Building an Indigenous Employment Strategy kit

Since August 2005 the APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees has played a central role in stabilising the decline in the employment of Indigenous people in the Australian Public Service (APS).

An evaluation of the APS Strategy has confirmed the importance of agencies taking their own steps to improve Indigenous employment opportunities and recommended that the Commission provide more support in the development and implementation of agency-based Indigenous employment strategies.

Further improving the representation of Indigenous Australians in the APS will need the involvement of us all. We face many challenges:

• playing our part to support the resolution of the Council of Australian Governments to ‘close the gap’ in the participation of Indigenous Australians in paid employment
• providing opportunities to increase skills and improve educational qualifications
• improving the distribution of existing Indigenous members of the APS so that they are found in more varied roles in a greater number of agencies at a greater number of classifications, and
• supporting workplace cultures that, giving practical life to the APS Values, are free from discrimination, and recognise and utilise the diversity of the Australian community.

While the number of agencies that have their own agency Indigenous employment strategy is increasing gradually, the 2006–07 State of the Service Report confirms that this is still the minority and that we have plenty of room to improve our performance on this issue.

Each agency has an important part to play, its own challenges, and its own opportunities to make a contribution. Presented in a menu of initiatives and actions drawn from a range of existing employment strategies, this Kit is intended to provide a starting point for identifying agency-specific business needs and objectives, and some actions that can be taken to achieve your goals.

In addition to building this Kit, the Commission can provide agencies with continuing support as they work through the development of their own strategy.

For further information about this, please contact us at IndigenousLiaisonOfficer@apsc.gov.au.

Purpose of the Kit

The Australian Public Service Commission (the Commission) has developed the Building an Indigenous Employment Strategy – a starter kit for APS agencies (the Kit) to help human resource practitioners build their agency's Indigenous employment strategy (IES) as a structured, systematic approach to attracting, recruiting, retaining and developing Indigenous employees (see The Background for more information about the function of IES).

The Kit is intended to provide ideas about how you can create and implement an IES.

Structure and content of the Kit

The Kit has been developed by drawing together good practice in public and private sector Indigenous employment strategies. It is based on the current APS Employment and Capability Strategy for Aboriginal and Torres Strait Islanders, and consists of five separate but linked parts in addition to this How to use the Kit leaflet:

Background paper

The background paper provides:

• context and information to help you develop and implement your agency's own Indigenous employment strategy
• a summary of the three focus areas covered by the initiatives proposed in the Kit

Initiatives

The Kit includes a collection of initiatives that could be included in your Indigenous employment strategy. It is not intended to be a complete list, nor are you expected to include every initiative offered here, but this material will give you some idea of where to start. Please modify the initiatives or develop others as you see fit to ensure they meet your agency's business needs.

The initiatives are grouped into the three major themes that are likely to form the basis of any IES:

• workplace environment
• recruitment
• retention

The material also gives examples of outcomes you could expect as a result of implementing each initiative.

'Menu' for an Indigenous employment strategy

The 'menu' summarises examples of actions that are explored in more detail in the initiatives collection referred to above, and which are already being used by some APS agencies. It includes performance indicators, time frames for achieving goals, and who is responsible for ensuring initiatives are implemented

The 'menu' is not meant to be prescriptive or a 'one size fits all' framework. Rather, it is intended to be used as a tool in creating your own IES. Choose the activities that best suit your agency's needs.

List of other useful resources

The Kit is one tool that will help you to develop your agency's IES, but there are many other resources. The list of resources included in this Kit is not exhaustive, but it should make your search for additional information easier.

The APS Employment and Capability Strategy for Aboriginal and Torres Strait Islanders (the APS Strategy)

The Kit also includes summary of the key elements and initiatives of the APS Strategy and a complete copy of the APS Strategy as an appendix.

Getting started—planning your IES

It's important to be clear about the rationale for the IES and what it aims to achieve. A good way to do this is to draw up a business case for the IES to identify its objectives. You could include links between the IES and the:

• agency Reconciliation Action Plan
• agency workplace diversity plan
• agency business/corporate objectives
• requirements of your agency as an APS agency

These elements help map where you are and where you need to go, and they communicate that position and direction clearly to management and employees.

As part of your associated project plan, you could include:

• an assessment of the agency's business needs
• who the agency's stakeholders are
• what the cost are for developing and implementing an IES, as well as what the cost could be for your agency if it did not do so.
• timelines for both the development of the IES and its implementation

A solid and extensive plan will help keep you on track and others in your agency informed.

Finally, if you're looking for further advice on an issue, if you've come across a good idea that you'd like to share, or if you'd like to contribute something about your own agency's experience to this Kit, please contact the Commission's Indigenous Liaison Officer at IndigenousLiaisonOfficer@apsc.gov.au or by phone on (02) 6202 3593.

Introduction

Increasing Indigenous representation in employment and reducing the overall level of disadvantage among Indigenous Australians is an integral part of the Australian Government's agenda. Its Indigenous Economic Development Strategy (IEDS) aims, among other things, to increase levels of Indigenous employment, and to help Indigenous Australians participate in the broader economy. The IEDS is part of the Government's wider policy objective of closing the gap between Indigenous and non-Indigenous Australians.

As a key employer, and supporting the Government's commitment to closing the gap for Indigenous Australians, the APS has an important role to play, modelling better practice to the broader workforce, and strengthening community capacity.

In 2005, the Commission launched the APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees (the APS Strategy). Since the APS Strategy's implementation, representation of Indigenous employees in the ongoing APS workforce has stabilised, after declining for a number of years, at 2.1%.¹

The purpose of this part of the Kit is to present background information and context for the development and implementation of agency-specific Indigenous employment strategies. It also offers a rationale for the initiatives included later in the Kit.

