Contact and Acknowledgement Information Enquiries or suggestions about the Aboriginal and Torres Strait Islander APS Employees Census Report or the analyses are welcome and should be directed to: Evaluation Group Heather Frisken (02) 6271 6324 Email correspondence should be directed to: Heather.Frisken@apsc.gov.au HTML and PDF versions of the report are available from the Commission’s website at: http://www.apsc.gov.au Production Team Evaluation Group (Group Manager): Ngaire Hosking Principal drafters and researchers: Heather Frisken, Catherine Adorni-Braccesi, Adam McKinnon, Ben Keily, Sue Johnson, Natalie Collins, Ngaire Hosking. The report includes significant contributions and input from the Australian Public Service Employment Database (APSED), the State of the Service and Public Administration teams, and the Better Practice Group within the Commission. The cover of this report was designed by Jayne Abel. The internals were designed and typeset by Niki Fisher. Proofing of this report was conducted by Dr Derek Drinkwater. © Commonwealth of Australia 2006 This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior written permission from the Commonwealth. Requests and inquiries concerning reproduction and rights should be addressed to the Commonwealth Copyright Administration, Attorney-General’s Department, Robert Garran Offices, National Circuit, Barton, ACT 2600, or posted at http://www.ag.gov.au/cca ISBN 0 9757585 4 3 PREFACE Supporting the employment of Aboriginal and Torres Strait Islander people is a key priority for the Australian Public Service (APS) and its individual agencies. The Australian Government announced the APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees in August 2005. Part of this strategy is a programme of research to inform current and future approaches to improving attraction, development and retention of Indigenous Australians in the APS, including a survey of all Aboriginal and Torres Strait Islander employees. This report presents the main findings of that survey which was undertaken in November 2005. The survey, the Aboriginal and Torres Strait Islander APS Employees Census Survey, is the first of this scale and significance undertaken by the Australian Public Service Commission (the Commission) into the views of Aboriginal and Torres Strait Islander APS employees. It provides information on a range of issues including career intentions, commitment to the workplace, job satisfaction and support from agencies. All employees in the APS who had identified to their agency that they are Aboriginal or Torres Strait Islander were invited to participate. A total of 1554 valid responses were received, representing a response rate of 59%. The appendix to this report provides information on the survey methodology. The Commission engaged the services of ORIMA Research to assist with the design, delivery and statistical outputs of the survey. Assistance in the development and pilot testing of the survey was provided by employees from a number of agencies including the Australian Taxation Office (ATO), the Department of the Environment and Heritage (DEH), Centrelink, the Department of Employment and Workplace Relations (DEWR), the Department of Transport and Regional Services (DOTARS), the then Department of Family and Community Services (FaCS), the Department of Health and Ageing (Health), the Australian Institute of Aboriginal and Torres Strait Islander Studies (AIATSIS), the Department of Foreign Affairs and Trade (DFAT) and Aboriginal Hostels Limited (AHL). Other main information sources used in the preparation of the report include the results of the 2004 and 2005 State of the Service employee surveys and data from the Australian Public Service Employment Database (APSED). A complementary publication, the Aboriginal and Torres Strait Islander APS Employees Census Survey Results, provides aggregate results of the Aboriginal and Torres Strait Islander APS Employees Census Survey. A summary pamphlet, the Aboriginal and Torres Strait Islander APS Employees Census Report At a Glance, is also available. These publications are available on the Commission’s website at http://www.apsc.gov.au Chapter 1: Overview The State of the Service Report 2004–05 identified attracting and retaining Aboriginal and Torres Strait Islander employees as a critical challenge facing the APS as a whole. The report found that in 2004–05 there had been a reduction in the representation and numbers of Indigenous employees, despite an increase in ongoing employee numbers. The representation of Aboriginals and Torres Strait Islanders still compared favourably with that in the broader Australian workforce, in which 1.9% of all Australians aged between15 and 64 and 1.4% of the Australian labour force identified themselves as Indigenous.1 However, the representation of Aboriginal and Torres Strait Islander employees in the APS has fallen steadily in recent years, from a high of 2.7% of ongoing APS employees in 1998 and 1999 to 2.2% in 2005. In addition, Aboriginals and Torres Strait Islanders have higher rates of separation from the APS than non-Indigenous employees, and separations of Indigenous employees are considerably higher than they were 10 years ago. Aboriginal and Torres Strait Islander APS Employees Census To obtain further information about the employment of Aboriginals and Torres Strait Islanders in the APS, the Australian Public Service Commission (the Commission) conducted the Aboriginal and Torres Strait Islander APS Employees Census Survey in November 2005. This report presents the results of that census, along with further data from the Australian Public Service Employment Database (APSED) on the employment of Aboriginals and Torres Strait Islanders in the APS. The census survey is the first of this scale and significance undertaken by the Commission into the views of Aboriginal and Torres Strait Islander APS employees. The results of the survey present a valuable insight into the nature of employment and issues affecting this group. The survey, conducted by ORIMA Research on behalf of the Commission, sought the views of all Aboriginals and Torres Strait Islanders employed in the APS who were recorded on APSED as being Aboriginal or Torres Strait Islander. In addition, advertising for the survey allowed Aboriginal and Torres Strait Islander employees who had not identified as Indigenous to choose to participate. In all, 1554 valid responses were received, representing a response rate of 59% of the identified population. It is important to note, however, that except for those who contacted the Commission directly to participate, the survey could not be sent to Aboriginal and Torres Strait Islander employees who had not identified as Indigenous within their agency. Information on the survey methodology is contained in the appendix to this report. Where possible, the report compares results from the Aboriginal and Torres Strait Islander employee survey with results for the APS as a whole from the 2005 State of the Service employee survey. In making comparisons, the different nature of the two surveys needs to be borne in mind. In particular, while the Aboriginal and Torres Strait Islander employee survey is a census of all employees identifying as Aboriginal or Torres Strait Islander in the APS, and therefore not subject to sampling error, the State of the Service employee survey is a sample survey, based on a sample of 6160 APS employees. 1 ABS 2002, Census of Population and Housing 2001, ABS, Canberra. In addition, the different demographic and classification profile of the Aboriginal and Torres Strait Islander APS population compared to the overall APS population is likely to account for some of the differences observed between the two groups. In particular, as discussed in more detail in Chapter 2, Aboriginal and Torres Strait Islander employees have a lower classification profile than other APS employees, are less likely to work in the ACT, and have lower levels of educational qualifications. Differences in results between the two populations may be affected by these issues as well as issues specific to Aboriginals and Torres Strait Islanders. The six month difference in the timing of the two surveys may also account for some differences. APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees The census and this report are part of the APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees. This strategy has been developed in response to challenges arising from emerging demographic and social trends and the continuing decline in Indigenous representation in the APS, and to support the new arrangements for the administration of Indigenous affairs. The strategy aims to: * stabilise numbers over the next two years, and then increase Aboriginal and Torres Strait Islander employment in the mainstream APS * contribute to increased social equity by improving Indigenous people’s income levels and employment opportunities in the wider Australian employment market * increase the extent to which government agencies are able to use the existing and potential skills and capacity of Aboriginal and Torres Strait Islander employees in order to meet their business needs for skilled employees, including in areas of specific skill shortage and recruitment difficulty * build the capacity of the APS generally to provide more effective service delivery to Indigenous people. The strategy seeks to address these national interest concerns through a number of different initiatives. These include: * Assisting agencies to address key barriers to the employment of Aboriginal and Torres Strait Islander employees, by identifying pathways to employment that allow Indigenous people to develop the required skills and capacity to work within the APS. The Commission is running a pilot school-to-work programme and APS-wide Indigenous graduate and cadetship programmes, promoting the APS as an employer of choice, identifying and promoting pathways for Aboriginal and Torres Strait Islander employees, and developing better practice guides on the recruitment and management of Aboriginal and Torres Strait Islander people. * Supporting Indigenous employees to develop relevant skills that allow them to contribute to business goals and build successful long-term careers within the APS. Existing initiatives include targeted career development programmes for APS 1–6 and EL Indigenous employees, Indigenous employee networks, and an Indigenous exchange programme. New strategies include the provision of career development opportunities through an Indigenous Capability Fund, as well as offering career development workshops Australia-wide at no cost to APS Indigenous employees, the expansion of Indigenous employee networks and the establishment of a central agency and general secondment programme to provide short-term exposure to other departments. * Supporting agencies to align strategies that promote Aboriginal and Torres Strait Islander employment with their broader strategies for achieving business outcomes through workforce planning and capability development. New strategies include encouraging more agencies to develop and implement Indigenous employment strategies. * Encouraging partnerships with other jurisdictions and organisations (including Job Network members) to develop innovative employment solutions that meet agency skill requirements. The Commission has established the position of Indigenous Liaison Officer to provide advice to agencies on the development of their Indigenous employment strategies, and provided support to agencies seeking to participate in other recruitment and retention programmes. * Ensuring that employees working in whole of government service delivery to Indigenous Australians have the skills they need to deliver effective outcomes. The Commission has, for example, coordinated the delivery of training in working in a whole of government context to all Indigenous Coordination Centres (ICCs)2 and is identifying additional training and development requirements to support the new whole of government operating environment. The strategy concentrates on recruiting Aboriginal and Torres Strait Islander employees to the APS and developing existing Indigenous employees so that they have broadly-based APS skills that will equip them to gain jobs anywhere. It also focuses on provision of supportive work environments. The census survey will contribute to the strategy by providing further information about the nature of existing Indigenous employment in the APS that will assist in the development of initiatives to support Aboriginal and Torres Strait Islander employees. Key findings The findings from the census survey reveal several important positive features of Aboriginal and Torres Strait Islander employment in the APS that could be built on in encouraging Aboriginals and Torres Strait Islanders to join the APS and to develop productive long-term careers. In particular, job satisfaction rates for Aboriginal and Torres Strait Islander employees are generally high. The survey found that 74% of Aboriginal and Torres Strait Islander employees were on average satisfied with the job satisfaction factors that they had nominated as most important to how satisfied they are with their job, compared to 71% for APS employees overall. In addition, 74% of Aboriginal and Torres Strait Islander employees agreed that they are proud to work in the APS, compared with 71% for APS employees overall. Sixty-five per cent of Aboriginal and Torres Strait Islander employees felt that they have been able to contribute positively to the improvement of outcomes for Indigenous Australians as part of their work. The majority of Aboriginal and Torres Strait Islander employees believed they have the same opportunities to develop their careers as non-Indigenous employees (65%) and have the same opportunities to access learning and development as non-Indigenous employees (78%). A large majority of Aboriginal and Torres Strait Islander employees (82%) were satisfied that their supervisor would support the use of flexible work practices such as flextime, personal leave, flexible working hours, and part-time work, a result similar to the overall APS result. Fifty per cent of Aboriginal and Torres Strait Islander employees rated their supervisor as highly effective at managing people, a similar finding to APS employees overall (51%), and 84% of Aboriginal and Torres Strait Islander employees rated their supervisor as either highly or moderately effective at managing people. While results from the survey were generally positive, there are still some areas of concern. Only 49% of respondents agreed that their agency actively supports the employment, development and promotion of Aboriginal and Torres Strait Islander employees. This finding is lower than the 58% result for APS employees overall. In addition, 80% of Aboriginal and Torres Strait Islander employees felt that their agency should be doing more to support the employment, development and promotion of Aboriginal and Torres Strait Islander employees. 