials will meet by 18 April 2008 with provider representatives at a meeting facilitated by regional Te Puni Kokiri officials to begin developing appropriate service objectives and specifications.
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 the future and the future of their children 		Ministry of Social Development - the Ministry has review its existing funding for these providers and is working closely with Te Puni Kokiri to confirm the services being delivered under current contract arrangements. Once this is complete the Ministry will engage with providers, in partnership with Te Puni Kokiri, to confirm ongoing funding requirements.
Te Whare Ruruhau o Meri (Auckland, Whangarei, and Kaitaia)
Providing offenders with the skills and opportunities to actively make better informed decisions, influencing positive behaviour changes and reducing the likelihood of re-incarceration and negative impacts on whanau 		Department of Corrections Work and Income - Out of School Care and Recreation Assistance Funding (subject to Child, Youth and Family Services approval) The Ministry of Justice funds this provider for family services and is currently working to clarify funding overlaps
Consultancy Advocacy and Research Trust (CART)
Implementing effective engagement, liaison and mediation processes with hard to reach youth so that they can make positive choices to realise their full potential 		Ministry of Justice - contract detail for 2008/09 onward subject to ongoing negotiations

Process moving forward

  1. Agencies are working to identify sustainable funding and initiate funding contracts by 1 July 2008. Agencies have agreed to the following process to achieve this:
    • Agencies will continue to consider information provided by Te Puni Kokiri regarding the relevant initiative(s) and undertake work to reallocate baseline funding;
    • Te Puni Kokiri will provide agencies with formative evaluation reports by 31 May 2008; agencies will consider these and, assuming satisfactory outcomes, enter into the contract negotiation process with providers;
    • Contracts for funding will be in place by 1 July 2008. Contracts will be developed in accordance with government guidelines.
  1. As outlined in the table above, agencies are working to clarify the current value of funding for the six providers from all government sources; and the services funded. Some of the initial funding provided by Te Puni Kokiri is for time-limited capacity-building infrastructure and will not require continuation. Therefore, 2008/09 and 2009/10 funding for the six initiatives may not be at the same level as that currently provided by Te Puni Kokiri. One provider, Hoani Waititi Marae has completed a large component of its contract and new contracted services will need to be negotiated for 2008/09 and 2009/10.
  1. Final evaluations will be completed at the end of the funding period (2010) and the findings will be shared across agencies. Evaluations will be outcome focussed and, as such, will assess the extent to which the initiatives have reduced Maori offending. Evaluation 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).
  1. The next steps for developing and funding additional initiatives are described in paragraphs 36-38 below.

Risks identified

  1. As the process of identifying funding has progressed, agencies have identified a number of risks associated with funding the initiatives for the purpose of strengthening the evidence base for Maori designed, developed and delivered initiatives. They are:
    • Funding overlaps may exist. In some cases it appears funding may have been drawn from a number of funders to purchase the same or similar services. Agencies are currently seeking to clarify apparent overlaps and differential contract pricing. This may lead to modification of contract values from 2008/09 onward;
    • Agencies have expressed concern that some initiatives do not fulfil all three aspects of the Maori designed, developed and delivered criteria. Accordingly, funding these initiatives may not significantly contribute to building an evidence base for Maori designed, developed and delivered initiatives;
    • In order to establish a strong evidence base for Maori designed, developed and delivered initiatives, comprehensive outcomes-based evaluation of a broad range of such initiatives is required. Evaluation of the current initiatives will only start to build this base;
    • There is a risk of setting precedent for providers to access funding outside of agency guidelines and priorities agreed at the regional or national level;
    • The timing of evaluation reports (31 May 2007) allows only one month for contract development in order to have contracts in place by 1 July 2007. Agencies are concerned that this timeframe will have implications for alternative contracts that may be required in the case of unfavourable evaluation reports.

