Achieving Outcomes for Children and Families from Culturally and Linguistically Diverse Backgrounds

Transcription

1 Achieving Outcomes for Children and Families from Culturally and Linguistically Diverse Backgrounds This topical paper has been developed for the Communities for Children Facilitating Partners. Prepared by Margaret Sims, Andrew Guilfoyle, Judy Kulisa, Anna Targowska & Susan Teather Centre for Social Research, Edith Cowan University, Western Australia iiiiiiii For the Australian Research Alliance for Children and Youth 2008

2 CONTENTS Summary 1 Introduction 3 Methodolgy 8 Connecting to community: culturally specific services 9 Connecting to community: multicultural services 12 ABOU Connecting to community: mainstream services 15 T Lessons about successful inclusion ARAC 21 Y Summary, Conclusions and Recommendations 28 Reference List 31 Appendices 34 Funded by the Australian Government Department of Housing, Families, Community Services and Indigenous Affairs DISCLAIMER: ARACY prepared this publication. It draws on information, opinions and advice provided by a variety of individuals and organisations, including the Commonwealth of Australia. The Commonwealth accepts no responsibility for the accuracy or completeness of any material contained in this publication. Additionally, the Commonwealth disclaims all liability to any person in respect of anything, and or the consequences of anything, done or omitted to be done by any such person in reliance, whether wholly or partially, upon any information presented in this publication. ISBN: Australian Research Alliance for Children & Youth PO Box 1360 WEST PERTH WA 6872 Level 13, Dumas House 2 Havelock Street WEST PERTH WA 6005 Telephone: ABOUT ARACY The Australian Research Alliance for Children and Youth (ARACY) was founded by a group of eminent experts and organisations in reaction to increasingly worrying trends in the wellbeing of Australia s young people. ARACY is a national organisation with members based across Australia. ARACY asserts that by working together, rather than working in isolation, we are more likely to uncover solutions to the problems affecting children and young people. ARACY is a broker of collaborations, a disseminator of ideas and an advocate for Australia s future generation. ARACY has two primary goals: 1. To promote collaborative research and agenda setting for children and young people 2. To promote the application of research to policy and practice for children and young people. This paper is one of a series commissioned by ARACY to translate knowledge into action. This series of papers aims to convert research findings into practical key messages for people working in policy and service delivery areas. The ARACY topical papers may also be the focus of workshops or seminars, including electronic mediums. Developed for the Facilitating Partners of the Australian Government Communities for Children initiative, this paper is now being made available to a wider audience via the ARACY website: enquiries@aracy.org.au

3 SUMMARY This paper reports on research (both primary research and a literature review), undertaken with the aim of demonstrating strategies for successful inclusion into Australian society of children and families from culturally and linguistically different (CaLD) backgrounds. We recognise that CaLD children and families are commonly disadvantaged through being part of a minority group in Australia, their experiences prior to migration (for example refugee trauma), the different values and practices they may encounter here, the difficulty of learning a new language, the problems they face having qualifications and experience ratified, and the varying forms of racism the may experience. A number of innovative and highly successful programmes operate in different areas of Australia that are very successful in supporting CaLD families. Some of these programmes operate culturally specific services, that is services for one specific cultural group. These programmes tend to be most successful when their staff are of the same cultural background as the clients of the programme, and are able to develop extensive networks with the community targeted by the programme. Such programmes operate to empower the targeted group and facilitate their involvement in other community activities and services. These services are particularly useful for cultural groups where there is a high probability members have experienced high levels of trauma, as they provide a familiar setting (familiar language, customs and procedures) which helps establish feelings of safety. A number of successful programmes operate with a multicultural focus. These programmes target the range of different cultures within a particular community. Staff are often members of some of the cultural groups found in the community, but not all of them and they have additional training to support them in demonstrating cultural sensitivity. The service may call upon specific language support where necessary. Services need to be flexible to meet differing needs of different groups of people. Staff work with community members and attempt to identify and support rising community leaders with the aim of empowering the whole community. 1

4 Mainstream services may also offer highly successful inclusive programmes. This is best achieved through working in close partnership with other organisations, particularly culturally specific and multicultural agencies so that resources can be accessed as required. The advantages of co-locating such services are becoming increasingly recognised and there is a range of possible ways in which co-location, co-management and co-delivery of services might occur. Successful mainstream agencies focus on delivering appropriate cultural sensitivity training to all their personnel. The role of community leaders is valued and mainstream staff can play a significant role in identifying and supporting the development of such leaders. All the successful programmes identified in this research identify a particular style of work as particularly important in shaping their outcomes. This is a form of community work that recognises the need to operate at different levels (ecological approach), to work from strengths and to focus on empowerment. Combined with this is the need for cultural competence. 2