2 Indigenous Coordination Centres (or ICCs) operate in 30 locations around Australia. They look after most of the Australian Government’s Indigenous programmes and negotiate Shared Responsibility Agreements with local Indigenous people and communities. ICCs are managed by the Office of Indigenous Policy Coordination (OIPC) within the Department of Families, Community Services and Indigenous Affairs (FaCSIA) There is also some concern among a minority of Aboriginals and Torres Strait Islanders about their treatment in the workplace. Twenty-three per cent of Aboriginal and Torres Strait Islander employees indicated that they had been subjected to bullying or harassment in the workplace in the last 12 months, compared with 17% for APS employees overall. In addition, 18% indicated that they have been subjected to discrimination in the workplace in the last 12 months, compared with 6% of APS employees overall in the 2004 State of the Service employee survey.3 Other key findings from each chapter are reported below. Indigenous representation in the APS (Chapter 2) * Aboriginal and Torres Strait Islander employees are more highly represented than other employees at the APS 1–2 levels, making up 4.4% of all APS employees in these classification groups. Around 10% of Aboriginal and Torres Strait Islander employees are at the APS 1–2 levels. * With the exception of 2003–04, when Aboriginals and Torres Strait Islanders made up 3.0% of all engagements to the APS, Indigenous representation among engagements has generally fallen over the past 10 years, accounting for only 2.3% of engagements in 2004–05. * Aboriginal and Torres Strait Islander employees were more likely to separate from the APS than other employees in 2004–05, with 13.6% of all ongoing Aboriginal and Torres Strait Islander employees separating, compared to 8.5% for the APS overall.4 * At June 2005, only one-quarter (25.5%) of Indigenous employees had a bachelor’s degree or higher, compared with the APS average of 49.9%. Aboriginals and Torres Strait Islanders working in the APS (Chapter 3) * Aboriginal and Torres Strait Islander employees are more likely to work in service delivery positions (78% compared to 55% for all APS employees). * A high proportion of overall Aboriginal and Torres Strait Islander employment is in identified positions, where some selection criteria relate specifically to knowledge and understanding of, and ability to communicate with, Aboriginal and Torres Strait Islander people (43%). * Aboriginal and Torres Strait Islander employees are more likely to consider themselves to be primarily APS employees, rather than employees of their agency, than APS employees overall (50% compared to 40%). Recruiting Aboriginals and Torres Strait Islanders to the APS (Chapter 4) * Forty-four per cent of Aboriginal and Torres Strait Islander employees commenced at the APS 1–2 levels. * While most Aboriginal and Torres Strait Islander employees were recruited through general recruitment processes (53%), a substantial number were recruited through Indigenous-specific recruitment processes (37%). * There was a high degree of support for both Indigenous-specific and general recruitment processes to facilitate the employment of Aboriginals and Torres Strait Islanders in the APS. There were mixed views about the type of vacancies that individual respondents would prefer to apply for (identified positions, positions open only to Indigenous Australians, or general recruitment processes). * Only 42% of Aboriginal and Torres Strait Islander employees agreed that overall recruitment and promotion decisions in their agency are fair, but this compared favourably with the figure for APS employees overall (36%). 3 This question was not asked in the 2005 State of the Service employee survey. 4 The 48 ongoing Aboriginal and Torres Strait Islander employees transferred to Commonwealth employment outside the Public Service Act 1999 are not included as having separated for the purpose of these figures. Managing, sustaining and engaging Aboriginal and Torres Strait Islander employees (Chapter 5) * Aboriginal and Torres Strait Islander employees were less likely to express an intention to stay in the APS for the next three years than APS employees overall (51% compared to 60%), with the difference largely reflecting a higher proportion of employees unsure about whether they will leave (32% compared to 25% for APS employees overall). * Of those who foreshadowed leaving the APS, the top five reasons were to pursue job opportunities outside the APS (38%), lack of job satisfaction (36%), feeling undervalued (33%), lack of workplace support (29%), and poor management (28%). * The top five job satisfaction factors for Aboriginal and Torres Strait Islander employees were ‘good working relationships’, ‘chance to make a useful contribution to Indigenous Australians’, ‘flexible working arrangements’, ‘duties/expectations made clear’, and ‘opportunities to develop my skills’. * The top five attributes that Aboriginal and Torres Strait Islander employees would like to see in their supervisor were ‘demonstrates honesty and integrity’, ‘works with staff to find solutions’, ‘respects employees as individuals’, ‘sets realistic performance expectations’, and ‘works effectively and sensitively with Aboriginal and Torres Strait Islanders’. * A lower proportion of Aboriginal and Torres Strait Islander employees report having received formal individual performance feedback in the last 12 months than APS employees generally (76% compared to 85% for APS employees overall). Career progression and learning and development for Aboriginals and Torres Strait Islanders in the APS (Chapter 6) * In the 12 months prior to November 2005, 43% of Aboriginal and Torres Strait Islander employees applied for a position and, of these, 76% applied for positions at a higher classification. This is similar to results for APS employees overall. * Forty-six per cent of Aboriginal and Torres Strait Islander employees would be willing to leave their home location and/or their extended family to further their career. * When asked to nominate factors that may have prevented career advancement, respondents were most likely to nominate personal factors (lack of confidence in self, lack of qualifications and/or experience, and concerns about balancing work, family and community responsibilities), or agency-specific factors (limited numbers of vacancies at higher levels and a concern that selection processes might not be fair). * The top learning and development priorities identified by Aboriginal and Torres Strait Islander employees were communication skills (62%), leadership skills (60%) and management skills (58%). * When asked to indicate whether they learned more in development programmes that are targeted at Aboriginals and Torres Strait Islanders, general programmes that are open to everybody, or both targeted and general programmes, most respondents selected the response ‘both targeted and general programmes’ (52%), with general programmes (25%) a more common response than targeted programmes (14%). Relationships and behaviour in the workplace (Chapter 7) * While generally agreeing that their colleagues behaved in accordance with the APS Values (the Values), Aboriginal and Torres Strait Islander employees were less likely to agree with this statement than APS employees overall (79% compared to 87%). * Forty-five per cent of Aboriginal and Torres Strait Islander employees had faced a challenge in the last 12 months in balancing family and/or community obligations and being professional and achieving the requirements of the job in accordance with the APS Code of Conduct (the Code of Conduct). Of these, 65% reported that the challenge they faced had been resolved to their satisfaction and 24% reported that it had not been. APS agency commitment and support to Aboriginals and Torres Strait Islanders (Chapter 8) * Where respondents indicated that their agency had a formal Indigenous Employment Strategy, only 30% believed the strategy had been effective in improving employment outcomes for Indigenous employees. * Sixty-nine per cent of Aboriginal and Torres Strait Islander employees indicated that most of their colleagues in their immediate work area work effectively and sensitively with Indigenous Australians. * A third of Aboriginal and Torres Strait Islander employees indicated that they had cultural or community obligations that take them out of the workplace and, of these, 74% reported that they are satisfied with the support provided by their workplace in meeting these obligations. * Fifty-four per cent of Aboriginal and Torres Strait Islander employees were satisfied with their overall say in decisions that impact on their work, compared to 44% for APS employees overall. Chapter 2: Aboriginal and Torres Strait Islander employee profile As outlined in Chapter 1, the State of the Service Report 2004–05 found that in 2004–05 there had been a further reduction in the representation and numbers of Aboriginal and Torres Strait Islander employees in the APS, with a clear trend of declining levels of employment since 1999. This chapter explores data from the Australian Public Service Employment Database (APSED) to look at trends in the employment of Aboriginals and Torres Strait Islanders in the APS in more detail. Where relevant, it uses data from the census survey to provide more detailed information about the profile of Aboriginal and Torres Strait Islander employees. In analysing this data, it is important to note that the provision of diversity data by APS employees to their agency, including whether an employee is an Aboriginal or Torres Strait Islander, is voluntary. Therefore, as with any large voluntary data collection, APSED may tend to under-represent the actual number of employees in these groups. Of the data supplied to APSED, Indigenous status has been provided for 69% of employees. Employees for whom no data is available are included in the population for calculating percentages. Therefore, the percentages provided on representation of Aboriginal and Torres Strait Islander employees in the APS probably underestimate the actual proportions in agency and APS populations. Nevertheless, the overall proportion is consistent with the results from the 2005 State of the Service employee survey, which found that we could be 95% confident that the estimate of the Aboriginal and Torres Strait Islander population in the APS is between 1% and 3%.6 The chapter begins by looking at overall trends in Aboriginal and Torres Strait Islander representation in the APS. It then examines the classification profile of Aboriginal and Torres Strait Islander employees and the representation of this group by sex and age profile. The chapter goes on to look in more detail at trends in Aboriginal and Torres Strait Islander employees’ engagement to, and separation from, the APS. It concludes by examining some other features of employment for this group, including length of service, location, mobility and educational qualifications. Trends in Aboriginal and Torres Strait Islander representation The decline in employment of Aboriginals and Torres Strait Islanders in the APS that has been observed since 1999 continued in the year to June 2005. The decline was in fact sharper than it had been in recent years, with representation rates falling to 2.2% of ongoing employees, down from 2.4% in 2004.7 The number of ongoing Aboriginal and Torres Strait Islander employees fell from 2946 to 2770—a fall of 6.0%. This compares unfavourably with the slight increase in total ongoing employee numbers for the whole of the APS of 0.8% over the year. This decline included 48 Aboriginal and Torres Strait Islander employees who were transferred out of coverage of the Public Service Act 1999, but who remained in Commonwealth employment. If these 48 employees had not moved out of coverage of the Act, the representation rate for Aboriginal and Torres Strait Islander employees would have been 2.3% at June 2005, rather than 2.2%. 5 All data refers to ongoing employees only, unless specified otherwise. 6 Based on an estimate of 2% and a confidence interval of +/- 1%. 7 In 2004, we reported that 2.3% of ongoing employees at June 2004 were Aboriginals and Torres Strait Islanders. This proportion has been revised upwards, due to an improvement in the quality of historical data on Aboriginal and Torres Strait Islander status. Census Report | 7 Despite this decline, the representation of Aboriginal and Torres Strait Islander people in the APS still compares favourably with that in the broader Australian workforce, in which 1.9% of all Australians aged 15 to 64 and 1.4% of the Australian labour force identified themselves as Aboriginal and Torres Strait Islander.8 Figure 2.1 shows the change in ongoing Aboriginal and Torres Strait Islander employee numbers and their proportion of total ongoing employees, from 1996 to 2005. It reveals that the proportional representation of Aboriginals and Torres Strait Islanders reached a high of 2.7% of all ongoing APS employees in 1998 and 1999. Since that time, there has been a steady decline in the representation of Aboriginals and Torres Strait Islanders among ongoing APS employees. The total number of Aboriginal and Torres Strait Islander employees has declined over the last 10 years, although numbers rose each year between 2001 and 2003, before falling for the past two years. Figure 2.1: Ongoing Aboriginal and Torres Strait Islander employees, 1996 to 2005 Source: APSED Aboriginal and Torres Strait Islander non-ongoing employee numbers also fell during 2004–05, from 301 to 274. At June 2005, 12.5% of ongoing Aboriginal and Torres Strait Islander employees were working part-time. This is similar to the APS average of 11.3%. The agencies with the largest increases in Aboriginal and Torres Strait Islander employees during the year to June 2005 were the then Department of Immigration and Multicultural and Indigenous Affairs (DIMIA) (156) and the Department of Employment and Workplace Relations (DEWR) (121). Aboriginal and Torres Strait Islander employees moved to both of these agencies during the year following machinery of government changes. Agencies in which Aboriginal and Torres Strait Islander employee numbers decreased were Centrelink (56 or 5.8%) and the Department of Defence (8 or 6.6%). Classification structures Aboriginal and Torres Strait Islander employees are generally more concentrated at lower classifications: 10.1% are at the APS 1–2 levels, compared with 5.2% for the APS overall. In contrast, only 0.7% of Aboriginal and Torres Strait Islander employees are in the Senior Executive Service (SES) compared with 1.6% for the APS. Almost half of all Aboriginal and Torres Strait Islander employees (46.5%) are at the APS 3–4 levels, compared with 35.9% for the APS. 8 ABS 2002, Census of Population and Housing 2001, ABS, Canberra. Respondents to the Aboriginal and Torres Strait Islander APS Employees Census Survey were slightly more likely to be at the APS 1–6 and trainee classifications than were the ongoing Aboriginal and Torres Strait Islander population on APSED (91% at the APS 6 level or below, compared to 89% of ongoing Aboriginal and Torres Strait Islander employees on APSED). Table 2.1: Ongoing representation of Aboriginal and Torres Strait Islander employees by classification group, 1996, 1999 and 2005 Source: APSED While Aboriginal and Torres Strait Islander employees remain concentrated at lower classifications, they are less concentrated in these classifications than they were in 1996. For example, in 1996 APS 1–2 employees accounted for 30.0% of all Aboriginal and Torres Strait Islander employment; by 1999, this figure had dropped to 19.4%, and by 2005 to only 10.1%. Aboriginal and Torres Strait Islander employees have increased their absolute numbers at the APS 5–6 levels, and among EL and SES employees. However, such increases have not been enough to compensate for the impact of the decreased use of APS 1–2 classifications across the APS on the employment of Aboriginal and Torres Strait Islander employees. The decreased use of APS 1–2 classifications is a key reason for the decline in overall numbers of Aboriginal and Torres Strait Islander employees in the APS. Representation of Aboriginal and Torres Strait Islander employees as a proportion of APS employees at this level was actually higher in 2005 (4.4%) than in 1996 (3.9%). However, reflecting the overall decline in numbers of APS 1–2 employees, the actual numbers of Aboriginal and Torres Strait Islander APS 1–2 employees has fallen from 995 to 280. There were some fluctuations over the period from 1996 to 2005 in representation at each level. However, at June 2005, Aboriginal and Torres Strait Islander representation, as a proportion of all APS employees at that level, had risen at the APS 1–2 and APS 5–6 levels and EL classifications, and fallen in the APS 3–4, trainee and graduate trainee classifications. The fall in proportional representation at the APS 3–4 