Indigenous employment in the APS

Current key facts related to Indigenous employment in the APS include the following:

• Indigenous employees are disproportionately represented at relatively junior classifications in the APS. At 30 June 2007, some 12% of Indigenous employees were at the APS 1–2 levels compared with 5% for the APS generally, and 44% of Indigenous employees were at the APS 3–4 levels compared with 34.7% for the APS generally.²
• Indigenous employees are more likely to work in service delivery positions—78% compared to 55% in 2005 for all APS employees. Forty per cent of these deliver services solely to Indigenous clients. ³
• Indigenous employees are more likely to separate from the APS than other ongoing employees. During 2006–07, the rate of ongoing Indigenous employees separating from the APS (i.e. retiring, resigning or dying) was 12.5% compared with an overall rate in the APS of 7.5%. ⁴
• As at 30 June 2007, more than half of the APS' Indigenous employees worked in just four agencies (Centrelink; Aboriginal Hostels Limited; the then Department of Families, Community Services and Indigenous Affairs; and the then Department of Education, Science and Training). Twenty-six APS agencies had no Indigenous employees.

These facts suggest that despite progress and the stabilisation of overall Indigenous employment levels, there is still much more to be done.

Indigenous employment is also affected by a range of changes that have occurred over a number of years in the APS:

• Between 1997 and 2007, the number of positions at the APS1-2 level fell from 21596 to 7154. Because Indigenous employees have historically been statistically overrepresented at these classifications, this reduction is likely to have had a disproportionate effect on their representation in the APS overall.
• There has been an increasing demand for APS staff with tertiary qualifications, but at June 2007, only 28.1% of Indigenous employees had a Bachelor's degree or higher qualification, compared with 53.0% for the APS overall.
• There is a trend towards higher education qualifications among new APS recruits, but Indigenous employees joining the APS in 2006–07 were less likely to have a Bachelor's degree than APS recruits overall (25.0% compared with 61.5%). ⁵

Recognising these changes and the impact they have on Indigenous employment is important if agencies are to develop and implement appropriate initiatives to improve the way they employ Aboriginal and Torres Strait Islander people.

What do Indigenous APS employees think?

In November 2005, the Commission conducted the Aboriginal and Torres Strait Islander APS Employees Census Survey as part of a research programme to inform the development and implementation of strategies for attracting, recruiting and retaining Indigenous employees.

The survey produced some positive findings. Indigenous APS employees made the following observations:

• They generally believed they had the same career development opportunities as other APS employees.
• They felt that most of their colleagues worked effectively and sensitively with Indigenous Australians.
• They had high satisfaction rates with their supervisors' support for flexible workplace practices, as well as their agency's support for their cultural and community obligations.

Other findings included the following:

• Only 50% of Indigenous employees believed that their agency actively supports the employment, development and promotion of Aboriginal and Torres Strait Islander employees.
• Eighty per cent of Indigenous employees felt that their agency should be doing more to support the employment, development and promotion of Aboriginal and Torres Strait Islander employees.
• Indigenous employees were more likely to report that they had experienced bullying or harassment in the workplace (23%).
• Indigenous employees were more likely to report that they had not received formal individual performance feedback.
• Forty-five per cent of Indigenous employees had faced a challenge in the preceding 12 months in balancing family and/or community obligations with being professional and achieving the requirements of the job in accordance with the APS Code of Conduct.

The issues raised in the survey identified some key areas for agencies to focus on in developing initiatives as part of an agency-specific Indigenous employment strategy.

Key elements of the APS Strategy

The APS has a strong statutory commitment to ensuring that it reflects the diversity of the community that it serves. The APS Values in the Public Service Act create an explicit responsibility for APS agencies to be sensitive to, reflect, and utilise the diversity of the Australian public. The integration of Aboriginal and Torres Strait Islander employees into all levels and areas of the APS is an important element of APS employment policy and is reflected in the APS Strategy.

The APS Strategy consists of five core elements ⁶:

1. supporting whole of government work on Indigenous policies and programmes—building APS capability to do Indigenous business by ensuring that APS employees have the skills and ability to provide effective services to Indigenous Australians and understand the whole of Government approach
2. pathways to APS employment—removing barriers to using the capacity of Indigenous Australians through graduate programmes, cadetships and traineeships
3. supporting Aboriginal and Torres Strait Islander employees in the APS—maximising the contribution of Indigenous employees to the APS and ensuring improved retention and promotion outcomes
4. helping agencies be good employers of Aboriginal and Torres Strait Islander employees—aligning Indigenous employment strategies with broader workforce planning
5. partnerships—establishing collaborative and innovative employment solutions through the development of a range of strategic partnerships between the APS and other Commonwealth agencies, as well as State and Territory governments and other relevant stakeholders to promote Indigenous employment.

An independent evaluation of the APS Strategy was conducted in 2008. The findings of the evaluation were very positive, confirming that the APS Strategy has been a significant factor in arresting the decline in the representation of Aboriginals and Torres Strait Islanders in the APS, and has succeeded in boosting the profile of the APS as an employer of choice for Indigenous Australians.

In order to maintain the momentum and build on recent gains, APS agencies need to continue their efforts in developing innovative approaches to achieve further improvements.

Support from the Commission

The Commission has developed, and continues to develop, a range of products and services to support Aboriginals and Torres Strait Islanders gain APS employment, and help agencies to employ and retain Indigenous employees.

Key initiatives to support Indigenous recruits and employees under the Pathways to Employment element of the APS Strategy include the following:

• Indigenous graduate and cadetship programmes are targeted to attract Indigenous university students and graduates to a variety of APS agencies, across a range of disciplines.
• The Indigenous Entry Level Recruitment Programme is a programme over 12 months designed to prepare participants for a career with the APS.
• The publications Cracking the Code and Getting a job provide advice on how to apply for jobs, address selection criteria, and what to expect during the interview process.
• Career Trek is a series of professional development and career training workshops.

The following initiatives are designed to support agencies and managers:

• Get it Right is a recruitment kit designed specifically to assist APS managers achieve quality recruitment and selection outcomes.
• An APS Indigenous Liaison Officer has been appointed within the Commission to provide advice to agencies and Indigenous people on a range of Indigenous employment issues.
• The Indigenous Scholarships Programme offers a range of Indigenous development and scholarship opportunities, and forms part of the Commission's contribution to the fourth element of the APS Strategy.
• This Kit was developed as a tool to help agencies develop their own Indigenous employment strategy.

Further information about current initiatives is available on the Commission's website at http://www.apsc.gov.au/indigenous/.