5 INTRODUCTION The impact of migration and trauma on individuals, families and parenting Migration, even within a country, means leaving behind family, friends, community and culture and moving to another place. Research on sojourners and long term migrants shows a typical U-curve of adjustment (1) and corresponding theories of culture shock, culture learning, stress and coping, social identification and cultural synergy (2-4). All migrants demonstrate a transition process, with a downturn in coping for some period, which rebuilds into adjustment. Migrants will initially struggle to create new identities in a new culture whilst simultaneously trying to maintain who they are, and fundamental beliefs and values in relation to their home culture (5). At the same time, migrants often experience various levels of both overt and covert racism (21) which makes the adjustment process more difficult. For many, the downwards component of the adjustment spiral becomes elongated and manifests into a poor level of confidence which does not restore itself. Ongoing prejudice and systemic racism, if present, can exacerbate this lack of confidence and creates a level of discomfort in the new culture which becomes very difficult to overcome. Our position is that the ability to move out of this bottom point in the curve depends on the unique context in which each individual finds him/herself, interactions between different aspects of that unique context and the support made available. Another factor which contributes to adjustment difficulties is a frequent lack of recognition of qualifications and a consequent lack of professional employment opportunities which result in increased levels of stress within CaLD families. Clearly, migrants carry a high load of stress (originally demonstrated by 6). We know that chronic stress has significant negative long term outcomes on individuals (including impaired physical and mental health and wellbeing, and shorter life expectancy, see 7 for example). Individuals under stress have less emotional resources to reach out and provide support 3

6 to others, thus family functioning is impaired. Parenting is a complex and demanding task and stress has a major effect on the ability of parents to provide a positive rearing environment for their children, thus impacting negatively on child outcomes (8, 9). Migrants who are parents not only have to manage their own process of reestablishing who they are, including situations that challenge their confidence, knowledge and skills, they have also to be available to support their partners and children who are going through the same process. Children, through their attendance in the education system and their participation in the youth media culture (music, TV, movies etc) often have significant community exposure (though not necessarily participation) and this influences the degree to which they adopt new values and standards of behaviour. This can cause inter-generational conflict within the family as parents struggle to maintain their families cultural identity (10, 11). Parenting as a migrant provides its own challenges. Different expectations for children and different dreams for the future between migrant parents and their children, and between migrant parents and parents from the hegemonic culture can often place an additional burden on migrant families as they struggle to accept different outcomes for their children than those they might have held in the past, while holding on to high expectations for their children s success. Different parenting strategies may be expected in the new country and parents struggle to adapt at a time when they are experiencing less support from extended family and local community. Roles for parents may be very different in Australia compared to migrants home culture. For example, expectations about the role of men in child rearing vary significantly between different cultures and this can cause major disruption within the family as outside, societal expectations may clash with migrant family values and practices. We don t have space to explore how values interact with adjustment into a new culture here but, for example, Rees & Pease (12) correlate the presence of domestic violence with chances of successful settlement of immigrant families. 4

7 Where migrant families have experienced significant trauma before coming to Australia the problems of adjustment are twofold. Children exposed to trauma are at risk of developmental delay and skills developed to manage trauma are often perceived as signs of behavioural problems in the new context (13). These place an additional burden on the parents trying to maintain their own adjustment and that of their family. Given that parents themselves are dealing with their own trauma, their ability to support their children is lessened and long term outcomes for both parents and children include higher incidence of Post Traumatic Stress disorder, long term mental and physical health problems, social isolation, limited achievement and increased behavioural problems (7, 14, 15). Adult responses to these coping skills often serve to re-create the trauma rather than addressing it (16). Existing barriers to social inclusion for CaLD children and families Many migrants lack confidence to reach out into the community because their self esteem is affected by their minority status. Minority status is strongly associated with prejudice and under-valuing of skills and expertise, with the result that many migrants are found in the most disadvantaged groups in any community (7), further lowering their perceived status in both their own eyes and in the eyes of the community around them. Being subject to active prejudice and discriminatory behaviours is not an uncommon experience, and many migrants report daily incidences of racism (17, 18). Negative community experiences contribute to the increased sense of social isolation, and it is not uncommon for some migrants to stop attempting to become socially included because of these experiences. Migrant clustering is a common response. Migrants living in clusters of enclaves are more able to support each other in maintaining cultural identity, routines and roles (20). Such enclaves tend to be reinforced when policies of public housing group people on low incomes together. In some Australian jurisdictions a gradual shift in public housing policy which aims to spread housing for migrant families more evenly across general population can be observed. Clusters of migrants may also develop around specific services, for 5