levels has been due mainly to growth at these levels for the APS overall, although there has also been a fall in actual numbers (from 1411 to 1289). The proportional decline has been particularly strong in graduate trainee classifications, with representation as a proportion of relevant APS employees falling from 3.2% to 1.7% over the decade. Numbers in the SES have fluctuated throughout the period. Entry to the APS through traineeships, cadetships and graduate traineeships is a key part of the APS Employment and Capability Strategy for Aboriginal and Torres Strait Islander Employees. Since June 2005, 25 graduates have been placed in 19 agencies, and a further three placed in non-graduate positions as part of the service-wide Indigenous Graduate Programme, and 32 cadets have been placed in 12 agencies as part of the National Indigenous Cadetship Project (NICP). An entry level traineeship programme based on a pilot programme run in Canberra in 2005 is expected to commence in the second half of 2006. The increase in concentration of Aboriginal and Torres Strait Islander employees among APS 5–6 and EL employees is shown in Figure 2.2. In this graph, each number is weighted using the June 1996 total Aboriginal and Torres Strait Islander employee numbers as a base. Weighting eliminates the effects that the change in the overall number of Aboriginal and Torres Strait Islander employees has on representation. The index is given a value of 100 at June 1996, and rises and falls proportionally with the particular classification’s change in the weighted number over time. Due to the small number of Aboriginal and Torres Strait Islander SES employees, this group is not included in the graph. Figure 2.2: Change in the number of Aboriginal and Torres Strait Islander ongoing employees at selected classifications, weighted and indexed, 1996 to 2005 Source: APSED Career progression To examine whether there were any differences between the progression of Aboriginal and Torres Strait Islander employees and APS employees in general through the APS classification structure, a cohort analysis was undertaken of Aboriginal and Torres Strait Islander employees engaged at the APS 1–2 levels in the three years between 1995–96 and 1997–98. The analysis showed that of this group, Aboriginal and Torres Strait Islander employees were more likely to have left the APS. Of ongoing Aboriginal and Torres Strait Islander employees engaged at the APS 1–2 levels between 1995–96 and 1997–98, 39.2% were still employed in the APS at June 2005, compared to 49.8% for all employees, a difference of over 10 percentage points (high separation rates for Aboriginal and Torres Strait Islander employees are discussed further below). Of the employees in this cohort at June 2005, a lower proportion of Aboriginal and Torres Strait Islander employees have progressed to higher classifications than APS employees in general (see Figure 2.3). For example, 12.8% of all employees remain at the APS 1–2 levels, whereas the figure for Aboriginal and Torres Strait Islander employees is 20.2%. Aboriginal and Torres Strait Islander employees are also slightly more likely than employees overall to be currently at the APS 3–4 levels (53.5% compared to 46.5%). However, employees overall are more likely to have progressed to the APS 5–6 levels (32.2% compared to 22.8% of Aboriginal and Torres Strait Islander employees). Of those who remained in the APS at June 2005, 8.5% of all employees had progressed to an EL classification—for Aboriginal and Torres Strait Islander employees the proportion was only 3.5%. Figure 2.3: 1995 to 1998 APS 1–2 ongoing engagement cohort: those retained in the APS by classification group at June 2005 Source: APSED Representation of men and women The Aboriginal and Torres Strait Islander APS population is much more highly feminised than the APS population overall. Almost two-thirds of Aboriginal and Torres Strait Islander employees are women; during 2004–05, women’s representation increased from 64.2% to 64.7%. For the APS overall, women’s representation increased from 53.1% to 54.2%. Respondents to the Aboriginal and Torres Strait Islander employee survey were slightly more likely than the Aboriginal and Torres Strait Islander ongoing population to be women (67%). Figure 2.4 shows the number of male and female Aboriginal and Torres Strait Islander employees for the past 10 years. Figure 2.4: Ongoing Aboriginal and Torres Strait Islander employees by sex, 1996 to 2005 Source: APSED Figure 2.5 shows the representation of both Aboriginal and Torres Strait Islander women, and women in the APS generally, by classification. It reveals that, as for all women, Aboriginal and Torres Strait Islander women are more concentrated in lower classifications. However, it also indicates that their representation at all levels, except the APS 2 level, is slightly higher than that for women overall. Figure 2.5: Representation of women by classification: ongoing Aboriginal and Torres Strait Islander Source: APSED As is the case for the APS overall, while part-time employment has been increasing for both men and women, women are still much more likely to work part-time, with 16.9% of Aboriginal and Torres Strait Islander women employed part-time at June 2005 compared with 4.5% of Aboriginal and Torres Strait Islander men (see Figure 2.6). Nine per cent of respondents to the census survey worked on a part-time basis. Figure 2.6: Proportion of ongoing Aboriginal and Torres Strait Islander employees working part-time by sex, 1996 to 2005 Source: APSED During 2004–05, the proportion of Aboriginals and Torres Strait Islanders working part-time rose considerably, up by 2.7 percentage points. Women accounted for most of this increase. The comparable APS increase was 1.1 percentage points. Age profile Figure 2.7 indicates that, in general, Aboriginal and Torres Strait Islander employees have a younger age profile than the APS overall, with a higher proportion aged under 25, and fewer in the 40 and over age group; 42.1% of Aboriginal and Torres Strait Islander employees were aged 40 and over compared with 56.7% of the total APS. Aboriginal and Torres Strait Islander employees are younger than the APS average for all classifications, except trainees (including graduate trainees), where both groups have similar age profiles. Figure 2.7: Age profile of ongoing Aboriginal and Torres Strait Islander employees and total APS, 2005 Source: APSED Respondents to the Aboriginal and Torres Strait Islander APS Employees Census Survey had a younger age profile than the total ongoing Aboriginal and Torres Strait Islander population, with 39% of respondents under 35. Table 2.2 shows the proportion of Aboriginal and Torres Strait Islander employees in 10 year age groups, at June 1996, 1999, 2002 and 2005. Over the decade, the largest increase has been in the 45 to 54 age group, which increased by 9.4 percentage points. Despite the younger age profile than the APS overall, the 55 and over age group has grown steadily over the past decade, particularly in the past few years, rising to 5.3% of all ongoing Aboriginal and Torres Strait Islander employees at June 2005. Table 2.2: Ongoing Aboriginal and Torres Strait Islander employees—proportion by age, 1996, 1999, 2002 and 2005 Source: APSED Representation of young people amongst Aboriginal and Torres Strait Islander employees has fallen dramatically over the decade: from 18.1% in 1996 to 6.8% in 2005. This trend is shown in Figure 2.8. Most of the decline has been in the 20 to 24 age group. For the under 20 age group, the number of Aboriginal and Torres Strait Islander employees is much smaller, and there has been little change in their representation over the decade. For the APS overall, the representation of young people has fallen from 6.3% to 4.0% over the decade. Figure 2.8: Ongoing Aboriginal and Torres Strait Islander employees—representation of young people, 1996 to 2005 Source: APSED The median age of Aboriginal and Torres Strait Islander employees has risen from 32 to 37 over the decade. Comparison for the APS overall is a rise from 39 to 42. The incidence of part-time work among Aboriginals and Torres Strait Islanders in the APS also varies by age (see Figure 2.9). Part-time work for Aboriginals and Torres Strait Islanders is highest in the 25 to 39 age group, with 15.2% of ongoing Aboriginal and Torres Strait Islander employees in this age group working part-time. The proportion is higher for women than for men in all age groups. Figure 2.9: Proportion of ongoing Aboriginal and Torres Strait Islander employees working part-time by age group and sex, June 2005 Source: APSED Engagements and separations The decline in total employment of Aboriginal and Torres Strait Islander employees in the APS is affected by trends in engagements of new employees to the APS, and by separations of employees from the APS. Engagements As a proportion of total engagements, Aboriginal and Torres Strait Islander representation has generally fallen over the past 10 years, despite a rise in 2003–04 when Indigenous employees accounted for 3.0% of all engagements. During 2004–05, Aboriginals and Torres Strait Islanders accounted for only 2.3% of engagements. Both these percentages (for 2003–04 and 2004–05) are much lower than they were 10 years ago (4.3% in 1995–96). The number of Aboriginal and Torres Strait Islander employees engaged in the APS during 2004–05 was 261. This was a decline of 6.8% from the number engaged during 2003–04. In contrast, total engagements in the APS overall rose by 22.6%. During 2004–05, Aboriginal Hostels Limited (AHL) (110) accounted for 42.1% of all ongoing Aboriginal and Torres Strait Islander engagements. Centrelink (36), the Department of Education, Science and Training (DEST) (17), DIMIA (14) and DEWR (10) were the other main recruiting agencies. Figure 2.10 reveals the proportion of engagements of ongoing Aboriginal and Torres Strait Islander employees by classification for the past 10 years. The long-term fall in engagements at the APS 1–2 levels has slowed, and indeed reversed strongly in the past two years. This group’s representation accounted for almost half of all Aboriginal and Torres Strait Islander engagements during 2004–05—the first year since 1996–97 in which the number of APS 1–2 Aboriginal and Torres Strait Islander engagements outnumbered APS 3–4 engagements. Engagements to graduate and trainee classifications have fallen, from 29.1% of all Aboriginal and Torres Strait Islander engagements in 1995–96 to only 8.0% in 2004–05, and in absolute terms from 101 to 21 over the period. Engagements to higher classifications have generally remained steady. Figure 2.10: Ongoing Aboriginal and Torres Strait Islander engagements by classification group, 1995–96 to 2004–05 Source: APSED In percentage terms, trainee programmes have traditionally represented an important source of engagements for Indigenous employees, as shown in Figure 2.11. The use of traineeships and graduate trainee programmes to recruit Aboriginal and Torres Strait Islander Australians has varied over time, though Aboriginal and Torres Strait Islander employees remain more highly represented in traineeships than in graduate trainee programmes (1.7% of graduate trainees at June 2005 were Aboriginals and Torres Strait Islanders compared to 10.3% of other trainees). Overall, the number of both graduate and other trainees rose substantially during 2004–05. While Aboriginal and Torres Strait Islander graduate trainees maintained their representation in the increased intake, Aboriginal and Torres Strait Islander representation fell for other trainees (down from 16.2% in 2004). Figure 2.11: Representation of ongoing Aboriginal and Torres Strait Islander employees in trainee classifications, 1996 to 2005 Source: APSED Figure 2.12 shows ongoing Aboriginal and Torres Strait Islander engagements by age group from 1995–96 to 2004–05. Engagements in the under 25 age group have fallen steadily in proportional terms over the decade. Strongest growth has been in the 45 and over age group. Figure 2.12: Ongoing Aboriginal and Torres Strait Islander engagements by age group, 1995–96 to 2004–05 Source: APSED Separations Aboriginal and Torres Strait Islander separations from the APS can be looked at in two ways—either as a proportion of all Aboriginal and Torres Strait Islander employees, or as a proportion of total separations from the APS. Using the first method, 15.3% of all ongoing Aboriginal and Torres Strait Islander employees separated during 2004–05. During the year, 48 ongoing Aboriginal and Torres Strait Islander employees were transferred out of coverage of the Public Service Act 1999 (the Act). Excluding these employees, the separation rate was 13.6%. The comparable separation rate for the APS overall was 8.5%. Separations of Aboriginal and Torres Strait Islander employees are considerably higher, both in proportional and absolute terms, than they were 10 years ago. The absolute decline in the number of Aboriginal and Torres Strait Islander employees this year resulted from both the decline in engagements and the increase in separations. Table 2.3 looks at Aboriginal and Torres Strait Islander separations using the second method described above. As a proportion of all ongoing separations, while still over-represented, Aboriginal and Torres Strait Islander separations fell this year, from 4.9% to 4.2% of all separations. The number of Aboriginal and Torres Strait Islander separations actually rose, from 356 to 437, but the increase was proportionally less than for the APS overall. Source: APSED Figure 2.13 indicates ongoing engagements and separations as a proportion of all ongoing Aboriginal and Torres Strait Islander employees for the past 10 years. The sharp increase in the separation rate, and the fall in the engagement rate, during the past two years reflects the continuing decline in Aboriginal and Torres Strait Islander employment in the APS. In contrast, for the APS overall, the engagement rate has been higher than the separation rate for the past six years. Figure 2.13: Ongoing Aboriginal and Torres Strait Islander engagements and separations as a proportion of ongoing Aboriginal and Torres Strait Islander employees, 1995–96 to 2004–05 Source: APSED Resignations still accounted for the majority of separations of Aboriginal and Torres Strait Islander employees (56.5%); however, there was an increase in retrenchments in the last two years (see Figure 2.14). Chapter 2 Figure 2.14: Ongoing Aboriginal and Torres Strait Islander separations, 1995–96 to 2004–05 Source: APSED Women represented 57.9% of Aboriginal and Torres Strait Islander separations during 2004–05, which is somewhat lower than their overall representation of 64.7%. Figure 2.15 compares the age profile of Aboriginal and Torres Strait Islander engagements and separations during 2004–05 with the age profile of Aboriginal and Torres Strait Islander APS employees at June 2005. Overall, the age profile for engagements and separations is similar to that for ongoing Aboriginal and Torres Strait Islander employees, except for a peak in engagements in the 20 to 24 age group. Figure 2.15: Age profile of ongoing Aboriginal and Torres Strait Islander engagements and separations, 2004–05 Source: APSED Figure 2.16 compares the length of service in the APS by Aboriginal and Torres Strait Islander status, for those employees who separated during 2004–05. It shows the proportion of separations that occurred at different lengths of service for both Aboriginal and Torres Strait Islander and other employees. Results have not changed substantially for the past three years—Aboriginal and Torres Strait Islander employees are much more likely to have considerably shorter service before leaving the APS. During 2004–05, 44.4% of Aboriginal and Torres Strait Islander employees who separated had less than five years of service, compared with 31.6% of other employees. Figure 2.16: Ongoing separations by Aboriginal and Torres Strait Islander status and length