INTRODUCTION
3.1 To ensure a fair and efficient distribution of resources, a funding program should have a planned approach. This chapter considers the provisions of the DSA that relate to planning disability services. The DSA provides that it is an object to:
ensure that designated services for persons with disabilities are developed and reviewed on a periodic basis through the use of forward plans.1
Whilst regular review of service programs and appropriate planning is essential, this objective is too broad and vague to be of real use. It does not state the outcome sought from the development and review, nor is it clear what role forward plans play in reviewing disability service provision. The objective may also not go far enough in facilitating other goals of the DSA. For example, advancing the object in section 3(b)(i) to ensure that the services provided under the DSA complement other services available generally in the community, requires adequate planning. Data must be collected concerning the needs of people with a disability, and whether the services generally available meet (or are able to meet) those needs.
CURRENT PLANNING
3.2 In its most recent Annual Report, ADD described the activities of the local area planning groups in 16 planning areas in NSW. It also listed problems identified in the local area planning process. These included:
- the need for improved demographic data;
- the need for more accurate information on levels of service provision;
- the need for co-ordination between the Disability Services Program and HACC funding processes;
- a lack of skills in the planning groups in analysing and interpreting technical information;
- the inappropriateness of groups identifying new funding priorities in order of importance based on limited information;
- the need to co-ordinate consultations about planning with other government agencies;
- the need for reasonable time frames to undertake planning; and
- the need for a better mix of service providers and consumers within the local area planning groups.2
3.3 It was anticipated that population group planning and a regional planning framework (to be introduced in 1998-99) would help address some of those problems. The population group planning model would provide data on the supply and demand for services administered by ADD within areas, and the regional planning framework will build on that data through consultation. ADD will then produce plans for each of the six ADD regions, including data from the local area groups. The regional plans are expected to provide a clear picture of service provision within areas and include agreed targets for service provision at a local level.3
VIEWS EXPRESSED IN SUBMISSIONS
Need for a planning framework
3.4 Submissions were concerned about the “gross inequities in the distribution and allocation of disability programs and services across the State”.4 The Commission was told at its public seminars that there are significant gaps in service provision in some areas and that planning is necessary to address these. For example, the number and range of services in rural areas is often limited.5 Most submissions which addressed this issue commented that the DSA should provide for planning.6 People with Disabilities NSW Inc noted that the DSA ought to be amended to provide a statutory framework for planning.7 Submissions suggested that the framework should include the following requirements:
- relevant data should be collected and published;8
- people with a disability and their associates should be consulted;9
- detailed plans should be prepared, published, monitored and evaluated;10
- a plan should reflect local priorities;11 and
- programs and services should be allocated equitably.12
3.5 In submissions and during consultations, people referred to the inconsistency in funding between services.13 The view was expressed that overcoming inconsistency would require detailed co-ordination arrangements between specialist and generic services at regional and State levels.14
Need for co-ordination
3.6 An important part of planning is co-ordination with existing services, agencies and Departments. Submissions and consultations emphasised the importance of co-ordination between agencies involved with people with a disability.15 Services delivered to people with a disability should be “seamless”, including services administered by different departments and provided under different legislation.16 Submissions argued that co-ordination is crucial because it:
- makes it easier for Aboriginal and Torres Strait Islander people with a disability and those from non-English speaking backgrounds to choose services that are appropriate in terms of language, culture and religion;17
- reduces problems involved in dealing with multiple agencies;18
- ensures privacy, trust and efficiency of assessment, and facilitates communication and referral.19
3.7 NCOSS argued that co-ordination can lead to collaborative service provision. Co-ordination is especially important for people with disabilities with high and complex needs, challenging behaviours, Aboriginal and Torres Strait Islander people, people from other cultural and linguistic backgrounds, people who live in remote or isolated areas and people who are financially disadvantaged. At present under the DSA, good co-ordination depends almost solely on the goodwill of individual workers. As a result, the DSA should refer to co-ordination as a required element of program implementation and service provision.20
THE COMMISSION’S VIEW
Complexity of the disability services sector
3.8 The disability services sector in NSW is one of the most complex sectors in the community services area. Many service providers are charitable organisations which contribute a significant portion of their own funds. The amount services receive would appear to be based more on history than on the numbers or needs of those for whom they provide services. Service providers transferred from Commonwealth to State administration (about 25% of all services) have been funded, and continue to be funded, differently from those that have always been administered by NSW. Services operated by DOCS are funded on yet another basis. Some areas of NSW and Sydney have greater access to services than others.