Next Steps

Improving funding processes, information flows and use of the Maori designed, developed and delivered approach

  1. Agencies are eager to ensure that the future development of the PoAfM policy framework and associated funding options is overseen corporately by a cross-agency group, with clear terms of reference. The terms of reference for this group would include:
    • A governance structure linking the group to the EI steering group and reporting framework;
    • A process by which information about programmes, providers, research and evaluation outcomes will be shared. In particular agencies will establish an agreement on coordination of evaluation data for practical Maori initiatives to contribute to the evidence base on what works to reduce offending by Maori;
    • A process for discussing funding and developing joint contracting arrangements with a lead contract manager where there are overlapping interests with the same provider can be managed by two or more agencies;[3]
    • Scoping the potential for future budget and research bids;
    • Providing the structures to develop long-term solutions for sustainable funding for successful and effective providers.
  1. The cross-agency group may include or consult with other justice and social sector agencies, such as Police, as appropriate.
  1. Priorities for Maori are set out in most agencies' Statement of Intent. Agencies additionally have internal guidance derived from the Treasury's advice on best practice in procurement, tendering, grant aiding and contracting. In light of agencies' need to reallocate budgets from other areas to fund the existing initiatives, it is unlikely that a cross-agency fund for Maori initiatives can be developed in the short term from baselines. However, the establishment of the cross-agency group will provide oversight of a 'virtual' fund made up of the current initiatives, plus other justice and social sector initiatives targeting Maori funded independently by the agencies. Cabinet will be kept apprised of progress with this 'virtual' fund through the EI reporting framework.
  1. Moving forward, improved coordination of funding efforts targeting Maori would help to achieve a number of goals. A further, significant means of achieving this is through the greater use of integrated contracts. This will enable providers to more efficiently access funding and complete reporting requirements, and enable funders to manage potential funding overlap and to share best practice information.

The development of five further initiatives: Process outline

  1. The Ministry of Justice, Te Puni Kokiri and other relevant agencies were directed by Cabinet to report on funding options for five additional initiatives [CBC Min (07) 26/5 refers]. These initiatives are currently at the conceptual stage and so limited information is available to assist agencies to identify possible 'fit' with Government priorities. The cross agency funding group outlined above will also work cooperatively to fulfil the Cabinet directive to develop these initiatives
  1. Agencies will ensure that the process for developing additional initiatives and the respective contracts for funding is robust. Agencies agree that early involvement in concept and service development is essential to maximise initiative outcomes and provide meaningful evaluation data to contribute to the Maori designed, developed and delivered evidence base. Te Puni Kokiri is currently assisting some providers to develop budgets. Potential funder agencies will work with Te Puni Kokiri and providers (where relevant) on the development of outcomes and deliverables for the additional concepts.
  1. In order to progress the additional initiatives, a review process will be established by the cross-agency group. The five additional initiatives/concepts, and any other proposed initiative, will be presented and evaluated by representatives of the agencies against clear and agreed criteria which seek to fulfil all three aspects of Maori 'designed, developed and delivered'. The review process will also seek to identify agreed outcomes for Maori and a research approach that will ensure that these initiatives contribute to the development of knowledge on what works for Maori in reducing the offending rate. A report back on this work will occur through the EI steering group and reporting framework.

Financial implications

  1. Agencies need to reallocate budgets from other areas to fund the existing six initiatives. No budget bid has been submitted for funding future initiatives but this option may be considered in the future.
  1. The actual value of the contracts for the coming two years is unknown at this stage as funders and providers have yet to complete the contract negotiation process.

Legislative implications

  1. This Cabinet paper has no legislative implications.

Consultation

  1. Department of Corrections, Te Puni Kokiri, Ministries of Social Development, Education, and Health were consulted in the development of this paper. New Zealand Police and Department of Prime Minister and Cabinet and the Treasury have been informed of this paper.

Human rights implications

  1. The proposals in this paper are consistent with the Bill of Rights Act and the Human Rights Act 1993

Regulatory Statement

  1. A regulatory impact and business compliance statement is not necessary.

Gender implications

  1. While women make up a relatively small proportion of the total offender and prison populations, Maori women are significantly over-represented at all levels of the system, from apprehension to imprisonment. Historically, the criminal justice system has paid far less attention to the situation of women in comparison to men. Maori women will benefit from a greater evidence base for Maori designed, developed and delivered initiatives.