of service, 2004–05 Source: APSED Other features of Aboriginal and Torres Strait Islander employment APSED provides other information about the characteristics of Aboriginal and Torres Strait Islander employees in the APS. Length of service At June 2005, the median length of service for ongoing Aboriginal and Torres Strait Islander employees was nine years, the same as for the APS overall. Aboriginal and Torres Strait Islander men have a median length of service of 10 years (11 for the APS), compared with eight for women (APS average of seven). Fifty-eight per cent of respondents to the census survey had lengths of service of 10 years or less. Figure 2.17 shows the profile of length of service for Aboriginal and Torres Strait Islander employees over the 10 years to June 2005. As a proportion of total ongoing Aboriginal and Torres Strait Islander employees, the number of those with fewer than five years of service has fallen from almost half (46.9%) in 1996 to less than a third at June 2005 (31.3%). This fall reflects the decrease in engagements of Aboriginal and Torres Strait Islander employees over this period. Chapter 2 Census Report | 21 Figure 2.17: Ongoing Aboriginal and Torres Strait Islander employees—length of service, 1996 to 2005 Source: APSED Location Aboriginal and Torres Strait Islander employees are less concentrated in the ACT than is the APS overall: around one-fifth (22.6%) of ongoing Aboriginal and Torres Strait Islander employees are located in the ACT, compared with the APS average of 34.9%. This is similar to the results from the census survey. More than half of the respondents to the census survey (57%) were located in capital cities, while 9% were in metropolitan areas, 22% in rural areas and 13% in remote areas.9 Respondents were more likely to be located in the ACT or in capital cities if they: were aged under 25 (40% located in the ACT and 69% in capital cities); those aged over 54 were more likely to be located in remote areas (23%)10 were EL employees (55% located in the ACT and 86% in capital cities); APS 1–2 employees were more likely to be employed in remote areas (23%).11 The results from the census survey also provide information about the size of agencies in which Aboriginals and Torres Strait Islanders work. The majority (82%) of respondents worked in large agencies (over 1000 employees), followed by 16% in medium agencies (251–1000 employees) and 3% in small agencies (250 employees or less). Nevertheless, Aboriginal and Torres Strait Islander employees were more likely than APS employees generally to work in smaller agencies, with most of the difference related to medium agencies. Eighty-eight per cent of all APS employees work in large agencies, compared to 10% in medium agencies and 2% in small agencies.12 Almost a third of respondents from small agencies were located in the ACT (32%) and close to half were in remote locations (44%). 9 These categories are derived from the Rural, Remote and Metropolitan Area (RRMA) classification system. Information on this can be found in the appendix to this report.10 For the purpose of analysis, respondents to the census survey were divided into five age groups: < 25 years, 25–34 years, 35–44 years, 45–54 years and >54 years. 11 In analysing survey results by classification, results for SES employees have been excluded because of the small number of respondents in this category. 22 | Chapter 2 | Aboriginal and Torres Strait Islander employee profile Mobility within the APS13 Figure 2.18 shows the mobility rate between agencies for Aboriginal and Torres Strait Islander employees for the past 10 years. There has been considerable variation over the decade, with a downward trend in the first half of the decade, followed by considerable growth in mobility since 1999–00. Overall, there has been only a slight decline between 1995–96 and 2004–05. This trend is quite dissimilar to the APS overall, which has seen an overall decline, with some slight increase in recent years. During 2004–05, the total mobility rate for Aboriginal and Torres Strait Islander employees was 3.2%. This compares with 2.0% for the APS overall. Figure 2.18: Ongoing Aboriginal and Torres Strait Islander employees—promotion and transfer rates between agencies, 1995–96 to 2004–05 Source: APSED Educational qualifications Aboriginal and Torres Strait Islander employees are much less likely to have graduate qualifications than are other employees—at June 2005, only one-quarter (25.5%) of Indigenous employees had a bachelor’s degree or higher, compared with the APS average of 49.9%.14 Unlike APS employees generally, APSED figures indicate no trend to increasing levels of educational qualifications for Aboriginal and Torres Strait Islander employees. For engagements in 2004–05, only 22.7% of Aboriginals and Torres Strait Islanders had graduate qualifications, compared with 66.7% of total APS engagements. The census survey asked respondents to indicate their highest completed educational qualification. Around one-fifth of respondents (20%) reported that they had tertiary qualifications (a bachelor’s degree or higher), consistent with the information obtained in APSED. 12 APS employee results come from the 2005 employee survey and were reported in the State of the Service Report 2004–05 and/or the State of the Service Employee Survey Results 2004–05. 13 Mobility rate is calculated as the number of promotions and transfers during a financial year, divided by the average of the number of employees at the beginning and end of the period. Movements due to machinery of government changes are not included. 14 The method used to calculate the proportion of employees with graduate or tertiary qualifications includes those with qualifications at bachelor’s degree level and above. It excludes from the denominator those for whom no data was provided by agencies, and those who chose not to provide details of their highest educational qualification. Chapter 2 Census Report | 23 Table 2.4 provides a more detailed breakdown of the educational qualifications of the respondents to the census survey. Source: Aboriginal and Torres Strait Islander APS Employees Census Survey In addition to those with tertiary qualifications, 30% of respondents had a diploma or certificate. Twenty-eight per cent had Year 11 or 12 qualifications, and 22% had Year 10 or less. Respondents were more likely to have tertiary qualifications if they: were aged 54 or under (levels of tertiary qualifications for younger age groups ranged from 21% to 23%, compared to 12% for those aged over 54, but there was no trend to increasing levels of tertiary qualifications among younger employees) worked at higher classifications (APS 1–2: 9%; APS 3–4: 13%; APS 5–6: 30%; EL: 52%) worked in the ACT (42% compared to 16% for those outside the ACT) had shorter periods of service (less than one year (32%) and one to five years (25%)). While there was no trend to increasing use of tertiary qualifications between those aged under 25 and in the 45 to 54 age group, younger employees were more likely to have diplomas or certificates (42%, decreasing to 23% for those aged 45 to 54). Those aged 44 and under were also more likely than older employees to have completed Year 11 or 12 (between 32% and 33% of those aged 44 and under, 16% of those aged 45 to 54, and 7% of those aged 55 and over). Key findings There is a clear trend in the APS of declining levels of Aboriginal and Torres Strait Islander employment. This trend reflects both a decline in engagements to the APS and an increase in separations from the APS, with Aboriginals and Torres Strait Islanders on average leaving the APS with much shorter lengths of service than other employees. The trend to increased separations is particularly troubling as it represents a loss to the APS of a considerable amount of skills and experience. Some potential reasons for high separation rates were explored through the Aboriginal and Torres Strait Islander employee survey, and are discussed in more detail in Chapter 5. While trends for male and female employment over the last 10 years have been similar among Aboriginal and Torres Strait Islander employees, male Aboriginals and Torres Strait Islanders have been continually under-represented in the APS compared to women throughout the period, and relatively under-represented compared to men overall. There appears to be particular potential to increase the employment of male Aboriginals and Torres Strait Islanders within the APS. Similarly, Aboriginal and Torres Strait Islander employees have had a younger age profile than other employees throughout the period. However, unlike trends in relation to gender, there has been an increasing ageing of the Aboriginal and Torres Strait Islander APS workforce over the past decade, with the representation of young people amongst Aboriginal and Torres Strait Islander employees falling dramatically, and at a rate higher than for the APS overall. This is reflected in a steady fall of engagements in the under 25 age group. Aboriginal and Torres Strait Islander employees continue to have a lower classification profile than do other APS employees and there is some evidence that they progress through APS classifications at a slower rate than other employees. While their proportional representation in higher classifications, particularly at the APS 5–6 and EL classifications, has increased, their overall representation appears to have been affected by the dramatic decline in the use of the APS 1–2 levels in the APS. In this regard, the reversal of the trend to decreased engagements of Aboriginals and Torres Strait Islanders at the APS 1–2 levels over the last two years may be significant, if it is sustained. While one reason for the continued lower classification profile of Aboriginal and Torres Strait Islander employees could be the greater likelihood of their being located outside Canberra and other capital cities, it is probable that a key reason is their lower levels of educational qualifications compared to those of other employees. Data from APSED confirms a substantial difference in the level of graduate qualifications held by Aboriginal and Torres Strait Islander and other APS employees, and, while the level of diplomas and certificates appears to be increasing among Aboriginal and Torres Strait Islander employees, there is no trend towards an increasing number of employees obtaining bachelor’s degrees or higher. This is likely to become an issue of increasing importance as the emphasis on a graduate APS workforce grows. The combined effect of the dramatic decrease in numbers at the APS 1–2 classifications, in conjunction with a large and growing gap in education levels between Aboriginal and Torres Strait Islander employees and non-Indigenous employees, is likely to explain much of the overall decline in Aboriginal and Torres Strait Islander employment. While traineeships and graduate traineeships have traditionally been a significant source of engagements to the APS for Aboriginal and Torres Strait Islander employees, engagements to these classifications have fallen significantly over the past decade. It may be possible for agencies to make greater use of these classifications to engage Aboriginals and Torres Strait Islanders to the APS, particularly in relation to graduate trainee classifications. Chapter 2 Census Report | 25 Chapter 3: Aboriginals and Torres Strait Islanders working in the APS Chapter 2 looked at data available from the Australian Public Service Employment Database (APSED) on the employment profile of Aboriginal and Torres Strait Islander employees. This chapter supplements the information available on APSED. It uses data from the Aboriginal and Torres Strait Islander employee survey to examine the type of positions occupied by Aboriginal and Torres Strait Islander employees in the APS and the extent to which Aboriginal and Torres Strait Islander employees perform work related to the Indigenous community. It looks in particular at the extent to which Aboriginal and Torres Strait Islander employees occupy identified positions, where some of the selection criteria for the position are related to an understanding of Aboriginal or Torres Strait Islander culture. It also looks at Aboriginals and Torres Strait Islanders’ views about working in the APS, including their pride in their work and their identification with their agency and with the APS as a whole. Where are Aboriginal and Torres Strait Islander employees working? The survey asked employees to identify the type of work that they perform (see Table 3.1). Just over half of employees indicated that they were involved in work related solely to service delivery. An additional third of respondents indicated that they worked in a combination of policy development, programme implementation and/or service delivery roles. Only small proportions of respondents indicated that they worked solely in the areas of programme implementation or policy development. Chapter 3 Source: Aboriginal and Torres Strait Islander APS Employees Census Survey A number of factors were associated with the type of work respondents were engaged in, namely: Respondents more likely to have a sole focus on service delivery were women, those in medium or large agencies, those at the APS 3–4 levels, respondents outside the ACT, those in metropolitan and rural localities, and those with lower-level educational qualifications. Also more likely to have a sole focus on service delivery were respondents not in identified positions or those whose work did not specifically relate to the Aboriginal and Torres Strait Islander community (61% and 69% respectively—compared to 50% and 45% respectively of respondents in these types of roles). Census Report | 27 Respondents more likely to be working solely in policy development were those with less than one year of service, those with tertiary qualifications, those located in the ACT, and EL employees.15 Respondents more likely to be working solely in programme implementation were those at the EL and APS 5–6 classifications, those with tertiary qualifications, and those working in the ACT. Respondents more likely to be working in a combined role of policy development, programme implementation, and/or service delivery were men, those working in small agencies, and those working in the ACT, remote localities and capital cities. Respondents at the EL 1 and EL 2 classifications, with tertiary qualifications, in identified positions, working with the Indigenous community and respondents with more than 20 years of service were also more likely to be working in a combined role. In addition to the type of work they performed, respondents were asked if the work they undertake in their job is specifically related to the Aboriginal and Torres Strait Islander community. Half of the respondents agreed. Respondents more likely to be undertaking work specifically related to the Aboriginal and Torres Strait Islander community were: • older respondents (those aged 45 to 54 and 55 and over)—58% and 78% respectively, compared to between 45% and 46% for other age groups employees from small (71%) and medium (83%) agencies, compared to 43% from large agencies employees from remote areas (72%), compared to 45% of employees from capital cities and 33% from metropolitan areas. Employees at the APS 3–4 levels were less likely to undertake work specifically related to the Aboriginal and Torres Strait Islander community than employees at other classifications (39% compared to almost 60% for employees at other classifications). Service delivery to the public In addition to questions about what best described the type of work they do, whether policy development, programme implementation or service delivery, respondents were asked specifically about whether their work directly involves delivering services to the general public or managing employees delivering such services; 78% of respondents indicated that this was the case.16 This is substantially higher than the result for APS employees who are directly involved in delivering services to the general public or who manage employees delivering such services (55%).17 Of respondents in the census survey who reported that their work directly involved delivering services to the public or managing employees delivering such services, 46% reported that they or their staff delivered services solely to the Aboriginal and Torres Strait Islander community. Of those delivering services solely to the Aboriginal and Torres Strait Islander community, respondents were more likely to come from medium agencies (68%), be aged 45 and over (55%), and be at the APS 1–2 (57%), APS 5–6 (55%) and EL (59%) classifications. They were also more likely to work in remote localities (59%). While, as reported above, respondents working in identified positions or on work related to the Aboriginal and Torres Strait Islander community were less likely to describe their role as focused solely on service delivery, where they were directly involved in delivering services to the general public, they were more likely to deliver services solely to the Aboriginal and Torres Strait Islander community (63% and 75% respectively). 