8 example culturally specific support groups. Whilst undoubtedly beneficial, such clusters may also serve to further compound social isolation from other community members (21). Language acts as a major barrier. Typically migrants with limited language skills are less likely to reach out into the community or to access services (19). When values and beliefs are considered as inferior, and behaviours are ignored or ridiculed, some migrants find it extremely difficult to find the confidence to become involved in the community. Lack of recognition of qualifications and employment opportunities compound risks to confidence and self esteem. Many migrant groups place a particularly high value on employment as an indicator of status and worthiness, so lack of recognition of qualifications and employment history is especially significant. Being underemployed, a common outcome for many migrants is often perceived as humiliating and thus has a major negative impact on social inclusion. Ultimately, a major barrier operating against social inclusion of CaLD families is that of systemic bias and/or racism. Attitudes towards those who are different are communicated through, and continue to be reinforced by, media reports, by the way characters are portrayed on TV and in the movies, and by the way schools, clubs, other community groups and government institutions respond to those who are perceived as being different to us (17). Attitudes towards difference are clearly identifiable as the most significant barrier towards inclusion across a wide range of types of difference (22). Successful social inclusion must be conditional, not on supporting migrants to fit in to Australian society, but on working with all Australians to learn about valuing difference. Desired outcomes for CaLD children and families Migrants and refugees have both immediate and broad settlement needs such as transport, food on the table, safety for children, adequate housing, good parenting, early learning and child development, schooling, English literacy, and employment. All of these needs are important and migrants and refugees need to know where to turn for help with any of these. The ability to 6

9 turn to others for help will depend on a sense of social inclusion. Exploring differences in values and respecting different life choices is essential for social inclusion practices (22) that assist migrants and refugees to achieve these desired outcomes. This is the first step to strengthening communities from CaLD backgrounds. A recent Australian study demonstrates that people s perceptions of social inclusion are strongly linked to family, friendship and community participation (18). Social inclusion is about belonging. Participants in the study above identified they felt included when they (18, p.8): Had regular contact with friends living nearby Were members of local organisations, cultural, sporting or civic groups Undertook volunteer work in their community Either exchanged goods and services with friends and other community members or participated in bartering within their community Believed there were lots of things to do in their community However, people from CaLD backgrounds aim to belong not only to their communities of residence, but also to their home culture. Thus there is a need to create multiple identities, and the skills to transition from one identity smoothly into another, depending on the context. These multiple identities require multiple languages. In Australia, English is the official language and it is required for success in the school system and in the wider community. However, home languages play a significant role in shaping each individual s cultural identity(ies). Therefore, a true recognition and respect for languages other than English is of prime importance in the process of social inclusion. Social inclusion occurs when opportunities are created (by communities, agencies, and programmes) to reach out to migrants, and when migrants are able to respond to the invitation by engaging. Long term consequences of 7

10 such engagement are improved outcomes in CaLD families employment, education, housing and health. However, connection to the new community and engagement in that new community only occurs when appropriate supports are made available to migrants. There are some examples of initiatives, such as the Commonwealth Government Communites for Children which target inclusion of minority groups; some of them focusing specifically on CaLD communities. Case studies presented in the Appendix 1 illustrate some of the important strategies discussed by us in this paper, which are needed in various types of services to successfully include CaLD communities. METHODOLOGY In developing this paper, the research team in phase 1 of the methodology undertook an extensive review of the international literature. In Phase 2, the research team contacted different agencies around the country. These agencies had been identified by key contacts (our Community Reference Group) as those working with CaLD children and families. When contact was made with agencies they were asked to identify others. Through this process of working through key contacts and snowballing, the research team contacted 55 different agencies. Basic information was collected, and where permission was granted by the agency (and there was a relevant agency staff member willing to participate), telephone interviews were undertaken. A particular emphasis was given to Communities for Children programmes and these groups were given an additional chance to participate in the research when they participated in the webinar where the preliminary results of the study were presented. International literature, and our Australian Case Studies showed that successful inclusion operated in many different programmes and in different contexts. We have chosen to present these examples, and the common themes underlying their successful practice, by focusing on different types of agencies and programmes: those operating specifically with one particular CaLD group, those supporting a range of families from many different CaLD backgrounds, and mainstream agencies. We have chosen to illustrate the themes with quotes from the interviews undertaken. 8