The business case for employing Indigenous Australians

Skills gaps, skills shortages, an ageing workforce and labour shortages are issues of concern for all employers. APS agencies have to compete with the private sector in the labour market, and it is in each agency's best interest to market itself as an employer of choice by adopting innovative recruitment and retention strategies. This can include strategies to explore relatively untapped labour pools, and invest in the recruitment and development of workers from non-traditional areas, including Indigenous people.

The Indigenous population in Australia is growing at a faster rate than the non-Indigenous population and has a very different age profile compared with the non-Indigenous community. About 56 % of Indigenous Australians are under 25 years of age, compared with about 33% of the rest of the population. ⁷ The growing number of young working-age Aboriginal and Torres Strait Islander people is a valuable source of labour for Australia's workforce today, and an essential one for the future.

Employing more Indigenous Australians makes good business sense for a range of reasons, including the following:

• Attracting, retaining and developing the capacity of Indigenous staff now will assist an organisation to be seen as an employer of choice for Indigenous Australians in the future, particularly when the demand for skilled and talented staff is forecast to increase.
• Indigenous employees' varying perspectives, experience and knowledge can add substantial value to business outcomes, and make significant contributions to the development of government policies and delivery of government services to the Australian community.
• Increasing the diversity of agencies employees promotes cross-cultural interaction, enhancing knowledge and awareness of, and competence in, working with people from a range of backgrounds.

Identifying, attracting and engaging with eligible Indigenous candidates will play an important role in improving outcomes for agencies as well as Indigenous Australians. It will also contribute substantially to the Australian Government's priority of closing the gap between Indigenous and non-Indigenous Australians, an ambitious aim that requires 'sustained action across all levels of government, all sectors'… and … 'better engaging Indigenous people in developing solutions….' ⁸

Why a formal Indigenous employment strategy?

Many agency human resource management areas already have strategies for addressing workforce diversity, but a strategy to concentrate specifically on Indigenous employment issues will drive more focussed action.

Developing an Indigenous employment strategy is also an opportunity for agencies to address workforce planning and development issues in the context of an ageing workforce and tightening labour market to make sure that they are well placed for the future. An Indigenous employment strategy can be one pillar in an agency's workforce strategy to attract the best people to meet its business needs.

A formal IES can also help agencies to build up the skills of all of their employees so that they are more confident and capable in developing and delivering services to the entire Australian community.

Indigenous employment strategies and links to other corporate documents

There is no 'one size fits all' approach to developing a strategy. The diversity of business needs and environments within agencies, and the needs of individual employees, will require agencies to develop and implement ideas and strategies in a way that works best for them.

An Indigenous employment strategy can be a stand alone document or, depending on an agency's business needs, it may be more appropriate to incorporate Indigenous employment initiatives into other documents such as the agency's workplace diversity plan.

It is a good idea to link Indigenous employment strategies to other relevant corporate documents such as the corporate plan, strategic business plan, and reconciliation action plan. This will help ensure that strategies to support the employment of Indigenous Australians are embedded as part of an agency's corporate priorities, and becomes part of the everyday 'way we do business'.

Indigenous employment strategies and reconciliation action plans

An Indigenous employment strategy focuses on the agency and asks what it is doing to improve the way it employs and retains Indigenous people. Its emphasis is internal: what workplace environment, recruitment and retention issues are affecting Aboriginal and Torres Strait Islander employees in this agency?

A Reconciliation Action Plan (RAP), on the other hand, is a tool to help organisations build positive relationships between Indigenous and non-Indigenous Australians. A RAP represents a framework for identifying specific actions and realistic targets to contribute to the improvement of the lives of Indigenous Australians in a wider sense, not solely focussed on agency business. ⁹ Many agencies have developed, or are in the process of establishing, a RAP to formalise their contribution to reconciliation.

While there are distinct differences between Indigenous employment strategies and RAPs, there are also some common objectives. The more extensive each framework is, the more similarities are likely to be found.

Commitment from individual agencies to the implementation of their own RAP in concert with an Indigenous employment strategy is likely to result in substantial improvements in Indigenous employment outcomes.

Workplace environment, recruitment and retention

Employment strategies generally include the three key themes of workplace environment, recruitment and retention, with the relative emphasis varying according to the challenges each agency faces.

Workplace environment

One of the factors driving high separation rates among Indigenous APS employees is the extent to which workplaces are able to adapt to and support the cultural needs and expectations of Aboriginal and Torres Strait Islander employees. ¹⁰ This is, in fact, one of the greatest challenges the APS faces in supporting its own Indigenous employees.

Agency-specific actions will be fundamental to achieving change, and will involve developing approaches for ensuring workplaces are able to welcome and support Indigenous employees, ultimately attaining higher retention rates.

For example, showing respect and sensitivity for cultural differences, needs and expectations will help to enhance an agency's reputation as an employer of choice for Aboriginal and Torres Strait Islander people.

Agencies can also encourage staff to engage with the Indigenous APS Employees Network, which provides considerable professional support to Indigenous employees through networking and mentoring opportunities, as well as avenues for cross-agency collaboration.

Recruitment

Centralised, targeted recruitment efforts, coordinated by the Commission under the APS Strategy, have resulted in attracting and recruiting an increased number of Indigenous employees, particularly through the Indigenous Graduate Programme, Indigenous Cadetships and the Indigenous Entry Level Recruitment Programme. However, the APS needs to increase its efforts to recruit Aboriginal and Torres Strait Islanders at levels above base, especially at the APS 5-6 and Executive levels.

Agencies can complement the Commission's work by reviewing their recruitment processes to ensure that they are culturally appropriate and effective. For example, in addition to advertising in the Gazette, agencies could consider employing non-traditional advertising methods for reaching Indigenous people, sparking their interest, and encouraging them to apply for the advertised positions. Similarly, APS selection processes are often daunting for people who are not used to them, and agencies need to consider ways of supporting applicants through those processes.

The development of initiatives to attract and recruit Indigenous Australians from regional areas to the APS will be particularly important for any agency strategy.

