United Nations Public Service Awards Case Studies

This Australian Government Department of Agriculture, Fisheries and Forestry (DAFF) nomination for a United Nations Public Service Award recognises the improvements made by the Department, working in collaboration with other Australian government agencies, other levels of government, industry and the community to provide tailored and flexible services to drought-affected communities in rural Australia.

DAFF is responsible for facilitating the government response to drought in Australia. DAFF aims to develop and implement drought management policies that focus on improving farmers’ capacity for self-reliance and preparedness for future droughts. However, in the case of exceptional droughts DAFF is responsible for ensuring assistance is available to address some of the immediate financial, social and emotional impacts of drought. Since 2001, DAFF has been leading a whole-of-government approach to refining policies and strategies that minimise the impact of drought and providing a range of support services to producers and rural communities in need.

In mid-2006, as the current drought entered its fifth year in many parts of Australia, DAFF led a new policy development process to ensure programs were able to meet the needs of such a long and intense drought, implemented tailored programs, launched a new national drought information service and reinvigorated whole-of-government coordination arrangements.

DAFF’s commitment to delivering drought-related services to rural Australians in an efficient and accessible manner has ensured that drought assistance is received by those who need support in a timely manner. DAFF fosters a collaborative approach between key government agencies such as the Department of Human Services, Centrelink, the Department of Families, Community Services and Indigenous Affairs and the Department of Health and Ageing. DAFF also collaborates effectively with other key stakeholders such as state and territory governments and farming organisations to bring a comprehensive national approach to managing the impacts of drought.

Consultation with affected industries and communities and establishing a common information base has allowed drought assistance provided by all agencies to meet the most pressing community needs and avoid duplications.

Recent initiatives such as the National Agricultural Monitoring System (NAMS), revised approaches to assessing regions for drought assistance, and facilitating whole-of government approaches to welfare and counselling assistance by DAFF have enhanced the role, professionalism and visibility of Australian public services and their commitment to serving the Australian community. The efforts and initiatives of DAFF and other government agencies have led to integrated government services, improved public access to up-to-date information, reduced time taken in applying for and receiving drought assistance and enhanced the reputation of the capacity of government to meet community needs in times of crisis.

What is the initiative about? (the solution)
Severe drought has been affecting Australia for five years. DAFF is leading a whole-of-government approach across government and between levels of government to assist farmers and rural communities. Drought is part of the Australian environment. However, for such an intense and long event as the current drought, coordinated support from governments and the community is required. At the national level, whole-of-government coordination ensures that all agencies with responsibilities for elements of drought assistance are kept informed of emerging climatic conditions, program delivery issues and possible new initiatives. It also contributes to targeted drought policy development for current and future events. Coordination between levels of government ensures consistent information flows and the coordination of new and continuing initiatives. Community and industry involvement ensures that policies and programs are practical and accepted by the community and industry. DAFF aims to improve the efficiency of drought support. During the drought, new and improved drought assistance measures have been introduced in collaboration with other levels of government and following community and industry consultation. These measures include more streamlined assistance processes, extension of business support to small non-farm businesses, additional counselling and advisory services, provision of professional advice and planning for farmers facing difficult decisions and community grants including small grants provided through a community-based organisation, the Country Women’s Association. A National Agricultural Monitoring System (NAMS) has streamlined drought assessments. The NAMS centralises and consolidates key climate and production data in one location. A DAFF drought website providing information on all government drought assistance measures also simplifies access to information. A ‘Drought Bus’, was introduced in November 2006 to give people who have difficulty accessing offices in regional centres access to a comprehensive range of government services. Good communication is fundamental to achieving effective whole-of-government coordination. Sound personal working relationships allow flexible program delivery without misunderstandings. Institutionalised communication systems such as interdepartmental committees, intergovernmental working groups and web-based information provide an enduring framework for coordinated policy development and program delivery. The framework for responding to drought provides a model for whole-of-government service delivery for communities in difficulty. Elements of the approach may also be applied to other situations. For example, the NAMS concept is being applied to environmental monitoring and reporting. The Drought Bus is available as a mobile service centre for responding to disasters and emergencies. This effective and flexible mechanism that responds well to community needs has enhanced the reputation of a professional and transparent public service. Australia’s national farmer organisation the National Farmers’ Federation (NFF) recently said ‘Given this is one of the worst droughts on record, there are new challenges and pressures facing farming families. NFF appreciates the extra measures the Government is taking in recognising and supporting farmers during this period. It is important to recognise that despite noise from some critics, Exceptional Circumstance (EC) support is not about propping up unviable farmers, it is about supporting farmers through a rare and severe event, in order to protect the nation’s agricultural productive base’.