11 CONNECTING TO AND ENGAGING WITH COMMUNITY: CULTURALLY SPECIFIC SERVICES A culturally specific service/agency (sometimes called an ethno-specific service or agency) is designed for one particular cultural or ethnic group. Culturally specific services act as a safe harbour for migrant families and offer an alternative approach to engaging with individuals and families. The approach adopted means working from within the community to build knowledge and understanding of the ways in which existing social and community strengths and institutional infrastructures can be utilised to meet individual and collective needs. Culturally specific services are especially important (and often the first port of call) for newly emerging refugee and migrant communities who lack confidence and who carry exceptionally high levels of stress due to trauma experienced prior to their arrival to Australia. Appendix 1 provides examples of some successful culture specific services currently operating in Australia as part of the Communities for Children initiative (see for example Case Study 5, 10 and 14). The role of Culturally Specific Services/Agencies Working with a particular ethnic or minority group enables service providers to develop culturally appropriate intervention strategies designed to build on existing community strengths, identify existing community leaders and support them to work within the community to develop community strength and meet community identified needs. The service provider will already have an understanding of the social conditioning and experiences that have rendered the individuals different and should have the skills to work within the community to support its development in an environment where difference is acknowledged and valued, and where children and families feel free to disclose those aspects of self and culture which have previously rendered them different and called their citizenship rights into question (23, p. 34). 9 Inclusion and identity development within a known community (based on ethnicity or country of

12 origin) can facilitate inclusion and identity clarification within mainstream society. Strengths based, culturally specific approaches to service provision provide the opportunity for concerned community members to strengthen already existing community networks and to make them available to those individuals or families requiring support. Service providers within this framework often already have links to leaders within the target communities; and it is through these community representatives that needs are often first identified and social capital built. The Playgroup Co-ordination and Development Project facilitated by Mission Australia in Dandenong in Victoria illustrates the importance of such strategies in empowering CaLD communities. This project targets specific ethnic population (see Case Study 14). Another culture specific project which embraces the important strategies for successful inclusion is the ACT Mon Community in Cultural Transition, which targets Mon-speaking families from Burma and their children (aged 5 and under) in the inner North of Canberra. The project provides community links for the families and supports their children in the development of the social and early learning skills. This is achieved through playgroup sessions, intercultural parenting skills program, sessions on skills to improve and enable access to community services and to communicate effectively with government (see Case Study 5). Strategies used by culturally specific services/ agencies Culturally specific services/agencies should be accessible, non-threatening and welcoming; meeting group needs in a culturally appropriate manner. In order to be successful, culturally specific services/agencies need to include the following in their approach to service provision: Members of the staff and service management reflect the cultural group the agency is intended to serve. Case Studies 5 and 10 both reflect the importance of bicultural, bilingual staff. 10

13 Free access to suitable interpreters (see Case Study 5) Availability of resources in the relevant language Availability of facilities to meet the needs of the specific culture Activities are organised in gathering places such as Companion House which is like a drop-in centre so families do not need to access transport (Case Study 5). A management structure that involves cultural leaders from the specific culture Personal relationships need to be maintained. They are not easily transferable. Extensive work with the Samoan community building relationships with key community participants was the pattern of initial development. This included the local chief, a highly respected Samoan community leader. I had to earn his respect and continued to meet with him regularly, updating my progress. These links were based on personal connection, relationship building, integrity and honesty. (Case Study 10) The success of being able to engage vulnerable CALD families in playgroups has been due to a [ [ Playgroup Co-ordinator and the community capacity building strategy of recruitment and training of parents who are community leaders within their cultural groups as playgroup leaders. (see Case Study 14) Staff ability, and availability of funding/resources, to reach out to link with other agencies and communities as well as mainstream services Strategies as simple as providing food that is culturally appropriate (24) and opportunities to speak one s home language can encourage the participation of those who might otherwise be suspicious or fearful of programmes offered. Workers are encouraged to use their personal connections in the culture and community to support community members. 11