Retention

While recent years have shown that, overall, the APS has been a strong recruiter, progress has been eroded by the high separation rates of Indigenous employees. Improving on this outcome will need concerted efforts in developing and implementing effective retention measures within agencies.

Like all APS employees, Aboriginal and Torres Strait Islander employees benefit from a range of practical and innovative retention strategies. For example:

• Appropriate induction processes and general support for introducing them to the workplace will ensure that new starters feel welcome and part of the new team.
• Opportunities to participate in professional development and capacity building programmes, as well as for promotion, will contribute to employees' sense of being valued by their agency.
• Mentoring is a valuable method for guiding new employees in their learning about the APS, and their agency's business and culture, as well as helping them achieve their professional goals.

One more thing

The goals set for any Indigenous employment strategy—improving workplace environments and, through that, raising recruitment and retention rates of Aboriginal and Torres Strait Islander employees—are difficult to achieve. They require considerable investment of commitment, goodwill, and financial and human resources.

The benefits of investing in improved Indigenous employment include raising the profile of the APS, promoting it as an employer of choice, and building its capacity to deliver services more effectively to Indigenous people and the wider Australian community. The APS is also contributing to the Australian Government's Indigenous economic development policy objectives of 'closing the gap'.

Formulating an agency-specific Indigenous employment strategy is a significant step for agencies towards making that commitment, and the initiatives provided in the kit will offer some ideas on how to achieve it.

Planning your Indigenous employment strategy (IES)

Before designing your IES, it's important to be clear about the rationale for it and what it aims to achieve. A good start would be to draw up a business case for developing and implementing an IES, which would include an analysis, for example, of your agency's staffing profile and employee survey data, as well as information from the State of the Service Report.

You could include a reference to the fact that your agency, like all other APS agencies as well as private sector organisations, is operating in a tight labour market, and that it is in your agency's interest to market itself as an employer of choice by adopting innovative recruitment and retention strategies. It makes good business sense to attract employees from non-traditional labour pools, including Indigenous people.

You could also stress that Indigenous employees' varying perspectives, experience and knowledge can add substantial value to your agency's business outcomes.

Part of any successful planning lies in identifying key stakeholders and working out with them how they can best contribute to the development of the plan. In this case, existing Indigenous employees within an agency will provide an important source if ideas and feedback as your strategy is being developed and implemented. As people with direct experience of what it's like to be an Indigenous employee in your agency they may have a uniquely valuable perspective on what issues need to be addressed and how to go about that.

You might consider making the links between the IES and your agency's existing:

• business plans
• workplace diversity plan
• Reconciliation Action Plan (RAP)

You could also include a statement that the APS, including your agency, has an important role to play in employing Indigenous people, modelling better practice to the broader community, and strengthening community capacity.

These elements help map where you are and where you want to go, and they communicate that position and direction clearly to management and employees. And a reminder here about the difference between an IES and a RAP: an IES focuses on workplace environment, recruitment and retention issues affecting Aboriginal and Torres Strait Islander employees in your agency. A RAP, on the other hand, is a tool to help organisations build positive relationships between Indigenous and non-Indigenous Australians, to identify specific actions that will contribute to the improvement of the lives of Indigenous Australians in a wider sense, not solely focussed on agency business.

As part of your associated project plan, you could include:

• an assessment of the agency's business needs
• a list of the agency's stakeholders
• an evaluation of the costs for developing and implementing an IES, as well as what the cost could be for your agency if it did not do so
• timelines for both the development of the IES and its implementation

A solid and extensive plan will help keep you on track and others in your agency informed. You may evaluate the success of your IES by adding in questions to your agency staff survey around staff knowledge of the IES and it's relevancy to your agency's needs.

Agency champion

A strong commitment at executive and management level is essential to the success of an Indigenous employment strategy (IES). Many agencies include a message from their agency head in their IES as a visible demonstration of their personal commitment to their strategy and their expectation that that commitment will be mirrored by senior managers through out the agency, but this is only a starting point.

Employees take behavioural cues from what managers do, more than what they say. Managers seen to be actively supporting Indigenous employment can significantly improve outcomes of an IES.

An agency champion is the human face of your Indigenous employment strategy, someone who reinforces the agency's commitment to support and develop its Indigenous employees.

This role is typically filled by an agency Senior Executive Service employee or by the agency head. Agency champions:

• promote Indigenous employment both within the agency and externally
• provide strategic direction, support and encouragement for initiatives under the IES
• ensure that Indigenous employment issues are on the agenda in high level planning
• work closely with the agency's Indigenous Employment Coordinator, the person responsible for the day to day coordination of the strategy

Indigenous Employment Coordinator (IEC)

An agency that appoints a dedicated Indigenous Employment Coordinator (IEC) (sometimes referred to by other titles, such as Indigenous Liaison Officer or Indigenous Development Coordinator) signals to Aboriginal and Torres Strait Islander people that it is serious about its commitment to the employment and development of its Indigenous employees.

In smaller agencies, the IEC's function may be a part of other responsibilities; in larger agencies, it may be a single purpose role.

The IEC's main job is keeping the IES on track— helping an agency to 'walk the talk'.

A key role of the IEC is to support the Agency Champion. While the Agency Champion provides strategic direction and support for the IES, the IEC ensures that initiatives are undertaken in the agency to give practical daily effect to the strategy on the ground.

IECs' activities may include:

• contributing to the development of the agency's IES
• evaluating the effectiveness of the IES
• working with HR staff to develop and implement effective, targeted recruitment and retention strategies
• working closely with other agencies, including the Commission's Indigenous Employment Team, to ensure that the agency's strategy and programmes draw on best practice from across the Australian Public Service
• contributing to the induction process of new Indigenous employees, including introducing them to other Indigenous staff and advising them about relevant networks
• advising employees of their rights and obligations, and the relevant policies
• helping identify Indigenous employees' learning and development needs
• supporting Aboriginal and Torres Strait Islander employees in times of need
• raising issues of concern when needed, through appropriate channels
• networking with other agencies' IECs.

IECs are usually located with the Human Resources (HR) areas of agencies to ensure that the IES is an integrated component of corporate and workforce planning.