Who proposed the solution, who implemented it and who were the stakeholders?
2001 – After significant crop and pasture failures in parts of Australia, income support payments were introduced to assist farmers meet daily living needs whilst state governments prepared applications for regions to become Exceptional Circumstances (EC) declared. Once declared, business and welfare support and community assistance became available. 2002 – One of Australia's driest years on record prompted the introduction of temporary measures including: welfare assistance whilst applications for EC assistance were prepared by states; additional emotional and financial counselling services; and community grants via organisations such as Red Cross and Country Women’s Association (CWA) to ensure that those who normally do not apply for assistance receive help. 2003 – An independent panel conducted a nationwide review of drought policy to hear the views of rural and regional industries on the effectiveness of all governments' responses to drought. A key finding was the need to design efficient, effective and equitable means for delivering drought related assistance. 2004 – The review findings were considered at the 2004 National Drought roundtable which focused on shaping future drought policy to be more efficient, effective and equitable. This lead to the development of a web based tool (NAMS) to consolidate national climate and production data. 2005 – Dry conditions continued, with some areas experiencing multi-year drought. New processes were introduced to minimise the ‘paperwork’ required to continue receiving assistance. The initial 23 week assessment process, already reduced to 2 to 3 months, was further reduced to 6 weeks. DAFF also coordinated additional financial and social counsellors and further funding for the CWA to coordinate more community gatherings. DAFF was integral in developing the Drought Assistance media campaign (September 2005), alerting thousands of farmers to options available and their need to seek help during this crisis. As a result of the campaign, farmers who believed they had a good understanding of drought assistance rose from 49 per cent to 70 per cent. Awareness of specific government measures rose by up to 30 per cent. About 45 per cent of Australia was EC declared, and some 72,000 farmers affected. October 2005 – A government-industry reference group was established to develop proposals to improve future drought preparedness and management. July 2006 – Launch of the NAMS website, developed by DAFF in partnership with state governments, industry and scientific organisations. NAMS provides centralised land, climate and production data for the preparation of applications for EC assistance. October 2006 – Worsening drought conditions led to new Government assistance measures including: extended assistance until 2008; grants for professional business advice recognising the financial impact of prolonged drought and the difficult choices now facing many farmers; changes to assistance eligibility criteria; and funding for social, emotional and financial counselling. Drought assistance was extended to small businesses recognising the impact drought has on businesses that service farmers. November 2006 – Drought Bus launched, taking specialist staff to drought-affected areas in a fully functional office to speak with farmers and small business owners about Government support. Social workers are available to those experiencing drought related financial and emotional hardships.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
Australia is currently experiencing the fifth year of one of the worst droughts on record. In the last 12 months, there have been significantly lower than average rainfalls and higher than average daytime temperatures. Low rainfall is severely affecting water supply systems, for example the Murray Darling Basin. Severe water restrictions are in place across most irrigation areas and rural and metropolitan communities. The ongoing drought has drastically reduced the productivity of thousands of farms, many of which have had to sell remaining livestock and forego sowing new crops. Farmers, businesses and rural communities are experiencing severe financial and social hardship. To meet the business, social and emotional impacts of such an extreme event, DAFF, on behalf of the Australian government is coordinating action with other levels of government, community and industry service providers and other national agencies. The Australian approach to drought accepts that preparing for drought should be a part of normal farm and community planning. However, in a drought as intense and long as the current event, coordinated support from government and the community is required. During the early stages of drought, the Australian government and state and territory governments provide information to help with planning. As drought worsens, information and social support and advice services are made available, initially by state governments with the cooperation of the Australian government. Direct support to affected farmers and communities is also frequently provided by state governments in the form of measures such as rate and charges relief, assistance with stock and fodder movement charges. When drought becomes extreme, substantial Australian government support primarily through the Exceptional Circumstances arrangements in the form of welfare support and business support for otherwise viable businesses is provided. The Australian government is committed to aiding farmers and rural communities by providing Exceptional Circumstances assistance. Regions experiencing a rare drought, resulting in a severe downturn of farm income for at least 12 months, are declared as Exceptional Circumstances areas. Financial assistance provided to farmers is intended to be short-term, targeted to prevent their forced exit from farms that are viable in the longer term, and meet the ‘green box’ requirements of the World Trade Organization. The Australian government is also providing a broad range of assistance, including grants for professional business advice, assistance for small businesses reliant on agriculture and financial, social and emotional counsellors to provide services to rural communities in recognition of the social impacts of drought.