14 Examples Case Studies 5, 10 and 14 in Appendix 1 are examples of culturally specific services. CONNECTING TO AND ENGAGING WITH COMMUNITY: MULTICULTURAL SERVICES/AGENCIES Multicultural services target a range of different cultural groups living within a community. The importance of a multicultural approach is that both service providers and individuals within the community can develop an understanding that acknowledges differing values, beliefs and language and work within them. Appendix 1 demonstrates through a number of case studies the importance of strategies of cultural competency training, employment of bicultural -bilingual staff, and development of links within and between communities and resources results in successful inclusion. Other important strategies are also recommended in this section. The role of multicultural services/agencies Multicultural services offer a range of programmes to people from a range of diverse groups living within the community. Within some multicultural agencies there may be both programmes targeted at specific cultural groups, and programmes targeted more generally at a range of different cultural groups within the community. Multicultural services should be accessible, nonthreatening and welcoming; meeting diverse group needs in a culturally appropriate manner. Multicultural agencies support both newly arrived and more established groups of CaLD migrants. Strategies used by multicultural services/agencies In order to be successful, multicultural services need to include the following in their approach to service provision: Staff trained in dealing with multicultural groups (this is most important as it covers various important issues such as avoiding stereotyping and 12

15 bias, understanding the social perspectives of the specific group etc.). In other words staff must be culturally competent with attitudes that reflect empathy and respect for all cultural groups. The project staff are qualified and experienced in early childhood development, community development and working with families from CaLD backgrounds and two of the staff are bilingual. There is a strong sense of purpose, commitment to access and equity issues and both pleasure in, and respect for, families and their cultural backgrounds. Consequently an environment is created in which the women and children feel valued, welcome and safe (Case Study3) The service must have facilities to meet the language needs of the cultures represented in their constituent community. This includes access to interpreters both for staff and for community members. By employing people who are from the same culture or community it appears to lessen the anxiety and language gap to ensure the information is being passed on to those who need it the most (Case Study 6). Resources must be available in a variety of common languages The service must have the ability to employ culturally specific staff (such as bilingual workers) for various programmes Relationships have been developed with key community outreach workers who have been employed to connect families with the project these bilingual/bicultural workers have been employed to assist the families to make the transition to the project and to participate in the project activities they also have assisted project staff to identify the issues / concerns / interests of the women and to develop appropriate resources as required (Case Study 3) 13

16 The CRIO project has developed community links through the use of interpreters working as bicultural workers. They develop relationships with their local communities (Case Study 4) Availability of facilities to meet the needs of specific cultural groups using the service Flexibility in programme delivery to suit the needs of various cultural groups The programme links families with other community agencies / programmes / resources The project has actively sought out those organisations which provide a service which is culturally safe and appropriate and can meet the needs of CaLD women with young children (these are: transport or home visits, the use of interpreters and bicultural workers, a range of multicultural and multilingual resources and crèche (Case Study 4). The Community Development Facilitator assesses the individual needs of the family and provides the pathway to introduce and integrate the families into the resource of a childcare environment. Whilst their child/ren is/are in childcare the facilitator is then able to link, facilitate and guide each family into a greater support network tailored to what is required. This can be in the form of job skills, further training, government meetings, medical needs etc (Case Study 7). Staff ability and resources to identify and support community leaders (see discussion under Mainstream services ). These leaders become the conduit between the service provider and the individuals or families to whom the service is offered (see for example 25). The service has the ability to be flexible and responsive to local need 14

17 The project has endeavoured to provide culturally appropriate support through the use of interpreters and bicultural workers, and address the issue of transport by picking up families or carrying out home visits (Case Study 4). The playgroup has developed community links through its colocation with other services such as childcare centres and a housing support programme (Case Study 9). The project supports access and participation by being cost free for the families and most importantly, by providing a bus pick up system for those women who are unable to walk, drive or utilise public transport (Case Study 3). Participation in services offered is more likely to occur where cultural competence and acceptance of cultural diversity is thematic across the organisation providing services to different cultural groups. That is cultural competence, including a cultural mix of membership at management and service provision levels, adopted throughout the organisation is more likely to make the organisation itself and the services it offers acceptable to the range of culturally diverse client groups (26). Examples Case Studies 2, 3, 4, 6, 7,9, 11 and 12 are examples of successful multicultural agencies and/or programmes. CONNECTING TO AND ENGAGING WITH COMMUNITY: MAINSTREAM SERVICES/AGENCIES The role of mainstream services/agencies No single service possesses the necessary resources to facilitate development of very broad networks within and between communities. Mainstream services can play an important role in engaging families from CaLD backgrounds, but to do that successfully they need to co-operate and work 15