Supporting Indigenous employees

Most new starters tend to experience some sort of culture shock when they begin working in the APS, and even when they move from one APS agency to another. Indigenous employees who may have moved from familiar communities to urban centres may undergo an even greater shock.

It is important for agencies to acknowledge that Aboriginal and Torres Strait Islander people's backgrounds and life experiences often differ from those of non-Indigenous employees.

For example, the Aboriginal and Torres Strait Islander APS Employee Survey (2005) found that Indigenous employees often face significant work-life balance challenges due to family and community responsibilities that are unique to their cultural heritage. Lack of understanding for and support in managing these commitments can lower job satisfaction, raise frustration and anxiety levels, and contribute to employees deciding to leave their agency.

Your agency can demonstrate its commitment to supporting Indigenous employees in a number of ways, and making sure that all members of the agency understand the importance of Indigenous employees' needs and expectations is a good start. Providing empathetic and ongoing support to Indigenous employees will play a key role in increasing their confidence, competence and retention. This is not a case of creating unfair advantage for Indigenous employees. Rather, it is an example of working with each employee's individual needs.

It may also provide an opportunity to talk clearly and openly about the expectations that your agency has of the performance, conduct and responsibilities of each of its employees.

Like all staff members, Aboriginal and Torres Strait Islander employees need professional support, especially at the beginning of their careers, or when they join an agency. It's important for your agency to include in its IES initiatives the provision of a safe and appropriate environment for Indigenous employees to communicate and share information. This may include encouraging Indigenous employees to network with other Indigenous employees in the agency, and to participate in external Indigenous APS Employee Network (IAPSEN) activities.

Harassment, bullying and discrimination

The Aboriginal and Torres Strait Islander APS Employees Census Survey (2005) found that 23% of Indigenous employees reported having experienced bullying or harassment in the workplace compared with 17% of non-Indigenous employees. Some 18% of Aboriginal and Torres Strait Islander employees reported discrimination (mostly on the basis of race or ethnicity), three times that of APS employees overall (6%).

The State of the Service Report 2006-07 stated that APS employees who reported that they had been subjected to harassment or bullying also reported much lower levels of job satisfaction (38% compared with 72% for those not subjected to harassment or bullying).

The APS Values and Code of Conduct, set out in the Public Service Act 1999, emphasise the responsibility of agencies to provide a fair, flexible and safe workplace free from discrimination for all employees and, for employees, to treat everyone with respect and courtesy, and without harassment. However, familiarity with the Values and the Code does not necessarily mean that employees always fully understand and apply them in practice.

An overt, clear statement about what behaviour is, and is not, acceptable is essential for everyone.

Everyone needs a sound understanding of legislation relating to workplace harassment. In-house seminars that reiterate the need for professionalism in the workplace may be one way to promote appropriate behaviour to staff.

For more information on this issue, check out the Commission's publication Respect: Promoting a Culture Free from Harassment and Bullying in the APS.

Respecting culture

By demonstrating a respect for Indigenous culture, your agency can raise its profile in Indigenous communities and enhance its reputation as an employer of choice for Indigenous Australians.

Here are some ways in which your agency can demonstrate respect for Indigenous culture:

• Observe cultural protocols that recognise the position of Indigenous Australians as the traditional owners of the land. This might include acknowledging the traditional owners of the land at the opening of key meetings, including at staff meetings.
• Invite a traditional elder to do a welcome to country at the beginning of a major function, such as a conference.
• Recognise cultural days of significance, such as National Reconciliation and NAIDOC Weeks, and celebrate these in the workplace. In regional areas, there may be other days of cultural significance that employees can recognise and observe.
• Use inclusive language and avoid terms that are offensive to Indigenous people.
• Encourage respectful, voluntary, two-way discussions between Indigenous and non-Indigenous employees about their cultural backgrounds and expectations.

Advertising recruitment opportunities

Many Indigenous Australians find out about employment opportunities through word of mouth, reputation or referral rather than through the Gazette or national newspapers. Tapping into the ways that Aboriginal and Torres Strait Islander people find out information can increase agency contact with potential Indigenous applicants.

An agency's website can greatly influence a potential applicant's opinion about that agency and whether they want to apply for a job with it. It may be useful to include positive written messages about commitment to Indigenous employment and visual images of Indigenous Australians engaged in diverse employment within your agency or in the APS. Posting your agency's Indigenous employment strategy on your website can also be helpful.

The Commission website includes the Public Calling pages for specific information about Indigenous employment in the APS, such as recruitment rounds for graduates, trainees and cadets.

Selection practices

The application and selection process for positions in the APS can be daunting for Indigenous people with little or no experience with public service procedures. It can be helpful to supply applicants with copies of your agency's policies that explain how you conduct selection processes, and what the purpose of each step is. Having a contact officer—such as the IEC—to talk potential applicants through what they need to do and what they can expect through the various steps of the process may also be helpful.

Selection Panels

Having an Indigenous staff member on a selection panel, particularly if that panel is assessing an Indigenous applicant, is desirable. This simple step can send a message that your agency is an organisation that employs Indigenous people and values their contribution. Providing selection training for relevant Indigenous employees is a good way of ensuring that a pool of experienced and skilled Indigenous panel members is available.

In many cases, insisting on having an Indigenous person on the panel won't be realistic. For non-Indigenous employees on the selection panel, appropriate backgrounds, training and experience can help to ensure that panel members have the right skills to communicate effectively with Indigenous applicants.

Supporting Indigenous applicants during job interviews

Like many people, Indigenous people often find presenting themselves at an interview with a government agency intimidating, and may be uncomfortable with disclosing personal information. Providing support during the interview can assist the applicant feel more comfortable and relaxed, helping them to present their claims effectively. Support for Indigenous (and other) applicants can be achieved in various ways:

• providing advice on the interview process in advance so that applicants can prepare themselves adequately
• allowing applicants to bring a support person with them to the interview who can support them by explaining (although not answering) questions or just by being there
• allowing the applicant extra time to become comfortable and not feel rushed through the interview
• using appropriate language.