Disability Perspective

  1. This Cabinet paper has no implications for people with disabilities.

Publicity

  1. Not required.

Recommendations

  1. The Minister of Justice recommends that the Cabinet Policy Committee:
  1. note the Ministry of Justice and Te Puni Kokiri in consultation with the Ministries of Social Development, Health and Education, and the Department of Corrections, have identified funding routes for the six Maori initiatives, subject to appropriate monitoring and evaluation results;
  2. agree that 2008/09 and 2009/10 funding for the six initiatives may not be at the same level as that currently provided by Te Puni Kokiri as agencies are currently working to clarify current funding for the initiatives with providers, and some contract components have been completed during the first year;
  3. agree that the above agencies, and others where relevant, will form a cross-agency group that will link into the Effective Interventions steering group and reporting framework;
  4. note that the cross-agency group will establish a terms of reference and a process by which additional initiatives are progressed and evaluated against criteria which seek to fulfil all three aspects of Maori 'designed, developed and delivered';
  5. note that in light of agencies' need to reallocate budgets from other areas to fund the existing initiatives, it is unlikely that a cross-agency fund for Maori initiatives can be developed, by drawing funding from baselines, in the short term;
  6. note that agencies will continue to work together to achieve greater focus on the concept of Maori designed, developed and delivered and share knowledge about best practice for achieving justice sector and social outcomes for Maori;
  7. note that a funding process review has been completed, and found that agencies are making significant investment in justice sector initiatives for Maori. Greater agency collaboration will better test the Maori designed, developed and delivered hypothesis and support improved outcomes for Maori.

Hon Annette King
Minister of Justice

Appendix 1

FINAL REPORT

Review of Funding Processes (Programme of Action for Maori)

  1. This paper provides a final report on a funding process review conducted by the Ministry of Justice to inform future funding activities. Cabinet Policy Committee directed the Ministry of Justice to report on the outcome of the funding process review by 30 March 2008 [CAB Min (07) 15/1 refers].

Context of review

  1. As part of the Programme of Action for Maori, engagement with Maori providers and practitioners reflected the view that access to government funding was hindered by lack of flexibility and coordination, and clarity of information about applying for funding. Providers' experience also suggested difficulty in accessing funding for untried, innovative initiatives because of a lack of evaluative data to support them. The review has examined the processes of relevant justice and social sector agencies in this context.
  1. Additionally the review, as recommended to Cabinet, has examined "how justice sector and other agencies can make greater use of joint contracting and the Funding for Outcomes Model in funding programmes"[4] .
  1. This paper also reports on Cabinet's directive that the Ministry of Justice publicly disseminate information for providers about funding assistance available from the Ministry of Justice and the wider sector.

Review process

  1. This review examined government agency processes used in funding justice-related programmes and services, and considered the availability of funding information and funding targeting outcomes for Maori.
  1. The review also explored the Integrated Contracts (formerly Funding for Outcomes) model and how justice sector outcomes might be improved through greater use of joint contracting.
  1. Key review findings have been summarised in the report back to Cabinet, Progress Report on Programme of Action for Maori: Funding, and have contributed to the rationale behind recommendations in the paper.

Background

  1. The Ministry of Justice and Te Puni Kokiri presented the Programme of Action for Maori (PoAfM) to Cabinet Policy Committee for consideration on 2 May 2007. The PoAfM aims to of reducing offending, victimisation and imprisonment among Maori.
  1. In considering the PoAfM, Cabinet Policy Committee made a series of directives to the Ministry of Justice and Te Puni Kokiri. Cabinet Policy Committee:
    • Noted that the Ministry of Justice will prepare and disseminate information about current funding and assistance available to providers prom the Ministry of Justice by 31 July 2007, and from the wider sector by 20 December 2007;
    • Directed the Ministry of Justice to provide a progress report to the Cabinet Policy Committee on the outcome of a funding process review by 30 November 2007 (complete);
    • Directed the Ministry of Justice to provide a final report to the Cabinet Policy Committee on the outcome of the funding process review by 30 March 2008; and
    • Directed the Ministry of Justice and Te Puni Kokiri to report to the Cabinet Policy Committee, by 30 March 2008, on 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 (complete).
  1. This paper reports on the outcome of the funding process review and actions taken by the Ministry of Justice to improve providers' access to funding and funding information.