18 with culturally specific and multicultural services in order to develop sustainable partnerships. In these partnerships, mainstream services not only call upon the skills and expertise of culturally specific and multicultural services to enhance their own programme delivery, they can also offer support in enhancing the service delivery of the culturally specific and multicultural agencies. For example many small culturally specific agencies tend to offer programmes in areas where funding is available (aged care, home and community care, family reunion support are some current common areas of service delivery). Mainstream services can offer a broader, holistic approach to service delivery, and, in partnership with culturally specific and multicultural agencies, ensure that seamless service delivery is available for community members. Mainstream services have the potential to play an important role in reducing migrant social disadvantage by creating socially inclusive environments aimed at community capacity building. Mainstream services, along with culturally specific and multicultural services, can all play an important role in facilitating and strengthening the development of social support networks within local communities as well as developing bridges and links (18) between these communities and the existing outside human and physical resources. Capacity building needs to start with recognising and acknowledging the strengths of CALD families as they are now and facilitating their further growth. In such a bottom up approach the role of formal and informal leaders and the need to facilitate such leadership skills in individuals have to be acknowledged. Strategies used by mainstream services/agencies Mainstream services can collaborate with culturally specific and multicultural services to reduce migrant disadvantage and social isolation in the following ways. Appendix 1 provides some interesting examples of mainstream services which play a successful role in social inclusion of CaLD communities. Their success results from the true embracement of the principles of respect for diversity, developing cultural competency as well as and from partnership, 16

19 collaboration and co-location of services (see for example Case Studies 8, 11 and 13. Addressing Attitudes and values in the mainstream It is important to ensure any negative community attitudes towards migrants are not replicated within agencies. This requires instituting a policy of openness and a positive attitude to people from diverse backgrounds. CMYI is guided by principles of human rights, diversity and participation. We listen closely, and seek continuously to learn from young people and their families as to how we can effectively include them in services and community life generally (Case Study 11). One of the critical factors that impacts organisational change in relation to effective work with diverse groups is reflection on the organisation s values and policies (Cox 2001, cited in 26). Attitudes towards difference are identified as a major barrier to successful inclusive service delivery and it is essential that these are addressed. Agencies where staff value difference, and are supported to work in ways that are inclusive, are positioned as culturally competent. Developing Cultural competency in the mainstream Policies of openness ought to include strategies to develop the cultural competency of a service. A key strategy here involves hiring staff who reflect the community in which the service operates. This however, can be a challenge in itself, and harder to achieve for a mainstream than culturally defined services, as migrants and refugees even from the same country are not a uniform group (11). In mainstream services it is not possible to have staff available who will provide an exact match with all the variation evident in the community. Agencies therefore need also to develop partnerships with culturally specific and multicultural agencies in order to call upon their skill and expertise. It is important to note that it is possible for staff to be shared amongst several different agencies, so that a skilled, culturally competent staff member from a particular cultural group may work for several agencies 17

20 in the community, thus maximising the benefit to all. Such sharing of human resources must be undertaken with caution and accompanied by appropriate remuneration to avoid possible exploitation of those workers who might be already quite vulnerable. This is about understanding the importance of cultural context and family, community and cultural identity. This involves meeting the family, if it suits the young person, joining a family picnic, doing a home visit or attending an event it s about working within a family context. Sometimes this involves using translators or taking an opportunistic approach - for example when transporting youth to activities (Case Study 11). It is also essential to address cultural competency among staff through training. One such training focuses on a dialogue method to facilitate understanding of cultural values and conflicts (11). This refers to communication and reflection around cultural expectations rather than information about specific cultures, as the latter can often lead to unintentional stereotyping (27). Exploring differences in values and respecting different life choices is essential for social inclusion practices (22). This is the first step to strengthening communities from CaLD backgrounds. NCS is also an equal opportunity employer and as such has diverse cultures within staff at the centre. Staff undertakes training and many have gained qualifications. We recruit staffs that are both bicultural and bilingual, many from the local university (Case Study 8). Linking mainstream with community leaders Individuals can take a crucial leadership role in developing and strengthening community capacity and social inclusion. Some of them, and frequently this role is taken by women, are identified as the quiet contributors to community building, through their facilitation of informal community networks. These networks are usually related to general neighbourhood support, care of children and emotional support, which contribute to the creation of strong, self reliant neighbourhoods (18). Culturally specific, multicultural and 18