Special Measures

APS agencies can use Special Measures provisions to create employment or promotion opportunities that are restricted to Aboriginal and Torres Strait Islander applicants. These provisions are designed specifically to provide job opportunities for Indigenous people. The Public Service Commissioner's Directions work with the provisions of the Racial Discrimination Act 1975 to enable agency heads to allow this to happen.

It is good practice for agencies to be explicit about the legal basis for the decision to restrict selection to Aboriginal and Torres Strait Islander candidates. This could be done by noting in the advertisement and on selection documents that 'the filling of this employment opportunity is intended to constitute a special measure under section 8(1) of the Racial Discrimination Act 1975'.

Indigenous development programmes

Your agency can also use the Special Measures provisions to access development pathways for Indigenous employees created and delivered by the Commission, including traineeships, cadetships and graduate programmes. You can find out more about these programmes on the Commission's website.

Some agencies run their own Indigenous development programmes or general trainee programmes with nominated places for Indigenous Australians. The Department of Education, Employment and Workplace Relations (DEEWR), for example, runs an Indigenous Australian Contract Management Development Programme. For further information on Special Measures please refer to Circular 2006 No.1 available from http://www.apsc.gov.au/circulars/.

Identified Positions

Your agency can use Identified Positions to help selection panels choose the right person for the job by including selection criteria that address the skills, knowledge and attributes considered essential or desirable for the effective performance of the duties of a particular position.

Identified Positions have been generally used where government work relates to the provision of programmes and services to Indigenous Australians. They are not created under any special provision. Rather, their use is based on long-standing APS policy, and an understanding that careful consideration can lead to the use of selection criteria that explicitly recognise the value of skills and knowledge relevant to working with Indigenous people and communities.

The key requirements of the criteria usually are:

• demonstrated knowledge and understanding of Aboriginal and Torres Strait Islander societies and cultures, and the issues affecting Aboriginal and Torres Strait Islander people
• demonstrated ability to communicate sensitively and effectively with Aboriginal and Torres Strait Islander people.

Identified criteria are consistent with the merit and reasonable opportunity values under the Public Service Act 1999 and do not raise issues of discrimination under the Racial Discrimination Act 1975, because the employment opportunities advertised in this way remain open to all eligible applicants (whether or not they are Indigenous), and the criteria are simply part of the skills set needed to do the job.

Agencies have the flexibility to expand or add to the core criteria. Your agency, for example, could modify a criterion to include the ability to communicate with a particular community group. Agencies can adapt these criteria as they see fit for a particular position—they are a guide rather than a prescription.

Current practice in some agencies is to include the identified criteria into all job roles in certain regions in recognition of the strong Indigenous client base (these roles may or may not be advertised as identified positions—that is a decision for each agency to make in each case). The inclusion of the criteria in such cases recognises the importance of knowledge of and communication with the Indigenous community.

For further information on Identified Positions please refer to Circular 2006 No. 1 available from http://www.apsc.gov.au/circulars/.

Induction

Coming to terms with APS workplace environments can be a challenge for any new recruit. For many Indigenous people, workplace cultures can be very different from their own cultural and family experience, for example in terms of language, social affinity, and family and community obligations.

A thorough induction process is the first step in building a two-way relationship between the agency and the employee. It can help new starters feel valued, included and supported in the workplace from the first day.

It may be particularly useful to bring in an existing Indigenous employee to help with the induction—perhaps an additional role for the IEC.

As for all new staff, effective induction programmes for Indigenous employees are likely to cover:

• the APS context—its structure, its agencies, and relevant legislation
• working in the APS—the APS Values and Code of Conduct, general conditions, expectations in relation to duties, and learning and development opportunities
• agency-specific information—the culture of the agency; the roles, structure, and functions of the whole agency; and the particular work undertaken by line areas
• performance agreements—detailing job expectations, clearly articulated measurable work objectives, and skill and career development opportunities.

The Australian Public Service Commission offers an online APS induction programme to ensure that new starters in the APS are equipped with a broad understanding of the Australian Government and the roles and responsibilities of the APS. This can complement effective agency induction.

Providing career and development opportunities

A lack of necessary qualifications and experience is one of the most commonly identified factors hindering or preventing Indigenous staff from seeking higher APS positions.

As for all staff, providing career and development opportunities is essential to improving Indigenous employees' confidence and capabilities. A key to retaining Indigenous employees is support for personal and career development—a first step being to discover employees' development needs and aspirations. Line managers are pivotal in this task.

In addition to the initiatives used to identify staff members' learning and development needs and wishes in general, such as the performance assessment process, there are Indigenous-specific pathways for career advancement opportunities for Aboriginal and Torres Strait Islander employees. Your agency can access a range of generic and Indigenous-specific training courses developed by the Commission including:

• mobility and secondment opportunities through the Horizons programme
• career development through the Career Trek programme, which was designed particularly for regionally based staff and those employed by small to medium sized agencies
• tertiary scholarships programmes, and through other development initiatives offered through the Indigenous Scholarship programme
• leadership programmes.

Your agency can support Indigenous employees undertaking formal studies or tertiary qualifications in fields which link to agency objectives, or which meet employees' career development needs. That support might include:

• paid leave to travel to attend classes, undertake examinations, or for study purposes
• additional leave to Aboriginal and Torres Strait Islander employees who undertake part-time study
• payment of HECS fees
• scholarships or other mechanisms which allow employees to undertake their studies full-time.

Mentoring

Mentoring aims to help individuals achieve their full potential, and includes guidance and advice on specific agency business challenges, including strategy and policy.

Through your IES, your agency can establish formal mentoring arrangements for Indigenous employees. You might consider including mentoring training for interested employees, or people from outside the agency may be approached to take on a mentoring role. The Commission's Panel of Consultants can also provide some agencies with access to potential mentors for their Indigenous staff.

Mentors need to:

• be able to provide useful advice drawing on their own experience and knowledge
• generate respect and trust in their relationships
• communicate openly and honestly about personal, often difficult, issues
• know where the boundaries are and not play an advocate role

Mentors for Indigenous staff don't have to be Indigenous people. Often the provision of a different perspective is useful by itself:

Mentors can have a remarkable and long-lasting impact on those they mentor:

Staff networks

Networking and peer support is important to the well-being and morale of many Indigenous employees. Establishing and/or providing access to an Indigenous network is a positive way for your agency to show support to Indigenous employees.