Review of funding processes

Summary of Ministry of Justice funding

  1. The Ministry of Justice funds crime prevention and reduction programmes, both independently and through joint-funding with other agencies[5]. The Ministry contracts programmes and services community based service providers, manages a small grants round, and is party to a number of contracts via the Ministry of Social Development's Integrated Contracts initiative[6]. Contracted providers and target population are Maori-specific, Pacific-specific and generic.
  1. Large territorial authorities are funded directly on the basis of a crime prevention plan designed to meet local needs. Small and rural territorial authorities are funded on the basis of approved crime prevention projects.
  1. Criteria for funding include population size, crime rates and regional crime prevention plans. Programmes are funded to reduce the incidence and impact of crime and must align with the Government's Crime Reduction Strategy[7]. The Ministry has identified four high need and at risk groups as priority for targeted crime reduction programmes: Maori; Pacific peoples; 'at risk families; those affected by drugs, alcohol or gambling. Contracts for funding must meet the Ministry's and Treasury's guidelines for contracting with non-government organisations.
  1. The Ministry has crime prevention partnership agreements in place with five iwi providers. During 2006/07, the Ministry also continued to fund specific crime reduction pilot projects and programmes directly through individual contracts with territorial authorities, iwi, Pacific peoples and non-government organisations. The Ministry's Crime Prevention Unit currently funds 44 Maori providers for crime prevention and restorative justice programmes, some of which specifically target Maori, and others that are generic.
  1. The Ministry will also provide funding for initiatives aimed at reducing graffiti, to a total of $2M per annum until 2009/10. This funding is subject-specific; however some funding is likely to go to Maori providers and some iwi have already indicated a desire to target graffiti in their communities. This will provide grants, via a contestable funding round, for new initiatives or to add value to existing initiatives with proven efficacy.