21 mainstream services who work with CaLD families and their children need to capitalise on these strengths. To do that, however, there is a need to recognise the important role women can play in community building and provide them with opportunities to strengthen and further develop their skills in relational leadership (28). Such leadership style is based on networks and the process of influence between leaders and the members of the community. Such influence relationships derive from a culture of trust and common purpose. The role of women as community leaders can be utilised by mainstream services, especially those related to education and care. Community leaders do not always represent the whole of a particular community and staff must be aware of the limits of the influence of the leaders with whom they work. In some cases clan relationships and historical enmities can be strong and impair the ability to develop representative relationships. In addition, it is important to recognise that in many cultures men and women play different roles and agencies need to ensure they do not create a conflict of interest for their community leaders by requiring of them influence that is beyond their power. It is possible to undermine the status in which community leaders are held within their community by encouraging them to act in ways that support agency goals but actually conflict with their position in the community. Staffs working with community leaders have to be prepared to listen to their community leaders and respect their judgement. Community leaders are often engaged with mainstream services/agencies in a voluntary role. They act as consultants, members of consultative or Management Committees and as unpaid community workers. A number of services are able to pay workers to carry out prescribed roles such as that of bilingual-bicultural workers. Culturally-specific workers come from the same cultural background as the community members with whom they work and receive training in order to carry out their responsibilities. It is important for such workers to be appropriately managed and adequately paid, as this casual employment is often the only one that is available to them. Where agencies are able to co-operate, they are sometimes able to share such workers, enabling workers to develop sustainable employment and the 19

22 community to benefit by the sharing of the workers skills and expertise across several agencies. Such roles are becoming increasingly valued around the world. Italy, for example, has recently developed a unique profession entitled Cultural Facilitator with it s own training and a growing professional recognition (29) to work with identified cultural groups. Developing appropriate mainstream funding and contracts Although there are some examples of mainstream services developing strong community networks on restricted resources, this happens at the cost of dedicated individuals, who contribute their private time and utilize personal networks and means. In the long term, staff of such services continually operating on limited resources get burned out and leave (30). Services ability to facilitate positive networks with and within communities is shaped to a great degree by adequate funding and government support. Such funding is needed for training to develop cultural competency, physical resources, as well as employment of well qualified and experienced staff who are able to reach out to the communities and work with their leaders. Funding agreements with mainstream organisations could possibly identify an allocation towards serving children and families from CaLD backgrounds, in proportion to their representation in the community. Mainstream organisations can thus call upon culturally specific or multicultural services to work with them in developing and running relevant programmes, not only enhancing the support available to migrants but developing capacity in mainstream staff. Focusing on partnerships and co-location The agency needs to have a model of service delivery that will allow for easy partnership. As CaLD community members mobility is often restricted due to their disadvantage, and sometimes their cultural norms, developing a model which will allow for sharing physical and social places allowing for informal interaction, networking and easy access to services seems of prime importance. 20

23 Our services (child care centre) are co-located with a playgroup and a supported accommodation programme. We use the Bicultural Support programme and utilise diverse cultural resources and support. (Case Study 8). The MCH Nurse has been embedded within the AMES team - visible and accessible onsite as a constant reminder to IHSS Case Workers and English language staff The nurse has been able to access parents in AMES English Classes when she is onsite and provide education regarding MCH issues as part of their English Language classes (Case Study 13). Examples Case Studies 1, 8 and 13 are examples of mainstream services. LESSONS ABOUT SUCCESSFUL INCLUSION We believe that achieving successful inclusion for CaLD children and families requires a different way of thinking and working. A different type of collaboration culturally specific, multicultural and mainstream agencies working together Our discussion so far, based on a review of the literature and the lessons learned from the Case Studies, demonstrates that agencies aiming at successful inclusion cannot work in isolation. Instead they need to work in true partnerships that involve sharing information, trusting each other and breaking down traditional boundaries about service responsibilities. The project is working collaboratively with the Gosnells Women s Heath Service CRIO project that has the resources to work with individual CaLD families and to link them to services in the area the combination of both project s staff resources and expertise has enabled the two 21