Indigenous agency-based staff networks can provide opportunities for Indigenous employees to share experiences, provide support, and be a sounding board. They can also help identify areas where employees need or wish to increase their skills.

Network meetings can be either formal or informal. Formal meetings can provide greater structure and direction for the Indigenous employee network and could have a learning component. They may involve a HR representative and may also be used to gain feedback on the effectiveness of the agency's IES. Informal meetings may provide all of the above, be just as effective, and be run completely by your Indigenous staff. They may provide a relaxed way to welcome new employees to your agency, farewell old employees, and for employees to share experiences and insights.

Indigenous Australian Public Service Employee Network (IAPSEN)

The IAPSEN consists of a number of individual APS Indigenous employee networks in capital cities and regional locations around the country. To date there are networks in Townsville, Brisbane, Sydney, Melbourne, Adelaide, Darwin and Perth. Networks are being established in Alice Springs and the Torres Strait.

The IAPSEN was established to provide a supportive environment and to create a sense of community that is empathetic to Indigenous employees. The network can also be used to discuss broader issues that may be impacting on Indigenous employees in the APS.

Providing Indigenous employees with permission and encouragement to attend IAPSEN meetings is one way that managers and agencies can show their support and commitment to Indigenous employment.

FOCUS AREA 1: WORKPLACE ENVIRONMENT

Actions	Examples of Actions	Target Date	Responsibility	Why are we doing it?	How will we know we’ve done it?
1. Planning your Strategy	Develop an IES business case Develop an IES project plan (include stakeholder assessment, timelines for implementation) Draw links between IES and agency: Reconciliation Action Plan Workplace Diversity Plan Departmental business/corporate objectives Government objectives Plan to refresh IES annually	Before roll out of IES	Project Officer	To develop an IES relevant to the business needs of the agency	Agency-specific IES established Stakeholders consulted and endorse IES IES has senior management support Appropriate links to other corporate documents established
2. Agency champion	Identify an Agency Champion to fulfil role	Position to be filled by launch of agency IES	Agency Head	To ensure high level commitment within the agency to IES	Role of Agency Champion filled
	Promote Indigenous employment internally: Ensure adequate resources allocated to IES Monitor progress through regular briefings/meetings with HR Raise issues at high level departmental meetings Liaise with representatives from Indigenous staff networks (internal/IAPSEN)	Ongoing	Agency Champion		Increased number of Indigenous employees in different areas and at all levels Increased satisfaction of staff relating to workplace environment in annual staff surveys
	Promote Indigenous employment externally. Available to speak about the IES at: NAIDOC week events Indigenous employee awards community events external meetings
3. Indigenous Employment Coordinator	Identify an Indigenous Employment Coordinator to fulfil role	Position to be filled by launch of agency IES	Agency Head Agency Champion	To ensure successful implementation of IES initiatives	Role of Indigenous Employment Coordinator filled
	Coordinate the day to day implementation of the initiatives Support the Agency Champion Support Indigenous employees Network with other Indigenous Employment Coordinators	Ongoing	Indigenous Employment Coordinator		Number of successful IES initiatives (target 100%) Number of meetings/briefings with Agency Champion Number of interdepartmental meetings
	Identify need for and design and drive new initiatives Evaluate IES	As needed			Staff survey shows strong knowledge of the IES and agreement that it is relevant to the agency’s needs
4. Supporting Indigenous employees	Supervisors briefed on agency support for flexible work practices, e.g. leave to attend funerals/community events, staff requests to attend IAPSEN activities supported subject to operational requirements.	On engagement of staff; then annually	HR Manager/ Indigenous Employment Coordinator/ Line Managers	To ensure Indigenous staff receive adequate support	Reduction in survey data reporting difficulty in balancing work and community commitments
	Arrange for Employee Assistance Programme to provide Indigenous counsellors at the request of staff members	Ongoing			Reduction in survey data reporting levels of stress Reduction in survey rates from the agency for Indigenous employees
5. Respecting culture	Develop and adopt protocol for: Welcome to Country Acknowledging traditional owners	Ongoing	HR Manager/ Events coordinators/ Chairs of meetings	Increased profile of Indigenous culture in agency	Protocol included in relevant meetings and gatherings
	Recognise cultural days of significance: Raise flags on days of significance Celebrate NAIDOC Week and provide opportunities for employees to participate in department and community events	July (NAIDOC Week) Local festivals (e.g. 1 July, Coming of the Light festival for Torres Strait Islanders)	HR Manager/ Indigenous Employment Coordinator/ Agency Champion		Number of employees (Indigenous and non-Indigenous) who participate in agency and community events
	Plaques on buildings recognise local Indigenous people	Day/Month/Year for plaques to be attached to all buildings Ongoing attached to new buildings	Agency Champion/ Building Manager		Department buildings have plaques of recognition (target 100%)
	Make sure procedures are in place so that if photographs of deceased Indigenous people are displayed permission is gained from their family	Ongoing	Publications		Photos of deceased Indigenous people have permission from the family (target 100%)

 