b. What were the key development and implementation steps and the chronology? No more than 500 words
DAFF’s priority is to develop appropriate drought management policies, to ensure that the Government’s response to drought is well understood, that rural Australians receive the assistance they are entitled to, that services and assistance are delivered quickly and efficiently and services are tailored to meet emerging needs. To facilitate this, DAFF has been the driver for a whole-of-government approach to service delivery and policy development. Recognising that drought is a part of the operating environment for Australian agriculture, the Australian government has made significant investments into developing policies that encourage farmers to prepare for drought. However, given the geographic extent, duration and severity of the current drought, DAFF drought programs and policy has had to focus on delivery of short term support services to rural communities. Preparing for drought remains important. Longer term drought policy development is being continued in parallel with program delivery.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
Whole-of-government service delivery is coordinated at the national level by a standing interdepartmental committee chaired by DAFF. The committee ensures that agencies with drought responsibilities are informed about emerging climatic conditions, program delivery issues and the need for and possible direction of new initiatives. Coordination between levels of government is achieved by a committee of Australian and state government officials reporting to a council of agriculture ministers. These mechanisms support consistent information sharing, discussion of new initiatives and continued coordination of existing programs. Through these coordination strategies across all levels of government several initiatives have been established. A DAFF drought website (www.daff.gov.au/droughtassist) has been developed and refined to provide clear and up to-date details on the government drought response. Fact sheets, handbooks, recent announcements, maps and contacts are available in one location, providing up to 80 per cent of information required to apply for drought assistance, and reducing the time taken to prepare an application from some three months to a few weeks. Similarly, the NAMS website has enhanced the Australian government response to drought. NAMS provides real-time Australian climatic, production and land-use information, with statistics linked by region and local government areas. Producers can also use NAMS forecasting information to prepare for changing conditions. Advice and information to farmers is also coordinated. Government (federal and state) and community organisations maintain networks of financial and social counsellors and professional advisers. To be most effective they must understand each others capabilities and make cross referrals where necessary. This is achieved through training programs, information sharing, and regular newsletters. Additionally, all regions hold ‘drought gatherings’ that allow community support services to interact with farmers and rural communities in an informal setting. The Drought Bus is a whole-of-government initiative that travels to drought-affected rural areas. Each day up to 90 people meet with specialist staff to discuss their eligibility for assistance and to receive financial and personal counselling. This is remarkable considering the population of some towns visited is less than 1,000. Direct and personal contact between the government and rural communities is a key achievement of the Drought Bus. Service delivery through rural service officers who understand the situation facing farmers gets a far better response than assistance delivered over the phone or internet. The Australian government is continuing to work with the states and territories to improve approaches to drought management. A Drought Policy Reform Stakeholder Reference Group was formed recently, comprising government (federal, state and territory) and industry representatives. The Reference Group developed broad directions for drought policies and a more consistent approach to describing and responding to drought. A ministerial council of Australian, state and territory agriculture ministers considered the recommendations, which DAFF will use to drive drought policy reform. Community consultation has been important in developing drought policy. The National Rural Advisory Council advises the Australian government on regional impacts of drought. Comprised of industry and community representatives the Council visits drought-affected areas, obtains information on community and regional needs and conveys information about government programs to the community.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Many of the changes resulting from the Government’s response to drought are in progress, with full impacts yet to be realised. However, a number of initiatives have already demonstrated success. Many of the new service delivery methods will be enhanced and continued for this and future Government initiatives. Whole-of-government initiatives have improved the delivery of assistance to drought-affected Australians. Internet-based information tools, mobile service units and responses to market research have all contributed to better Australian government services to farmers and rural communities. In the 2005-06 financial year, the number of approved applications for Exceptional Circumstances business support increased by approximately 60 per cent from the previous year. The number of new recipients increased from year to year with approximately 30 per cent of the total recipients of welfare assistance being ‘new’ to the program since June 2005, just before the media campaign began. The Drought Bus has been extremely popular with queues forming in some communities. It is estimated that up to 800 people used the service during the first three weeks of its tour. The presence of the Drought Bus has encouraged people to seek expert assessment and benefit appropriately from drought assistance initiatives. Due to the success of the first Drought Bus, another two buses have been launched. Drought communications have also been improved. To better tailor its services to rural communities, DAFF surveyed farmers and members of rural communities. Survey results highlighted the preference for direct communication over broad advertising and the importance of timely service delivery and government announcements. Mass-media advertising of drought assistance measures is now in the style of an ‘infomercial’ that conveys solid information in a form accessible to farmers. Improved communication with stakeholders and farmers makes it more likely those eligible will apply for assistance. Drought support in Australia is triggered by an assessment of climatic conditions. Web-based availability of a common information source shared by industry, the community and all levels of government has lead to a greater predicability and timeliness of drought declarations. This has assisted in managing expectations of support but also allowed support to be provided more quickly to areas in need. Before this drought commenced in 2002, drought assessments took 23 weeks on average. During this drought, it now takes only 8 weeks on average, with some areas in December 2006 being assessed in 3 weeks. Changes were also made to the assessment process to take account of prospective drought conditions. Following failed winter crops and a very bleak climatic outlook leading into Christmas, DAFF received very positive praise from rural communities and industry because of the speed of assistance provision. One of Queensland’s farmer organisations, AgForce recently said “… the Federal Government needed to be congratulated for recognising the seriousness of the problem and for introducing new initiatives … It’s pleasing to see that politics haven’t come into play as the Federal Government has listened to the farm sector and implemented a range of initiatives that will make a difference to people on the land.”