24 projects to achieve together what each on its own could not have (Case Study 3). Culturally specific, multicultural and mainstream agencies all have a vital role to play in delivering services. A decade ago Karp (31) coined the term wraparound services to reflect the need for consumers of services to feel service delivery is seamless; that consumers do not experience gaps or duplications in services. In more recent years other terms such as joined up services or whole of government services have become more popular. Joined up services arise out of a government approach to working that acknowledges the need to work in collaborative partnerships. In Australia this is called connected government (see and it is focused on ways of integrating policy and programmes across different government departments and jurisdictions so that programmes can offer holistic services (32). Connected up government requires government to work in partnership with the community; sharing power, work, information and resources and working towards a common goal. Sure Start in the United Kingdom reflects the joined up service approach (see Sure Start is driven by a government position which requires local agencies to work in partnership in offering integrated services to families and children in order to receive funding. Services may include outreach and home visiting, family and parent support, quality opportunities for play, learning and child care, child health and development advice and care, and support for those with additional needs. Other programmes relevant for their community s needs such as budgeting, literacy training, English language and employment courses may also operate under the Sure Start banner. None of these services receive support alone until they demonstrate they are working in partnership with each other. The idea of joined up services was the foundation of Communities for Children (C4C) which arose out of the federal government s Stronger Families Stronger Communities initiative ( _children.htm). C4C emphasises a collaborative approach in meeting the needs 22

25 of young children (0-5 years in this case) and their families by offering programmes based on an assessment of local strengths and needs. At the various C4C sites around the country co-ordinating bodies (called facilitating partners) work with local organisations and local people to develop different programmes. Some of these include home visiting, early learning and literacy programmes, early development of social and communication skills, parenting and family support programmes, child nutrition, and community events to celebrate the importance of children, families and the early years. Successful joined up services rely on the existence of a range of services (culturally specific, multicultural and mainstream) and the development of good connections between them, and between services and community members. Connections between services can be facilitated by co-location by sharing physical facilities. Sometimes this can be as simple as different agencies renting rooms in the same building. Alternatively, agencies may share infrastructure (eg receptionist, meeting rooms, and staff rooms) but continue to operate separately. Another option involves operating in crossagency teams. The most relevant key worker is chosen to be the multiagency interface with the consumer and is supported by staff from all the other agencies represented in the team. Such partnerships require each agency to have the relevant funding model, policies and procedures to support collaborative work. Connections between agencies and community members rely on an extensive knowledge of the community and the development of trust between agency staff and community members. Extensive worker involvement in the community builds trust. Some programmes achieve this through employing local community members. The belief is that cultural sensitivity, flexibility and language skills are essential pre-requisites for staff, and that professional skills can be learned through additional training (11). Other programmes encourage workers to become involved in a range of community events and activities. Many agencies focus instead (or in addition) on identifying community leaders (people recognised as having status and respect in their particular community) and liaise with them, hoping 23

26 that the trust in which the community leader is held will transfer to the agency itself. Thus knowledge of the community can be obtained through: Employing community members as workers Supporting workers to become involved in the community in a variety of ways Identifying key community leaders and involving them in the agency Shaping agency policies and procedures to create the space for partnerships between agencies, for worker involvement in the community and community involvement in the agency requires organisational commitment and leadership (33). Managers need to provide flexibility in job descriptions and resourcing to support workers. Funding bodies need to allow for sufficient flexibility in requirements to support agency activities. Managers, policymakers, workers and funders alike need to understand that success is based on an approach to working that requires new ways of thinking and operating. A different theoretical framework Agencies and staff need to think clearly about what they want to achieve and their own assumptions and beliefs about community work. The reality is that inclusion will not be achieved through token or surface gestures but through a WAY OF WORKING that reflects the theoretical framework outlined below (22, 33). That way of working requires heart, knowledge and skills. The principles of high quality community work apply as does the ability to work in a manner that demonstrates cultural competence. Core community work principles We argue that three fundamental principles apply in high quality community work (see 34 for a full discussion). 1. An ecological perspective workers see that children and families are disadvantaged and excluded and the temptation is to attempt to address this by focusing on the individual, offering skills and knowledge 24