Other agency funding for Maori providers

  1. Across agencies a commitment to addressing issues for Maori and responsiveness to Maori is evident; it can be seen in standalone Maori strategies or Maori priorities outlined in agencies' Statement of Intent. Such documents recognise the importance of Maori-specific programmes, and this is borne out in investment in Maori programmes and capacity building for Maori providers, and agency collaboration on Maori initiatives.
  1. Te Puni Kokiri and Police lead a number of criminal justice sector initiatives with a focus on Maori, including:
    • assisting the implementation of Maori designed, developed and delivered initiatives and evaluating their effectiveness in addressing offending by Maori and facilitating re-integration of Maori inmates;
    • undertaking research and data-related work to enhance our knowledge of the contact of the criminal justice sector with Maori, the drivers of Maori offending and imprisonment, and what works to reduce offending and re-offending rates of Maori;
    • ongoing engagement with Maori providers, practitioners and offenders to discuss the criminal justice sector's response to the findings of the EI engagement process, and to further the sector's knowledge of Maori issues and responses of the criminal justice sector to reducing Maori offending, reoffending and imprisonment rates;
    • building the capacity and capability of Maori Wardens to improve their ability to deliver their services; and
    • implementing innovative approaches that contribute to reducing offending and re-offending by Maori including:
      • iwi-led crime prevention plans; and
      • mediation and whanau development with hard to reach youth groups.
  1. While not a funding agency, New Zealand Police does contribute to joint funds with to support initiatives where clear links to Police priorities exist. Maori advisory boards in each district liaise with communities and work with Maori wardens and Iwi Liaison Officers to provide district commanders with strategic advice on local Maori issues.
  1. Police, Ministry of Social Development, Child, Youth and Family, and non-government funders jointly fund Life to the Max, an early intervention programme which incorporates partnership with Maori providers, local iwi, community and crown agencies. The programme targets youth at risk of potential or actual recidivist offending; a large proportion of participants were young Maori males[8].
  1. Key areas supported by Police are youth crime, drugs and alcohol and domestic violence. The majority of programmes are funded by other agencies such as the Ministry of Justice and Te Puni Kokiri. Police have indicated that this funding/support is difficult to quantify as programmes are supported indirectly (through devolved funding to regions) and through the provision of police resource. Police support DARE New Zealand, which facilitates a number of programmes including Tena Kowhiria, a drug education programme in Te Reo Maori.
  1. The Ministry of Social Development is a significant funder of programmes provided by and/or for Maori. Some funding is provided explicitly to Maori providers for programmes targeting Maori, for example MSD's Whanau Violence Prevention initiative. In the 2007/09 year the Ministry invested $2 million to train and support people working to prevent violence in Maori whanau and communities. The initiative aims to support the provision of culturally appropriate interventions through building the capability of Maori practitioners and service providers.
  1. More often, generic programmes will have ethnic-specific components and funding allocations. An example is the Taskforce for Action on Violence within Families which funds some Maori providers, and is advised by a Maori Reference Group to ensure that programmes have relevance for Maori. Child, Youth and Family Services funds close to 200 Maori providers, though not all contracts will be specifically for Maori[9].
  1. The Department of Corrections funds Maori providers to deliver Maori specific programmes, through a contestable funding process. Selection of providers is based on offenders' needs and circumstance (sentence length, likelihood of re-offending, motivation to change and participate in rehabilitation programmes). The Department's funding of community organisations falls under a number of output classes, most significantly rehabilitative programmes and reintegrative services.

Funding for Outcomes/Integrated Contracts

  1. Funding for Outcomes, now known as Integrated Contracts, is a Ministry of Social Development initiative and was established as a mechanism to improve government agency collaboration in contracting with community organisations.
  1. Integrated Contracts are developed when funders are able to collaborate to merge service requirements into a single contract. Funders work together, with providers to develop an outcome-focussed contract and joint meeting and monitoring plans. This method of collaboration enables funders to meet, share goals and knowledge, and to involve providers in developing the contract. Providers benefit from streamlined contract negotiation and reporting requirements.
  1. Integrated Contracts use standard terms and conditions that have been pre-agreed by relevant government agencies.

Funding information

  1. NGOs in other sectors have echoed justice sector providers' sentiments, citing sustainability of funding, collaboration between funders and communication and transparency around funding as areas needing improvement in order to encourage innovation[10].
  1. While there are a number of funders of justice related initiatives and an evident focus on Maori, there is no central, public information repository detailing the funding available and application procedures for providers of such initiatives. Processes for applying for funding, selection criteria and monitoring and evaluation requirements differ between agencies and agency work streams. This lack of information may affect providers' ability to access funding and may also make the process of accessing funding more resource-intensive than necessary. It may also limit the breadth of providers seeking funding and the creativity of their programmes, and therefore the Ministry's means of achieving justice sector outcomes (for both Maori and non-Maori).
  1. A number of government agencies as well as non-government organisations make funding information available on their websites. The scope of information ranges from agency-specific funding (including funding calendars, criteria information and application forms for download) to more comprehensive databases listing government and non-government funders and contact details. In addition to the agencies discussed above, relevant funding information sources are detailed below.