Is the initiative sustainable and transferable?
Drought is a recurring feature of the Australian environment. Delivering information and drought assistance to rural Australians will continue. New communication strategies and assistance mechanisms will be developed to respond to the changing needs of farmers and communities coping with drought and adjusting to normal operations once the drought breaks. In the meantime, the whole-of-government approach to streamlining drought assistance will continue to enhance service delivery to rural Australians. Beyond drought, DAFF has a broader responsibility for assisting rural businesses and communities adapt to change that may be caused by climate or changing economic and market circumstances. Recognising the effectiveness of the whole-of-government approach in drought management, DAFF will extend where appropriate similar approaches to other rural change and adjustment issues. DAFF will continue to facilitate regular inter-departmental meetings to develop rural policies and to discuss the implementation of any new measures. The Department will build on the work done with the government and industry Reference Group and continue working with inter-jurisdictional and industry forums to consider future rural policy developments in a consultative manner. The measures put in place by DAFF and other agencies during this drought provide a model for whole-of-government approaches to major issues facing rural Australians. Concepts such as the NAMS website where information is consolidated could be developed for use in health, financial or education matters. Similarly, the Drought Bus could be adapted to take other Government services directly to people to isolated communities, especially during events such as natural disasters. DAFF’s experience and capacity to work with community, industry and other levels of government when rural communities and industries are facing difficult circumstances can also be applied to disaster management. DAFF participates in the Australian Government Disaster Recovery Committee whose services were tested during the recovery from Cyclone Larry in March 2006. Information sharing, networks for working across governments and across agencies developed initially as a response to drought were able to be applied in this very different situation. DAFF has a prime role in facilitating the flow of information to constituents, the media and the public service. As the lead agency in responding to developments in the drought, DAFF is careful to provide up-to-date websites and to circulate information within the Government and to clients. Announcements are coordinated between Government agencies to ensure the public hears a synchronised message and communication tools, such as NAMS, provide timely information to farmers. DAFF promotes and extends the lessons it has learnt from drought management through participation in workshops and seminars on program design and delivery, monitoring and evaluation. Program staff continue to participate in workshops on evaluating the effectiveness of major programs aimed at assisting communities after a natural disaster, including severe drought. Many of the lessons learnt about effective and timely delivery of information have been incorporated into the design and content of the droughtassist website (www.daff.gov.au/droughtassist) and the NAMS website (www.nams.gov.au). In early 2007 DAFF will be hosting a seminar for interested agencies on working with rural communities facing change.