15 In analysing survey results by classification, results for the Senior Executive Service (SES) have been excluded because of the small number of respondents in this category. 16 Differences in the responses to these questions may reflect the fact that respondents involved in delivering services to the public can be involved in a combination of service delivery and other roles.17 APS employee results come from the 2005 employee survey and were reported in the State of the Service Report 2004–05 and/or the State of the Service Employee Survey Results 2004–05. 28 | Chapter 3 | Aboriginals and Torres Strait Islanders working in the APS Even where respondents worked in general service delivery positions, they had a high level of contact with the Aboriginal and Torres Strait Islander community. Of all respondents who had delivered services to the general public (both solely to the Aboriginal and Torres Strait Islander community and more broadly), 79% had dealt directly with Indigenous people in the last 12 months, 66% had dealt directly with Indigenous organisations, 65% had dealt with groups and/or individuals working with Indigenous communities and over half had dealt with Indigenous communities (see Figure 3.1). Figure 3.1: Proportion of respondents who had direct dealings with different groups in the last 12 months Source: Aboriginal and Torres Strait Islander APS Employees Census Survey The survey also asked all respondents whether they spoke an Aboriginal and Torres Strait Islander language (or languages) in the course of their work to assist with the business of their agency and whether they received an allowance for using this language (or these languages). Only a small proportion (7%) of respondents indicated that they spoke an Aboriginal and Torres Strait Islander language in the course of their work. Of these, a quarter received an allowance for the use of this language. Contribution of work to the Indigenous community All employees reporting that they were involved in the delivery of services to the general public or managed employees delivering such services, were asked whether, as part of their work, they feel that they have been able to contribute positively to the improvement of outcomes for Indigenous Australians. Responses to this question were generally positive. Overall, 65% of relevant respondents reported that as part of their work they feel they have been able to contribute positively to the improvement of outcomes for Indigenous Australians. Only 19% disagreed, with a further 16% unsure. Relevant respondents in identified positions or in work related to the Aboriginal and Torres Strait Islander community were more likely to report that they feel they have been able to contribute positively to the improvement of outcomes for Indigenous Australians. Relevant respondents in small agencies were also more likely to report that they feel like they have been able to contribute positively to the improvement of outcomes for Indigenous Australians (86% compared to 80% in medium agencies and 61% in large agencies). Census Report | 29 Chapter 3 Identified positions Identified positions have specific selection criteria that require applicants to demonstrate knowledge and understanding of Aboriginal and Torres Strait Islander societies and cultures, and an ability to communicate sensitively and effectively with Aboriginal and Torres Strait Islander people. These positions are open to all Australians and have to be won on merit. When introduced in 1973 identified positions were seen as a mechanism that would assist Aboriginals and Torres Strait Islanders to gain employment in the APS. In 1979, 630 positions had been identified; however, only 10% to 20% of these positions were filled by Aboriginal and Torres Strait Islander employees.18 By 1986, the number of positions had increased to 1420 with about 30% of them filled by Aboriginal and Torres Strait Islander employees, and 30% vacant.19 The total number of current identified positions is unknown. The Aboriginal and Torres Strait Islander Census Survey found that a substantial proportion (43%) of respondents indicated that they were employed in an identified position. The profile of those in identified positions was somewhat different from that of other employees. While their classification level on entry was only slightly different to that of other employees, they were more likely to be at the APS 1–2 levels and less likely to be in APS 3–4 positions than respondents not in identified positions. They also had lower levels of tertiary qualifications than employees in non-identified positions (16% compared to 26%). Respondents in identified positions had a slightly older age profile than those in non-identified positions. They were more likely to be in older age groups (45 to 54, 27% compared to 18%, and over 54, 8% compared to 3%). Conversely, they were less likely to be in age groups under 45 (under 25, 6% compared to 9%; 25 to 34, 28% compared to 34%; and 35 to 44, 31% compared to 37%). However, there were only small differences in length of service. The majority of respondents in identified positions were located outside the ACT (86% compared to 76% of those not in identified positions) and, while 50% were located in capital cities, they were more likely to be located outside capital cities than other employees (19% were located in remote localities compared to 7% of employees not in identified positions). While they were less likely to be solely in service delivery roles than other employees, half still described their role in this way, with a higher proportion than other employees (41%) indicating that their role was a combination of policy development, programme implementation and/or service delivery. Seventy-nine per cent undertook work specifically related to the Aboriginal and Torres Strait Islander community (compared to 25% of those not in identified positions). Respondents in identified positions were more likely than other employees to have been working with Indigenous people and/or communities and/or Indigenous business before joining the APS (53% compared to 36% for those not in identified positions). Respondents in identified positions were also more likely to consider themselves APS, rather than agency, employees (54% compared to 46%) and more likely to have left the APS and then rejoined within the last five years (22% compared to 17%). Of those who had left and rejoined the APS in the last five years, employees in identified positions were more likely to indicate that the reason they rejoined was to make a difference for Indigenous Australians (41% compared to 22% of relevant employees not in identified positions). There were only small differences in intentions to leave the APS between those in and those not in identified positions. The following are a sample of comments made by respondents relating to their views on the delivery of service to the Indigenous community. 18 Radford, Gail 1985, ‘Employment of Aboriginals in the Australian Public Service’ (Speech delivered at RAIPA luncheon, Darwin, 14 May). 19 Public Service Board 1986, Statistical Bulletin—Employment of Aboriginals in the Australian Public Service, Commonwealth of Australia, Canberra. 30 | Chapter 3 | Aboriginals and Torres Strait Islanders working in the APS The ability to contribute positively to improved outcomes for Indigenous Australians is a primary motivator for me in my career. All program areas should include Indigenous staff to ensure effective service delivery to Indigenous customers regardless of the program as all programs delivered by or on behalf of government is accessible by all Australians and including Indigenous Australians. I feel that the knowledge and experience of the staff I work with are not being utilised or recognised as credible, when it comes to considering improved outcomes for Indigenous Australians. Indigenous Staff values and experience are not utilised by management. We are employed for having the knowledge but need to leave it at the door when we come to work. I believe we will get to a point where we will have a positive impact in improving how my Department and others do business with all Aboriginal and Torres Strait Islander groups/associations/organisations/individuals. In the current environment and changes to my role, I find it more difficult to see that my work is contributing positively to the improvement of outcomes for Aboriginal and Torres Strait Islander people. Employee pride and identity The survey sought respondents’ views about their levels of pride in working for both their current agency and the APS more broadly. Responses to these questions were generally positive. Almost two-thirds of respondents stated that they were proud to work in their current agency. Twenty-four per cent of respondents neither agreed nor disagreed, and only 10% disagreed. An even larger proportion (74%) of respondents indicated that they were proud to work in the APS. Twenty-one per cent of respondents neither agreed nor disagreed with this statement and only 4% disagreed that they were proud to work in the APS. Results to these questions from the Aboriginal and Torres Strait Islander employee survey are very similar to results for APS employees overall from the 2005 State of the Service employee survey. This survey found that 66% of APS employees were proud to work in their current agency and 71% were proud to work in the APS.20 However, the results are lower than those reported in the State of the Service Report 2004–05 from Aboriginal and Torres Strait Islander respondents to the State of the Service 2005 employee survey, which found that 81% of this group were proud to work in their current agency and 84% were proud to work in the APS. Results from the census survey are generally more reliable, as the State of the Service employee survey results are based on sample statistics and subject to sampling error. A number of factors were related to respondents’ level of pride in their work in their current agency and in the APS more broadly: Classification has an impact on levels of pride both in the agency and the APS, although pride is common at both higher and lower classifications. Figure 3.2 shows that pride in the respondents’ work in their current agency is most common at the APS 1–2 and EL classifications. In contrast, pride in the APS is highest at the APS 1–2 and 3–4 levels. Respondents from medium agencies were more likely to express pride in their agency than other respondents (82% compared to 61% in large agencies), but there was little variation in levels of pride in the APS by agency size. Respondents from remote areas were more likely to express pride in their agency (73%) and pride in the Chapter 3 20 APS employee results come from the 2005 State of the Service employee survey and were reported in the State of the Service Report 2004–05 and/or the State of the Service Employee Survey Results 2004–05. Census Report | 31 APS (81%) than respondents from other localities. Respondents from metropolitan areas had the lowest results for pride in their agency (59%) and respondents from capital cities had the lowest results for pride in the APS (71%). Length of service of respondents also shows some interesting variations. Those with less than one year of service are very proud to work in both their agency (83%) and the APS (82%). Conversely, those with more than 20 years of service are less positive in both pride in agency (61%) and pride in the APS (68%). The group of respondents with 11 to 15 years of service had the lowest results for pride in their current agency (59%), but comparatively much more positive results for pride in the APS (72%). Respondents who indicated that they were proud to work in their current agency and/or the APS also reported being more satisfied with the overall effectiveness of their supervisor at managing people and more satisfied with their input into decision-making, and were more likely to indicate that they did not intend to leave the APS in the next three years. Figure 3.2: Levels of pride in both agency and APS by classification group Source: Aboriginal and Torres Strait Islander APS Employees Census Survey The survey also asked respondents if they primarily consider themselves to be APS employees or employees of their agency. Results were evenly split among respondents. Fifty per cent of respondents considered themselves primarily to be an APS employee. The other half of respondents considered themselves to be primarily an employee of their agency. Aboriginal and Torres Strait Islander employees were more likely to consider themselves to be primarily APS employees than were APS employees overall (40% of APS employees primarily consider themselves to be an APS employee and 60% consider themselves to be an employee of their agency).21 However, identification with the APS in the census survey was not as high as the results for Aboriginal and Torres Strait Islander employee respondents to the 2005 State of the Service employee survey, where 70% of Aboriginal and Torres Strait Islander respondents reported that they primarily considered themselves to be an APS employee. As noted above, results from the census survey are likely to be more reliable. 21 APS employee results come from the 2005 State of the Service employee survey and were reported in the State of the Service Report 2004–05 and/or the State of the Service Employee Survey Results 2004–05. 