Funding Information Service (FIS)

  1. FIS is a non-profit organisation that maintains FundView, a searchable database of funding provided by government, local authorities, statutory and philanthropic trusts, gaming trusts and some service organisations. A Maori Advisor Board assists FIS to ensure that Maori have equal access to funding information.
  1. The database contains information on funding criteria, application processes, closing dates and contact details. Users can search by 'purpose' which provides a number of justice-related options: crime prevention; justice, the law; domestic violence; rehabilitation; safety; sexual abuse.
  1. FundView also provides a funders list, and funding calendar showing closing dates for the coming three months. A review of the database revealed that non-government funders are better represented than government agencies. A FundView search of crime prevention, justice and safety funding categories found that only a small number of government agencies are represented (the Ministry of Social Development, Department of Internal Affairs and ACC). Lack of information regarding government justice sector funding may contribute to limiting the pool of providers and programmes that contribute to justice sector outcomes[11].
  1. In 2007 there were 268 subscribers to FundView who accessed the database 29,000 times. The database can also be accessed free of charge at public libraries and Citizens' Advice Bureaux and received 7.6 million 'hits' and 3 million page requests in 2006/07. FIS also hosts periodic expos and fairs through which it enables funders and community organisations to connect and discuss issues for the NGO sector.
  1. A number of government agencies (including Te Puni Kokiri and Child Youth and Family Services) refer to the Funding Information Service database.

Other information sources

  1. Community Net Aotearoa New Zealand is an information sharing forum for community groups. The site provides links to government and non-government funders and information sources including the Funding Information Service.
  1. Funding information is also available through alternative forums. The Wellington City Council runs seminars for certain grants, and the Auckland City Council periodically hosts funding expos where community organisations can meet with funders.

Conclusion

  1. Key review findings have been summarised in the report back to Cabinet, Progress Report on Programme of Action for Maori: Funding.
  1. The Ministry of Justice has published information on funding available, and how to apply for it, on its website. The Ministry has also published a series of links that enable providers to access information from other agencies, both funders and community organisations that provide support and funding information. This information will be reviewed and updated as funding processes change.
  1. The Ministry is in the process of having funding details added to the Funding Information Service's FundView database.

Footnotes

1. Prior to 2003, Te Piriti developed an integrated approach using cognitive behavioural therapy and tikanga Maori. Kia Marama at that time was based on a cognitive behaviour therapy approach only providing an opportunity to evaluate one approach with the other. The findings of an evaluation of the Te Piriti Special Treatment Programme for Child Sex Offenders were released in 2003. The key findings were that the programme was effective in reducing the sexual reconviction rates of both Maori and non-Maori men. The Te Piriti programme had a 5.47% recidivism rate compared to an untreated group who had a sexual recidivism rate of 21%. Maori men attending the Te Piriti treatment programme revealed significant changes pre and post therapy in a number of key cultural variables. The evaluation found that cognitive behavioural therapy in combination with tikanga Maori is effective for Maori and non-Maori offenders convicted of sexual offences against children. Following this evaluation, Kia Marama adopted the same approach as that being used at Te Piriti.
2. Note: The Ministry of Health has indicated that funding may need to be drawn from EI funding at the expense of other EI initiatives. Funding will be contingent on the ability of parties to identify and agree an appropriate service for delivery consistent with overall priorities.
3. Agencies would utilise the Ministry of Social Development's Integrated Contracts model
4. Context and scope of review was outlined in the joint Ministry of Justice and Te Puni Kokiri paper presented to Cabinet Policy Committee in May 2007 [POL (07) 113 refers].
5. In particular, the Ministry joint-funds with the Ministry of Social Development via Integrated Contracts.
6. At October 2007, the Ministry of Justice was party to 5 Integrated Contracts overseen by MSD, with a further 8 under development.
7. The seven key goal areas of the strategy are: family violence and child abuse; other violence and sexual violence; serious traffic offending; youth offending and re-offending; burglary; theft of and from cars; organised crime.
8. Office of the Commissioner, New Zealand Police Life to the Max Youth Development Programme Outcome Evaluation Report August 2004
9. In 2005 CYFS funded 196 Maori providers.
10. Health and Disability NGO Working Group, Barriers and Opportunities for Innovation and Collaboration in Health and Disability NGO Sector, September 2007
11. Vote Justice Report on Non-Departmental Outputs for the period 1 July 2006 to 30 June 2007.