FOCUS AREA 2: ATTRACTION AND RECRUITMENT

Actions	Examples of Actions	Target Date	Responsibility	Why are we doing it?	How will we know we’ve done it?
6. Advertising recruitment opportunities	Tap into centralised recruitment programmes run by the Australian Public Service Commission for trainees, cadets and graduates.	Ongoing	HR Manager/ Indigenous Employment Coordinator	To increase the number of Indigenous of job applicants	Graduates, cadets and trainees sourced through APS-wide programmes
	All job advertisements written in easy-to-read, inclusive language: Include a clear duty statement Avoid jargon/acronyms Include the tag line ‘Aboriginal and Torres Strait Islander people are encouraged to apply’				Increase in number of applicants for positions, including from Indigenous Australians. Advertisements include the lines ‘Aboriginal and Torres Strait Islander people are encouraged to apply’ (target 100%)
	Advertise positions through: Indigenous media Indigenous support units at educational institutions Indigenous networks				Percentage of advertisements placed in Indigenous media (target 100%)
7. Selection practices	Tap into centralised recruitment rounds run by the Australian Public Service Commission for trainees, cadets and graduates.	Ongoing	HR Manager/ Indigenous Employment Coordinator	To make selection practices more effective for the agency and attractive to applicants	Graduates, cadets and trainees sourced through APS-wide programmes
	Selection documentation to include advice on addressing selection criteria				Percentage of documentation that includes advice on addressing selection criteria (target 100%)
	Streamline recruitment practise to maximise likelihood of strong candidates accepting offers of employment				Percentage of recruitment that takes less than six weeks (target 60%) less than seven weeks (target 70%) less than eight weeks (target 80%)
	Allow Indigenous interviewees on request to be accompanied to interviews by a support person				Percentage of Indigenous people informed that they may bring a support person to interview (target 100%)
	Selection panels for identified positions include at least one Aboriginal or Torres Strait Islander representative or someone with experience in Indigenous issues				Percentage of selection panels for identified positions that have at least one Aboriginal or Torres Strait Islander representative (target 100%)
8. Special measures	Recruit X number of trainees Recruit X number of cadets Recruit X number of graduates	Day/Month/Year (as an annual intake)	HR Manager/ Indigenous Employment Coordinator	To increase number of Indigenous staff in agency, particularly those with qualifications	Target number of trainees engaged
	Create X number of Indigenous-specific positions	Ongoing			Target number of Indigenous-specific positions engaged
9. Identified criteria	Positions that involve knowledge of or communication with Indigenous communities be identified	Ongoing	HR Manager/ Indigenous Employment Coordinator	To improve the capability of agency to work with and for Indigenous communities	Positions that involve knowledge of or communication with Indigenous communities identified (target 100%)

 

FOCUS AREA 3: RETENTION

Actions	Examples of Actions	Target Date	Responsibility	Why are we doing it?	How will we know we’ve done it?
10. Induction	Induction covers Introduction to colleagues Agency-specific information—roles, structure, functions of whole agency, as well as particular work of unit/line area APS context—Values and Code of Conduct, structure, agencies, Canberra and regional, legislative framework Working in the APS—general conditions, expectations in relation to duties, Performance Assessments, reviews, promotions Performance Agreements—use to outline what is expected in the job Establish a formal buddy/coaching programme. Buddy to help with administration, who’s who and what’s what	From engagement of new employee	HR Manager/ Indigenous Employment Coordinator/ Line Manager	To improve awareness among Indigenous employees of how the organisation works, including awareness of employee responsibility	Induction delivered to new employees (target 100%) Number of buddy/coach relationships created Participant feedback
11. Providing career and development opportunities	Performance agreements have links to learning and development plan	Ongoing	HR Manager/ Indigenous Employment Coordinator/ Line Manager	To improve career progression prospects for Indigenous employees	Performance agreements have links to personal development plan (target 100%)
	Provide funding for staff to undertake learning and development/qualification courses and support attendance		Agency Head		Number of staff who undertake and successfully complete courses
	Facilitate secondments and transfers across agencies		HR Manager/ Indigenous Employment Coordinator		Number of staff that undertake secondments/transfers
	Develop and support internal exchange programme		HR Manager/ Indigenous Employment Coordinator		Number of staff that undertake programme
12. Mentoring	Establish a formal mentoring programme	Ongoing	HR Manager/ Indigenous Employment Coordinator		Number of mentor relationships created Participant feedback
13. Staff networks	Establish and/or support agency network	Ongoing	HR Manager/ Indigenous Employment Coordinator/ Network representatives	Indigenous employees develop a long term career plan within the APS	Indigenous staff invited to participate in agency network (target 100%) ·Supervisors of Indigenous staff reminded of the importance of releasing staff for network meetings
	Release and encourage staff to attend IAPSEN meetings		Line Manager	To encourage Indigenous staff to support each other	Staff encouraged to attend IAPSEN meetings

List of resources

Workplace environment

For an online version of the Australian Public Service Commission’s publication Respect: Promoting a Culture Free from Harassment and Bullying in the APS go to www.apsc.gov.au/ethics/respect.html

Recruitment

For information on the Australian Public Service Commission’s publication Get it Right—a Recruitment Kit for Managers go to www.apsc.gov.au/getitright/. The kit is available on a cost recovery basis from the Commission. Call 02 6202 3706 or email getitright@apsc.gov.au if your agency would like to purchase this kit.

For an online version of the Australian Public Service Commission’s publication Better, Faster: Streamlining Recruitment in the APS go to:
www.apsc.gov.au/publications07/betterfaster.htm

The Australian Public Service Commission runs a programme on Getting that Selection Right. For information on the programme go to www.apsc.gov.au/learn or contact the Programme Manager on 02 6202 3778.

The Australian Public Service Commission’s publication Getting a Job is available in hard copy. If you would like a copy please call (02) 6202 3700.

For an online version of the Australian Public Service Commission’s publication Cracking the Code go to: www.apsc.gov.au/publications07/crackingthecode.htm

For further information on Special Measures please refer to Circular 2006 No. 1 available from www.apsc.gov.au/circulars/

For further information on Identified Positions please refer to Circular 2006 No. 1 available from www.apsc.gov.au/circulars/

Further information on trainee, cadet and graduate programmes can be found at www.apsc.gov.au/indigenous/recruitment.htm

Further information on the NICP can be found at www.nicp.dewr.gov.au and www.apsc.gov.au/indigenous

Retention

For more information about induction go to www.apsc.gov.au/apsinduction/index.html or contact the Australian Public Service Commission at e-mail: apsinduction@apsc.gov.au

For more information about Horizons see http://www.apsc.gov.au/indigenous

A training calendar can be accessed at http://www.apsc.gov.au/learn/ 

For information on the Commission’s Panel of Consultants (in relation to mentoring providers) please go to www.apsc.gov.au/learn/custom.htm or contact consultanctyservices@apsc.gov.au.

For more information about IAPSEN you can contact the Commission’s Indigenous Liaison Officer on 02 6202 3593 and/or check out the IAPSEN website at www.apsc.gov.au/IAPSEN