What are the impact of your initiative and the lessons learned?
The main challenges in providing drought-related services during the current drought has been to respond to an ever-changing situation and to develop and implement policies and programs that address both the economic and social impacts of drought. Wide and early consultation with affected communities, provision of accurate and current information and a capacity to respond quickly to changing needs in a comprehensive way are essential to effectively responding to the impacts of drought. Listening to affected communities and informing them of action underway can always be done better. Drought is always going to be a feature of an Australian farmer’s operating environment. It is important that the Australian government has strategies that will meet the needs of farmers now and in the future. As the intensity and duration of the current drought has unfolded, short term assistance had to be replaced with longer term measures. Assistance needs to be provided quickly and new measures introduced to meet changing needs. After five plus years of drought the economic impact of drought has meant that some farmers must face the difficult decision of leaving agriculture. The stress of drought on individuals and families has become more severe. Governments have had to respond with support such as information and counselling that can effectively reach individuals in very difficult financial and emotional circumstances. A Reference Group involving all stakeholders allowed timely and informed input to new policy development. Concerted efforts by agencies responsible for welfare at the national level, in collaboration with relevant community organisations and similar state agencies have enabled social support to be made available to affected communities and individuals. Providing a one-stop ‘drought bus’ to remote communities exemplifies the sort of new support implemented to ensure access by all individuals to the range of government programs available and to meet unprecedented demand caused by the rapidly deteriorating climatic conditions. Encouraging farmers and individuals in rural communities who may have never previously accessed government assistance was also a challenge. A major communications program based around the theme of ‘Don’t self assess’ was successful in encouraging people to seek advice on their eligibility for assistance. As the drought continues, this theme is to be repeated in future advertising campaigns. DAFF will continue to monitor and evaluate its provision of drought information and assistance services, to work to improve drought policies and programs and work with the relevant Government agencies, industries and communities to deliver effective and comprehensive drought support. A whole-of-government approach to drought support has enabled assistance to be applied effectively and provide confidence that governments are working together. When combined with community-based programs, hope is instilled that support is tailored to local needs and the community morale maintained that is essential to long term recovery when the drought ends. During drought, government support can ensure otherwise viable businesses and communities can be maintained. However, government support cannot replace long term self-reliance. When normal climate conditions return, long-term recovery will depend upon the capacity of communities and individuals to help themselves.


Institution Name:		Australian Government Department of Agriculture, Fisheries and Forestry
Institution Type:		Government Department
Contact Person:		Matthew Koval
Title:		General Manager Drought & ExceptionalCircumstances
Telephone/ Fax:		02 6272 5780
Institution's / Project's Website:		02 6272 3227
E-mail:		matthew.koval@daff.gov.au
Address:		GPO Box 858
Postal Code:		2601
City:		Canberra
State/Province:		ACT
Country:		Australia

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information