32 | Chapter 3 | Aboriginals and Torres Strait Islanders working in the APS Women, respondents working in identified positions, those working with the Aboriginal and Torres Strait Islander community, and respondents in medium and large agencies were all more likely to consider themselves to be primarily APS employees than were other respondents. The following are a sample of comments made by respondents relating to their views about their work in the APS. I have enjoyed a varied and rewarding career in the APS. I love my job—I get extreme satisfaction from it and would recommend it as an employer of choice. The work conditions that I currently have are the best that I have ever had throughout my entire life. Working for the APS is about as good a deal as any Indigenous person could hope for. Good money and good working conditions. I feel that the APS is very important work for the advancement of Indigenous people in government careers. I used to take great pride in working within the APS. I now feel undervalued and as though I am being driven from my employment. I am not proud to announce my employer as it bring(s) so much aggression from the public. APS undervalues the hard workers, no recognition, it’s always the staff [that] don’t do the work that get the recognition. I have regretted my decision to work for the APS. I have not progressed to a higher level, the reasons given is that I do not have enough experience as such I have deskilled since joining the APS. Working in the APS is quite robotic and uniform. There’s no room for creativity or self development of any artistic form. APS has allowed me to work and raise my family in the appropriate manner at the same time. The APS supports staff in gaining further skill, and is considerate of family, with flexible work conditions. We, as staff, are also encouraged to grow within the organisation. Key findings The Aboriginal and Torres Strait Islander employee survey provides a picture for the first time of the type of work in which Aboriginals and Torres Strait Islanders are engaged in the APS. The survey confirms the concentration of Aboriginals and Torres Strait Islanders in particular types of work within the APS, with results showing that almost half undertake work specifically related to the Aboriginal and Torres Strait Islander community and that, even where they work in general service delivery roles, they have high levels of contact with Indigenous communities and representatives. These results are reinforced by the significant proportion of Aboriginal and Torres Strait Islander employees working in identified positions. In many cases the employment of Aboriginal and Torres Strait Islander employees in these areas will reflect a sensible business decision to utilise the comparative advantage that Aboriginal and Torres Strait Islander employees bring to dealing with Indigenous communities. The results may also suggest, however, that the skills and capabilities of this group are not yet being used effectively in other areas of the APS. The fact that younger employees were slightly less likely to be undertaking work specifically related to the Aboriginal and Torres Strait Islander community and less likely to be employed in identified positions may suggest that some change has already occurred in this regard. Chapter 3 Census Report | 33 The results also suggest that Aboriginals and Torres Strait Islanders were more likely to be employed in areas of service delivery than were other APS employees. While a third of Aboriginal and Torres Strait Islander employees are employed in mixed roles, there seems to be much more potential to extend their involvement to programme implementation and policy development work. The association between level of educational qualification and likelihood of working in a service delivery role suggests that encouraging Aboriginal and Torres Strait Islander employees to gain higher qualifications will improve their chances of working in a broader range of areas. The generally positive views of Aboriginal and Torres Strait Islander employees about their work are encouraging and could help to shape programmes that encourage greater numbers of Indigenous Australians to consider the APS as a career. In particular, the findings that 65% of Aboriginal and Torres Strait Islander employees believe that they have been able to contribute positively to improving outcomes for Indigenous Australians, and three-quarters are proud to work in the APS, are very positive results. It may be that existing employees need to be encouraged to promote the benefits they experience from APS employment more widely to their communities. Chapter 4—Recruiting Aboriginals and Torres Strait Islanders to the APS Effective strategies for attracting and recruiting Aboriginal and Torres Strait Islander employees to the APS will be an important part of overall strategies to support Aboriginal and Torres Strait Islander representation. This chapter begins by examining existing Aboriginal and Torres Strait Islander employees’ pathways to employment in the APS. It looks at prior employment, classification on commencement with the APS, the way in which Aboriginals and Torres Strait Islanders were recruited to the APS, and whether they chose to relocate to take up an APS position. A better understanding of these aspects of current Aboriginal and Torres Strait Islander employees’ pathways to employment in the APS may help in developing more effective attraction and recruitment strategies in the future. The chapter also examines the views of Aboriginal and Torres Strait Islander employees about recruitment processes in the APS. It looks at a range of issues including views on how the APS might best increase Indigenous representation, confidence about applying for positions in the APS, preferences for targeted or mainstream approaches to recruitment, experience with participation on selection panels, and views about the extent to which merit is applied in recruitment and promotion decisions. Commencing in the APS A number of factors are likely to influence the capacity of Aboriginals and Torres Strait Islanders to enter the APS, including their education levels, their previous employment experiences, their interest in working in the APS, and the effectiveness of APS recruitment processes. The Aboriginal and Torres Strait Islander employee survey asked a number of questions in order to identify the profile of Indigenous employees being recruited to the APS, and the types of recruitment processes used by agencies. Immediately prior to joining the APS Respondents were asked about their immediate experiences prior to joining the APS. While diverse, the most common responses were: employed in the private sector (31%) student (21%) employed in the state or local government sectors (including universities) (17%) unemployed (looking for work) (12%) employed by an Indigenous community organisation (for example, a land council or health service) (11%). Less commonly, respondents were previously employed in the non-APS Commonwealth public sector22 (4%), not in the labour force (not looking for work) (4%), employed under the Commonwealth Development Employment Projects programme (3%), employed by a non-government organisation and/or charity (3%), or self-employed (2%). Chapter 4 22 For example, Australia Post, the Australian Defence Force and the Australian Government Solicitor. Census Report | 35 Experience prior to joining the APS was related to a number of different factors, including: Respondents at the APS 1–2 levels were more likely to have been unemployed prior to joining the APS (21% compared with 7% to 13% for other classifications) and respondents at the APS 5–6 and EL classifications were more likely to have been previously employed in state or local government (22% compared with 9% to 15% for other classifications). The majority of respondents under the age of 25 had been either students (44%) or private sector employees (29%) immediately prior to joining the APS. The proportion of respondents previously in private sector employment was similar across all age groups, but as respondents’ ages increased, so did the proportion that had been employed in state or local government. Those aged 45 or over were more likely to have been previously employed by an Indigenous community organisation than were younger respondents. A higher proportion of respondents located in the ACT (35%) were students before joining the APS than those located outside the ACT (18%). This may be linked to a higher intake of graduates and cadets in the ACT. Twenty-three per cent of employees in the ACT began work as a cadet and/or a graduate compared to 4% outside the ACT. Respondents from rural and remote areas were more likely to be employed in work related to the Indigenous community (around 16% each) and less likely to be students (around 13% each) than respondents in capital cities and metropolitan areas (both around 8% and 25% respectively). Respondents who currently undertake work in the APS related to the Aboriginal and Torres Strait Islander community were more likely to have been previously employed in Indigenous community organisations than those who were not performing this role (16% compared to 6%). Those not working with the Aboriginal and Torres Strait Islander community were more likely to have been employed in the private sector than those working with the Indigenous community (36% compared with 26%). Previous employment with the Aboriginal and Torres Strait Islander community Respondents were also asked if their previous role outside the APS had involved working with Aboriginal and Torres Strait Islander people and/or communities and/or Indigenous business. Previous experience in such roles was common, with 43% of respondents indicating that this had been the case. Respondents were more likely to have worked previously in roles involving working with Indigenous people, communities or businesses if they: were aged 35 or over worked in medium agencies (53% compared to 43% for small and 42% for medium agencies) were from rural and remote areas worked in identified positions or were working directly with Indigenous communities had fewer years of service (those with five years or less of service were more likely to have previously worked in Indigenous roles prior to joining the APS than those with 11 years or more of service). Classification level on joining the APS The survey asked respondents to indicate the classification level at which they were employed when they first joined the APS. Overall, the data confirmed that Aboriginal and Torres Strait Islander employees tend to join the APS at lower classification levels than other employees. Table 4.1 outlines the differing proportions of respondents that started at the respective classification levels. The majority of respondents commenced in the APS at the APS 1–2 (44%) or APS 3–4 (18%) levels or as a trainee and/or apprentice (18%). Source: Aboriginal and Torres Strait Islander APS Employees Census Survey These results compare with data from the Australian Public Service Employment Database (APSED), which shows that of all engagements to the APS over the last 15 years, 28% have been at the APS 1–2 levels, 34% at the APS 3–4 classifications and 18% at the APS 5–6 levels. The results highlight the importance of trainee positions for Aboriginal and Torres Strait Islander recruitment. Aboriginal and Torres Strait Islander employees were substantially more likely to be engaged as trainees, cadets or graduate trainees than APS employees generally over the last 15 years (26% compared to 11% for all APS employees).23 Classification level at commencement was related to a number of factors, namely: Younger respondents were more likely to indicate that they had commenced in the APS as trainees or apprentices or cadets than were older employees (29% of employees under 25 and 25% of employees aged 25 to 34 indicated that they had commenced as trainees or apprentices compared to between 5% and 15% in older age groups, while 23% of employees aged under 25 had commenced as cadets, compared to between 1% and 7% for other age groups). Fourteen per cent of Aboriginal and Torres Strait Islander employees located in the ACT began their APS careers as cadets, while only 3% of those employees located outside the ACT began in this manner. A larger proportion of those who do not currently undertake work relating to the Aboriginal and Torres Strait Islander community commenced work as trainees or apprentices compared to those who do currently undertake work relating to the Aboriginal and Torres Strait Islander community. Reflecting changes in the overall APS classification profile, those with shorter periods of service (10 years or less) were more likely to have commenced at the APS 3–4 levels than those with 11 years or more of service, and were less likely to have commenced at the APS 1–2 levels. Those with longer periods of service (11 years or more) were more likely to have begun work as a trainee or apprentice than those with 10 years or less of service. 23 Source: APSED. Census Report | 37 Employment category on joining the APS Respondents were asked whether they had joined the APS as ongoing or non-ongoing employees. Over two-thirds of respondents (71%) reported that they commenced in the APS as ongoing employees. Employees were less likely to have commenced as ongoing employees if they: were aged less than 25 (57% compared to between 67% and 82% for other age groups) (this may be related to the fact that younger employees were also more likely to commence as a trainee and/or apprentice than were older employees) were at the APS 1–2 levels (63% compared to 80% for EL employees) were from small agencies (47% compared to 69% for medium and 72% for large agencies) were from remote areas (63% compared to 73% from capital cities and 74% from metropolitan areas) had five years or less of service (65% compared to between 69% and 79% for those with longer periods of service) had lower-level educational qualifications (between 65% and 71% compared to 81% for those with tertiary qualifications). Processes used to recruit Aboriginal and Torres Strait Islander employees to the APS Aboriginal and Torres Strait Islander employees were asked to identify whether they had entered the APS through general recruitment processes, such as positions generally advertised in the Australian Public Service Gazette and newspapers, or whether they had come through Indigenous-specific recruitment processes which catered specifically for Aboriginals and Torres Strait Islanders. Indigenous-specific recruitment processes may include special employment measures or identified positions. The survey did not ask respondents to identify which type of Indigenous-specific recruitment process they had been recruited through. Special measures involve limiting a specified employment opportunity to Aboriginal and Torres Strait Islander applicants within the framework provided by Commonwealth discrimination legislation and the Public Service Act 1999 (the Act).24 Examples of such measures include the National Indigenous Cadetship Project (NICP), some traineeship or apprenticeship programmes, and the recent Indigenous Graduate programme run by the Australian Public Service Commission (the Commission). Identified positions, as outlined in Chapter 3, have specific selection criteria that require applicants to demonstrate knowledge and understanding of Aboriginal and Torres Strait Islander societies and cultures, and an ability to communicate sensitively and effectively with Aboriginal and Torres Strait Islander people. These positions are open to all Australians and have to be won on merit. The majority of respondents indicated that they were recruited through general recruitment processes (53%). However, a substantial number were recruited through Indigenous-specific recruitment processes (37%), while a further 6% indicated that they were recruited through ‘other’ avenues and 4% were not sure. Respondents were more likely to be recruited through general recruitment processes if they: • were aged 35 and above (between 55% and 60% of the older age groups had been recruited through general recruitment processes, compared to 50% for employees aged between 25 and 34 and 34% for those aged under 25); while data was not collected on the particular nature of Indigenous-specific recruitment processes, the lower rates of general recruitment processes for younger employees may reflect the fact that they were also more likely to have commenced in the APS as trainees and/or 24 Public Service Commissioner’s Directions 1999, 4.2, 4.3 and 4.6A. apprentices, cadets and/or graduates, some of which may be Indigenous-specific programmes were EL employees (71% compared to between 47% and 53% for other classifications) were from small agencies (62% compared to 55% for medium and 52% for large agencies) worked outside the ACT (55% compared to 41% for those within the ACT) were from rural (56%) and remote (60%) areas (compared to 50% for capital cities and 54% for metropolitan areas). The following comments provide some insight into the types of APS recruitment processes experienced by respondents to the survey. I was recruited to APS through APS Indigenous Exam. When I sat for this exam there were at least 50 other Indigenous persons who also sat for this exam. Due to this exam not being provided at this time, I feel VERY FEW Indigenous persons apply for APS positions as they feel they will not get a ‘fair chance’. I