Planning is important
3.9 Good public policy requires that the process by which public money is distributed for public programs should be transparent. The funds should be equitably distributed on the basis of identified criteria. ADD recognises that current resources are distributed inequitably across the State.21 Where resources are scarce this may cause a number of difficulties. Consumers with equal levels of need may have to compete against each other for assistance. Those with the most vocal advocates may receive services while those with equal or even greater need do not receive support. Service providers operating from very different funding bases are required to comply with the same financial accountability and quality standards.22 In the context of this complexity and inequity, very detailed planning and co-ordination is needed to work towards achieving an equitable and well-administered funding program.
DSA should provide for planning
3.10 To underline the importance of planning, the DSA should require the Minister to prepare a four-year plan for the provision of disability services. It should also set out the process the Minister should follow in preparing the plan. The process should include:
- identifying appropriate planning areas;
- collecting the best available data on demand, supply and unmet need in these areas;
- consulting with all relevant stakeholders;
- establishing mechanisms for co-operating with mainstream service providers, including agencies providing services and support for children;
- taking into account the needs and views of people of non-English speaking backgrounds and Aborigines and Torres Strait Islanders; and
- identifying priorities for service provision by location and type of service.
3.11 These changes will support the Commission’s earlier recommendation to include a new object “to ensure that access to services is determined on a fair and equitable basis”.23 They should also help to achieve the object in section 3(b)(i) by enabling ADD to identify better the specialist services needed to complement services generally available to people with disabilities in the community. To ensure transparency, the Minister should publish the four-year plan for service provision. The plan should identify the anticipated funds available, and set out how and when the funds are to be spent. The Minister should update the plan annually and publish the updated version each year. This would also help self-funded organisations to plan their service provision.
FOOTNOTES
1. DSA s 3(f).
2. NSW, ADD, Annual Report 1997/98 at 26.
3. NSW, ADD, Annual Report 1997/98 at 22-26.
4. See, for example, People with Disabilities (NSW) Inc, Submission at 21.
5. RR 9 at para 1.77.
6. Disability Information Service Inc, Submission; Nepean Independent Living Committee Inc, Submission; Western Sydney Intellectual Disability Support Group Inc, Submission; Autism Association of NSW, Submission; The Spastic Centre of NSW, Submission; and Confidential Submission 1.
7. People with Disabilities (NSW) Inc, Submission at 36.
8. People with Disabilities (NSW) Inc, Submission.
9. See, for example, Autism Association of NSW, Submission.
10. See, for example, Disability Information Service Inc, Submission; and Western Sydney Intellectual Disability Support Group Inc, Submission.
11. Western Sydney Intellectual Disability Support Group Inc, Submission.
12. Nepean Independent Living Committee Inc, Submission; and People with Disabilities (NSW) Inc, Submission.
13. Dunrossil Challenge Foundation Ltd, Submission.
14. People with Disabilities (NSW) Inc, Submission.
15. D Newey, Submission; Autism Association of NSW, Submission; NSW Council for Intellectual Disability, Submission; Deaf Society of NSW, Submission; The Spastic Centre of NSW, Submission; and Confidential Submission 1.
16. ACROD Ltd NSW Division, Submission.
17. Ethnic Childcare, Family and Community Services Co-operative Ltd, Submission.
18. DeafBlind Association NSW, Submission.
19. NCOSS, Submission.
20. NCOSS, Submission at 10.
21. NSW, ADD, Annual Report 1996/97 at 14.
22. Consultation (ACROD NSW Division, Sydney).
23. See Recommendation 7 at para 2.25.