was asked to join temporarily then became full-time permanent following successful trial periods. I received an Indigenous scholarship in my last year of university studies… upon graduating [I was offered] a graduate position within central office of [agency] in Canberra. The youth traineeship was an excellent program and assisted in me having an adequate and appropriate orientation, induction and training to support and retain not just me but other Indigenous staff. Commenced as a clerical assistant in a remote locality and slowly progressed through various government agencies. I initially commenced as a trainee then left to do full time study then rejoined as a clerk class 6 (APS 5–6). Requirement to leave home to take up a position in the APS Anecdotal reports have suggested that some Aboriginals and Torres Strait Islanders may be reluctant to leave their home location due to family or community commitments. The survey asked respondents to indicate if they had left home to take up a position in the APS. Twenty-five per cent of respondents indicated that they had left their home location or extended family to take up their current position in the APS, while the majority (75%) had not. Respondents were more likely to have left their home location or extended family to take up their position in the APS if they: were aged 54 or less (between 23% and 28%) or had less than one year of service (37%) were in higher classifications (30% for APS 5–6 employees and 44% for EL employees, compared to 18% for APS 1–2 employees and 20% for APS 3–4 employees) were working in the ACT (49% compared to 19% of employees working outside the ACT) had tertiary qualifications (46%) were male (31% of men compared to 22% of women). The survey also explored whether employees intended to leave the APS in the next three years. Of the 16% intending to leave, only a small proportion indicated that returning home to family or country was a reason for their intention, with 10% of this group indicating that they intended to leave the APS to return to family and 6% to return home to country. Intention to leave the APS is explored in more detail in Chapter 5. Chapter 4 Census Report | 39 Some respondents provided comments about leaving home and extended family to take up a position in the APS. Relocating, whether it be for term transfer or transfer because of a higher position, has had a significant social and financial impact on my family. To entertain any idea of relocating will require me to consider not only my career but the impact a move will have on my whole family. Working in different locations has had significant benefits which has certainly made me a better employee. While I have benefited, my family has been disrupted. After a while, this disruption becomes too much. I am a single mother of two children and I had to move from Townsville to Brisbane to take up this permanent position at my own expense. I had no family support what-so-ever. I was granted a transfer after 6 months back to Townsville on so-called “compassionate grounds”, again at my own expense. I returned home to work in that area so that I could contribute something back to my community (i.e. effective and efficient service delivery, setting standards). I had to move to take up the job of my choice. I was offered other locations, but chose to move to another due to being closer to family members. My first commitment is the security & stability of my family, and although I would like to apply for higher roles, I live in a regional area and opportunities to gain experience at higher levels rarely present themselves locally, and if are available in the area would require travel, which have a negative impact on my family. (Child care issues for school aged children in regional NSW have a major impact). Getting into the APS— Aboriginal and Torres Strait Islander recruitment To explore recruitment issues for Aboriginals and Torres Strait Islanders further, the survey asked respondents for their views in relation to a series of attitudinal statements relating to recruitment. Respondents were asked for their views about increasing Indigenous representation in the APS, applying for APS positions, preference for different types of vacancies, participation on selection panels and merit in recruitment processes. The following section examines responses to these issues. Increasing Indigenous representation in the APS Respondents were asked to rate their level of agreement about whether a range of employment strategies could increase Indigenous representation in the APS. Results for these questions are detailed at Table 4.2. Survey results indicate support for both Indigenous-specific and general recruitment processes to facilitate the employment of Aboriginals and Torres Strait Islanders. Table 4.2 shows that respondents were most likely to agree that increasing traineeships and/or apprenticeships (90%), increased use of Aboriginal and Torres Strait Islander graduate programmes and cadetships (89%), and agencies promoting general vacancies more broadly to Indigenous Australians (87%) would be good ways of increasing Indigenous representation in the APS. Targeted recruitment strategies such as identified positions and special employment measures were also seen as potential ways to increase Indigenous representation in the APS. Respondents were least likely to agree that increasing the number of APS 1 positions would be a means of increasing Indigenous representation in the APS, although a majority still agreed that this would facilitate increased Indigenous representation. Source: Aboriginal and Torres Strait Islander APS Employees Census Survey Views about the best options the APS could use to increase Aboriginal and Torres Strait Islander representation were related to a number of factors. These include: Employees from small, rather than larger, agencies were more likely to support increasing the availability of traineeships and/or apprenticeships, greater use of graduate programmes, and advertising vacancies that are open only to Indigenous Australians. Respondents from lower classification levels were more likely to support advertising vacancies that are open only to Indigenous Australians and increasing numbers of APS 1 positions than were EL employees. Those who work with the Aboriginal and Torres Strait Islander community were more likely to support greater use of identified positions, vacancies open only to Indigenous Australians, and greater use of APS 1 employees than those who do not. Women, respondents aged 35 or over, respondents outside the ACT and those in rural or remote localities were also more likely to express support for the increased use of APS 1 positions than were other employees. Comments from Aboriginal and Torres Strait Islander employees provide mixed views on the best way to increase Indigenous representation. Indigenous cadetships or traineeships, identified positions, vacancies or a quota system, only open to Indigenous people and having mentors/coaches for [these] positions, is the way to go; if you want more Indigenous people working in the APS. …. graduates are preferred; this makes it very difficult for Aboriginal people. I think there needs to be an increase of opportunities at all levels within the Public Sector for Indigenous people. Not just at the APS 1 level. I do not support programs that further accentuate the segregation of Indigenous and non-Indigenous employees. At least for Indigenous cadetships and graduate programs, the segregation is short term. I feel lower paid positions are not the answer as this will encourage employers just to keep Indigenous staff in low levels. I think that introducing mentoring at all levels when an Indigenous person starts in the position will help with retentions and career development, by providing support. I think that offering traineeships etc are a good way to get Aboriginal people in but it is a matter of sustaining their interest and having opportunities after the training that will build capacity. The Cadetship program should be more widely communicated to Indigenous students and other agencies should Chapter 4 Census Report | 41 make a commitment to the program. I do not agree with having an increase in Identified positions or Indigenous only positions as there are plenty of Indigenous people in our communities who are skilled, very competitive with the general population and have a lot to offer in the APS. My opinion is to encourage our people to build on their skill base to become more competitive with the general applicants in competing for jobs. We don’t need ‘Special treatment’. APS 1 positions would be good in remote locations as the job market is restrictive and provide training for Indigenous people. I participated in the Graduate intake under the new recruitment process when it was first trialled and believe that it is not a very user friendly format particularly for mature aged Indigenous applicants. … in relation to the use of graduate/NICP positions I think NICP is a great idea as it supports participants through a degree and both are good recruitment tools, however I don’t think they necessarily target that hard to get group amongst Aboriginal and Torres Strait Islander People that traineeships etc. may. Applying for positions in the APS—selection processes A key factor in attracting Aboriginals and Torres Strait Islanders to the APS is their views about recruitment processes, and their confidence that they are able to understand and participate in selection processes. Respondents to the Aboriginal and Torres Strait Islander employee survey were asked a series of questions relating to the selection process for APS vacancies and if they had any preferences regarding the type of positions they choose to apply for. Over three-quarters of respondents (77%) agreed that they were able to interpret the selection documentation and/or job package and understand what is required of them in submitting their job application for APS vacancies. This result is very positive, but it needs to be borne in mind that all respondents to the survey are existing APS employees. This result does not necessarily represent the views of Aboriginals and Torres Strait Islanders who are seeking APS employment. Respondents were more likely to be confident in interpreting selection documentation and/or job packages if they were: EL employees or employees with higher educational qualifications from within the ACT working in small agencies. Sixty-five per cent of respondents agreed that ‘I do not have any difficulty in addressing the selection criteria when applying for job vacancies.’ However, 17% indicated that they did have difficulties and a further 17% were undecided. Respondents were more likely to agree that they had no difficulty in addressing selection criteria if they: were aged 45 or over were at higher classification levels or had tertiary qualifications were from small and medium agencies were located inside the ACT. Just over two-thirds (67%) of Aboriginal and Torres Strait Islander respondents agreed that they feel confident they are able to present themselves well at interviews. Respondents were more likely to agree if they: were from small and medium agencies were at higher classifications or held higher-level educational qualifications. Surprisingly, length of service did not assure confidence at interview, with those with shorter periods of service (five years or less) more likely to agree that they were confident they are able to present themselves well at interviews than those with longer periods of service (11 or more years). Respondents were also asked for their views on whether ‘in my experience the use of recruitment providers/ assessment centres provided me with a fair and objective assessment of my skills’. Results against this statement were much less positive than views about understanding of, and confidence in, their own ability to participate in selection exercises. While 21% of employees said that this statement did not apply to them, only 31% of respondents agreed, with a further 30% neither agreeing nor disagreeing and 18% disagreeing. The extent of disagreement with the proposition that assessments of skills were fair and objective varied according to agency size, with respondents from large agencies showing higher levels of disagreement than those from small and medium agencies. While respondents were generally positive about their own ability in relation to selection processes, some comments by respondents reflected concerns that selection processes could be a barrier to Aboriginals and Torres Strait Islanders seeking employment in the APS for the first time. Some respondents also provided suggestions for attracting Aboriginal and Torres Strait Islander employees to the APS. Most Indigenous people I know have trouble with addressing selection criteria and the whole process, especially those that have not left the community or pursued studies. Developing clear career pathways via training would be good for promoting Indigenous people because it is often difficult for them to promote and sell themselves via a selection criteria process due to the academic base needed to participate in the process. I would like to see greater assistance for Indigenous staff, or prospective staff, i.e. assistance with completing and understanding job applications and criterion, unless you have been in the game for a while these can be daunting and sometimes understanding the criteria too can be very off putting. I have seen too many Indigenous staff fall by the way side because they can’t put on to paper their skills that are invaluable to an agency like ours. The recruitment process needs to [be] shortened and appropriate to the locality, otherwise the process can be very daunting, often there are 3–4 people on the panel and can stop a person from responding in a natural/ comfortable manner. The recruitment needs to be streamlined. I find advertising in community/local papers is a good way to locate possible recruits, not everyone buys big name papers like the West Australian. If there is something for free out there, they will opt for that first. The recruitment ads need to be advertised more than once in the local papers. I think all selection criteria for jobs in the public service are written in jargon and only readily understandable to other public servants, not the person in the street. I strongly recommend all selection criteria be written in plain non jargonistic language. Website information should give examples of how to answer selection criteria—some outside applicants do not know how to address criteria—particularly Indigenous criteria. I feel that Recruitment Agencies can be culturally biased and from my own experience they will often test skills which are not required for the job. Chapter 4 Census Report | 43 Types of vacancies—mainstream and targeted recruitment processes In addition to the questions discussed above which explored respondents’ views of the type of recruitment processes that would increase Indigenous representation in the APS, the survey also asked a series of questions about whether respondents themselves would prefer to apply, or would feel more comfortable applying, for positions through targeted or mainstream recruitment processes (see Table 4.3). The results suggest that Aboriginal and Torres Strait Islander employees hold a diverse range of views about targeted and mainstream recruitment processes. Source: Aboriginal and Torres Strait Islander APS Employees Census Survey Forty-three per cent of respondents agreed that they would prefer to apply for a vacancy that was an identified position and 15% disagreed. Nevertheless, only 9% of respondents agreed that ‘I would not apply for a position that was advertised as an identified position.’ A third of respondents agreed that they would prefer to apply for a vacancy that was advertised as being open only to Indigenous Australians, but 24% disagreed. When respondents were asked to indicate their level of agreement with the statement ‘I would not apply for a position that was advertised as only open to Indigenous Australians’, only 12% agreed with this statement. Forty-five per cent of respondents agreed that they would prefer to compete in a general recruitment process, similar to the results for identified positions. However, only 10% of respondents disagreed with this statement. For all processes, there was a relatively high ‘neither agree nor disagree’ response. Preference for particular types of recruitment processes was related to a number of factors, namely: Respondents at the APS 1–2 levels were more likely than EL employees to prefer to apply for identified positions (52% and 32% respectively), and positions advertised as open only to Indigenous Australians (47% compared to 17%). EL employees were more likely to prefer to compete in general recruitment proc-esses than were APS 1–6 employees. Those without tertiary qualifications were more likely to prefer to apply for an identified position or a position open only to Indigenous Australians. • Respondents from remote areas were more likely to agree that they would prefer to apply for positions open only to Indigenous Australians than were respondents from other localities, but they were also more likely to agree that they would prefer to compete in general recruitment processes than were their capital city and metropolitan area counterparts. Respondents currently working in an identified position or those whose work is specifically related to the Aboriginal and Torres Strait Islander community both reported higher levels of agreement that they would prefer to apply for an identified position or a position that was open only to Indigenous Australians than respondents not in these roles. Respondents in other roles were more likely to report a preference for competing in general recruitment processes. Length of service also had some impact, with those who had shorter periods of service (up to five years of service) more likely to agree that they would apply for an identified position than those with between six and 20 years of service. The following comments provide a sample of respondents’ views on targeted and mainstream recruitment processes. … I still believe that if you are working in an identified position the ability to communicate sensitively and effectively with Indigenous Australians and a knowledge and understanding of circumstances is essential but we don’t seem to be putting that much weight or importance on such knowledge, abilities and skills. I believe the Identified positions are a good ‘doorway’ to Indigenous Australians into the APS. It is then up to the individual person if they wish to stay in the ‘Indigenous’ field or to go into the ‘General’ area where vacancies and/or higher duties exists. I believe that creating identified positions is not the only way to increase Indigenous participation in the APS— workplace support once appointments are made is important… a more active method than advertising in the general press is required. Information needs to go out into various networks through various media, including word of mouth. Advertising is often too passive and detached to attract Indigenous people. … the idea of making a general position open only to Indigenous people is a great idea and would encourage Indigenous people to apply for mainstream jobs as not everyone wants to work in Indigenous related fields. … My view is to recruit through general vacancies but make Indigenous applicants aware of applying for these positions. This way they are not being singled out as only getting the job on their aboriginality and not their ability. …. My other view is to apply for positions that are for mainstream applicants and this then allows more positions available for other Indigenous applicants. I prefer to work and have always worked in mainstream because I’ve found that identified positions limit your ability to apply for different types of work within the agency… and I’ve always seen them as dead end jobs because people think that is all you are capable of! Whilst I believe Identified Positions are good—I believe that we need to encourage more mainstream positions within offices to dispel any thoughts that ‘other’ staff may have about our ability to perform the work—also to promote positive images of Indigenous workers—not only to your workmates but to the public too. I prefer a more level playing field for all—why should some positions be only available for Indigenous Australians, or any other part of our society? We should be made to feel equal and have the same chances. Chapter 4 Census Report | 45 Participation on selection panels Selection panels play an important role in APS recruitment processes. Many APS agencies encourage selection panels to draw from the diversity of their existing workforce, particularly when assessing applicants from groups such as Aboriginal and Torres Strait Islander employees. Respondents were asked to indicate whether they had been a member of a selection panel. Fifty-three per cent of respondents indicated that they had been selection panel members. The level of participation in selection panels increased with age, classification and length of service. Respondents were also more likely to have participated in selection panels if they came from a small agency, or if their job specifically involved working with the Aboriginal and Torres Strait Islander community. Respondents who had participated as a member of a selection panel were asked to respond to three attitudinal statements relating to panels. The statements related to their confidence in participation, the training provided to fulfil their role, and whether others recognised the value of their contribution. Eighty-six per cent of relevant respondents agreed they felt confident being a member of a selection panel, while only 4% disagreed. Respondents from small agencies (96%) were more likely to express confidence than those from medium (82%) or large (87%) agencies. All respondents who had been a member of a selection panel were asked to rate their level of agreement with the helpfulness of any training received. Forty-nine per cent of relevant respondents agreed that the training received about being a member of a selection panel had helped them to fulfil the duties of that role, with 20% neither agreeing nor disagreeing, 18% disagreeing and 14% indicating that the question was not applicable, perhaps indicating that this group had not received any training. Respondents were more likely to find training helpful if they were from older age groups or had long periods of service (16 or more years). The majority of employees (83%) agreed that their contribution as a member of a selection panel was valued by other members. Higher levels of agreement with this statement came from EL employees, and respondents from small agencies. The following comments provide some respondents’ views on selection panel participation. Selection Advisory committee training is needed urgently from the APS Commission in this dept. There are currently no guides or training available in my Department on how to apply the Identified Criteria—either as a panel member or as an applicant. This leaves it open to interpretation and panel members exposed without a policy to refer to when the delegate and their panel members wish to diminish the value of the criteria. Merit in the recruitment process Confidence that the APS has merit-based selection processes that are fair is a key factor both in attracting Aboriginals and Torres Strait Islanders to the APS, and in ensuring that assessment for all applicants, including Aboriginals and Torres Strait Islanders, focuses on the relative capacity of candidates to achieve outcomes related to the duties. Respondents were asked to indicate their agreement with the statement, ‘overall, I think recruitment and promotion decisions in my agency are fair.’ Forty-two per cent agreed with this statement, while 27% neither agreed nor disagreed and 28% disagreed. Aboriginal and Torres Strait Islander employees were more likely to agree that recruitment and promotion decisions in their agency were fair than were APS employees generally. Only 35% of APS employees reported that ‘overall, I think recruitment and promotion decisions in my agency are fair and reasonable’, 34% neither agreed nor disagreed and 30% disagreed.25 25 APS employee results come from the 2005 State of the Service employee survey and were reported in the State of the Service Report 2004–05 and/or the State of the Service Employee Survey Results 2004–05. 46 | Chapter 4 | Recruiting Aboriginals and Torres Strait Islanders to the APS Respondents were more likely to agree that recruitment and promotion decisions in their agency were fair if they: were from medium agencies were from remote and rural areas had less than one year of APS service. The following are comments made by respondents to the survey about the issue of merit generally. As in many agencies the recruitment process is questionable and while they may appear fair they are sometimes aimed at a particular individual. Recruitment and promotion on the whole in my agency seem fair however selection for short term higher duties I view at times to be without merit and not overt. I think my agency’s recruitment and promotion decisions are generally fair in that the processes are established and generally transparent (although there have been times when they have been a bit questionable). Key findings The Aboriginal and Torres Strait Islander employee survey provides a picture of the range of experience of Aboriginals and Torres Strait Islanders entering the APS. Aboriginal and Torres Strait Islander employees bring a diverse range of backgrounds to the APS. While a large proportion have worked with Aboriginal and Torres Strait Islander people, communities or business, they also bring experiences from a range of sectors including the private sector, state and local government and non-government organisations. Agencies can benefit by using this broad range of experience in both their mainstream and Indigenous-specific positions. Agencies are using a range of processes to bring Aboriginal and Torres Strait Islander employees into the APS. While just over half of these employees have been recruited through general recruitment processes, a large proportion are recruited through Indigenous-specific recruitment processes. The fact that employees aged under 25 were less likely than older employees to have been recruited through general recruitment processes may be related to the fact that employees under 25 were also more likely to have commenced in the APS as trainees and/or apprentices or cadets and/or graduates, with some agencies using Indigenous-specific trainee and graduate trainee positions. Aboriginal and Torres Strait Islander employees have a mixed range of views about recruitment processes. Views appear to be split on whether as individuals employees would prefer to apply for identified positions, positions restricted to Aboriginal and Torres Strait Islander employees, or positions advertised through general processes, with a sizeable proportion of employees expressing no particular preference. Despite this divide in opinion most respondents saw a role for Indigenous-specific recruitment processes, including identified positions and special measures, in helping to increase the representation of Aboriginals and Torres Strait Islanders in the APS. It is likely that there will continue to be an important role for Indigenous-specific recruitment processes, complementing general recruitment processes, in helping to maintain and improve the representation of Aboriginals and Torres Strait Islanders in the APS for some time into the future. There is also considerable variation among different groups of Aboriginal and Torres Strait Islander employees both in the way that they were recruited to the APS, and in their views about recruitment. In particular, employees at higher classifications and with higher educational qualifications, show a stronger preference for general recruitment processes and more confidence in their ability to participate in selection processes. Chapter 4 Census Report | 47 The low levels of agreement that recruitment processes within the agency are fair, while more positive than the views of APS employees generally, are of some concern. Given the broader APS results, it is likely that these issues do not relate specifically to Aboriginal and Torres Strait Islander issues. Nevertheless, agencies need to bear in mind the importance of general employee confidence in agency recruitment processes when developing specific strategies for attracting and recruiting Aboriginal and Torres Strait Islander employees to their organisation. Chapter 5—Managing, sustaining and engaging Aboriginal and Torres Strait Islander APS employees A range of factors will influence employees’ experiences at work, their performance and their career intentions. Many of these go to the nature of employee engagement, which refers to the extent to which employees commit to something or someone in their organisation, how hard they work, and how long they stay as a result of that commitment.26 This chapter begins by examining how successful agencies have been at encouraging Aboriginal and Torres Strait Islander employees to consider longer-term careers in the APS. It then looks at a number of factors that may be affecting the extent to which Aboriginal and Torres Strait Islander employees engage with their work. It looks first at the specific factors which impact on the job satisfaction of Aboriginal and Torres Strait Islander employees. It then looks at respondents’ perceptions of the skills and capabilities of their immediate managers in terms of general people management, performance management, and some other management-related factors. Intentions to remain in the APS As the Aboriginal and Torres Strait Islander APS Employees Census Survey targeted only current APS employees, it was not able to specifically investigate the factors that motivate Aboriginals and Torres Strait Islanders to leave the APS. Instead, the survey asked respondents to indicate whether they intended to leave the APS in the next three years, and explored the reasons for an intention to leave. It is important to note, however, that, while views about an intention to leave the APS may be indicative of some of the issues that motivate Aboriginal and Torres Strait Islander employees to resign from the APS, they may not necessarily be representative of the views of employees who do resign. Fifty-one per cent of respondents to the survey indicated that they did not intend to leave the APS in the next three years. A total of 16% indicated that they did intend to leave in the next three years, made up of 5% intending to leave in the next year, 5% intending to leave in the next one to two years and 6% intending to leave in the next two to three years. Thirty-two per cent were not sure. Consistent with the high separation rates for Aboriginal and Torres Strait Islander employees reported in Chapter 2, the group not intending to leave was lower than the 60% of the APS overall who indicated they do not intend to leave the APS in the next three years.27 The percentage of Aboriginal and Torres Strait Islander employees with a definite intention to leave in the next three years (16%), however, was similar to the 15% of APS employees overall who intended to leave. The difference between results for Aboriginal and Torres Strait Islander employees and overall APS results was largely the result of a larger group of respondents (32% compared to 25% for APS employees) who were not sure whether they would stay or leave. While this is of concern, the fact that these employees have not yet made a definite decision to leave the APS indicates that there is potential for agencies to encourage this group to make a longer-term commitment to the APS. Table 5.1 outlines the range of reasons given by employees for their intention to leave the APS within the next three