blueprint for a queensland language services provider · blueprint for a queensland language...

Blueprint for a Queensland Language Services Provider

October 2014

2 / October 2014 Blueprint for a Queensland Language Services Provider

Introduction The Queensland Government has expressed its commitment to:

the development of whole-of-government communication strategies that address language barriers, and

ensuring that Queensland is considered the best practice state for the provision of language services.

The Queensland Accessing Interpreters Working Group has undertaken some work to progress the achievement of these objectives through the development of a Blueprint for a Queensland–based languages service provider which will provide:

interpreting services (ethnic community languages, Aboriginal Australian languages and Auslan)

translating services

specialist training for interpreters working in contexts including medical, social service, legal, educational, business and trade, and

access to services through other language service providers (for example, interstate) as necessary.

The Queensland Accessing Interpreters Working Group is made up of a number of non-government bodies concerned with equitable service provision for people from culturally and linguistically diverse communities in Queensland. The Working Group has released several position papers and reports since 2008 drawing on key stakeholders from the community, social services sector and languages services industry. It has provided significant input to the development and review of the Queensland Government’s Language Services Policy and continues to undertake work to improve the delivery of quality language services in Queensland. As part of its role funded by the Queensland Government under the Community Action for a Multicultural Society (CAMS) program, the Queensland Council of Social Service (QCOSS) convenes the Queensland Accessing Interpreters Working Group. The Blueprint for a state-based language service provider has been developed over time by the Working Group members. The Blueprint for the proposal has been facilitated by QCOSS based on contributions from Working Group members and other key stakeholders.


Proposal To develop a state-based provider for interpreting and translation services in Queensland designed on a revenue positive model. The proposal puts forward the establishment of a new entity in Queensland to deliver quality language services to Queensland Government departments and to funded service providers. A Queensland language services provider can build a credentialed and professionally paid workforce in Queensland to deliver interpreting and translation services driven by quality.

Purpose of the Blueprint

This Blueprint has been developed by the Queensland Accessing Interpreters Working Group to promote the establishment of a Queensland-based language services provider. The Working Group is a collaborative group formed by non-Government service providers and peak bodies. A draft Blueprint was discussed with key stakeholders in the language services industry including NAATI, ASLIA, AUSIT, ECCQ, Professionals Australia, Cultural Diversity Queensland and non-government service providers. The Blueprint will form the basis of a submission to the Queensland Government for its consideration.

Credentialed workforce

Professional and competitive conditions of work

Revenue positive

business model

Responsive to Queensland language and regional priorities

Quality Service


The Queensland Plan

The Queensland Plan, Queensland’s 30 year vision, developed through community engagement and released by the Queensland Government in July 2014, provides the overall context within which to consider the development of a Queensland-based language services provider. The Queensland Plan includes measures that demonstrate that Government and communities:

recognise the impacts of population growth, seek to double the regional population outside South East Queensland, and capitalise on social and economic opportunities from diversity

celebrate diversity, respect Aboriginal and Torres Strait Islander cultures and embrace migrant communities

support the least advantaged and their active participation in community life

commit to having essential services available across the state to Aboriginal and Torres Strait Islanders, migrants, and people with a disability.

Queensland Government cultural diversity and language services policies

The Queensland Government Cultural Diversity Policy and Action Plan and the Language Services Policy and Guidelines released in July 2014 provide a framework for the development of a Queensland-based language services provider. The goals of the Queensland Government cultural diversity policy are:

language independence

community participation

economic independence and participation

education participation and attainment.

The Queensland Context

One in five Queenslanders are born overseas, more than a third are either overseas born or have at least one parent born overseas, Queenslanders speak more than 220 languages and approximately one in 10 Queenslanders speaks a language other than English at home. Overseas migration continues to be the largest contributor to the state’s growing population. In 2013-14, Queensland received 10,610 permanent settlers from other than mainly English-speaking countries. From 2011 to June 2014, almost 7000 new humanitarian entrants have settled in Queensland (Department of Immigration and Border Protection, 2014). It is estimated that there are approximately 203,000 persons of Aboriginal and Torres Strait Islander backgrounds in Queensland and many reside in remote communities retaining their own language. This data confirms the continuing need for access to professional interpreters and translators in


Queensland. The issue of meeting the needs of Aboriginal and Torres Strait Islander Queenslanders requires further examination. Service providers including the courts are reporting that they are using support persons for Aboriginal and Torres Strait Islander clients with low levels of proficiency in English. Access to appropriate interpreters for Aboriginal language speakers has been as a significant issue for the courts and other services working in remote communities. At present language services providers based in the Northern Territory can provide interpreters only for Wik Mungkan and a Torres Strait Creole. NAATI advises that records show that there are five accredited para professional interpreters contactable through Aurukun community and there are five recognised interpreters from Torres Strait Islander backgrounds on Thursday Island and in North Queensland.

Current language services provision in Queensland Queensland does not have a Government-based language services provider as is the case in New South Wales, Victoria, South Australia and the Northern Territory. There is great value in examining the interstate models but any consideration of those models requires that it be undertaken with regard for the particular and different geographic and demographic realities of service delivery in Queensland. In particular the regional, rural and isolated communities in this state present challenges for access to language services and to the attraction and retention of credentialed interpreters. Under the current arrangements for accessing interpreters in the Queensland Government, the estimated total spend by the Queensland Government Departments and non-government services funded by departments was $10 million in 2012-13. The Queensland Government funds Support with Interpreting, Translating and Communicating (SWITC) as a language service provider through the Department of Communities, Child Safety and Disability Services specifically for support to disability services. The operational budget for SWITC is approximately $0.7 million per annum. Under the current arrangements, most Queensland Government interpreter need is met using the Translating and Interpreting Service (TIS) managed by the Australian Government and On-call Interpreters & Translators, a private provider based in Victoria. This means a significant proportion of Government funds committed to interpreting are leaving Queensland. Generally, most interpreters are contracted by interpreting providers through Memoranda of Understanding (MOU) arrangements, and working on a casual basis. Providers, public and private, contract them at varying rates.


Commonwealth use of language services in Queensland

The Department of Social Services (DSS) provides a Free Interpreting Service (FIS) to non-English speaking Australian citizens and permanent residents communicating with approved community organisations and individual service providers. The Translating and Interpreting Service (TIS National) delivers the FIS on behalf of DSS. TIS National has over 2,800 contracted interpreters in over 170 community languages. Settlement Grants funded providers are also eligible to register for the FIS, for delivering Settlement Grants funded services. All eligible FIS clients are able to access both phone and on-site (face to face) interpreting except for pharmacies that are restricted to phone interpreting services only. Phone interpreting can be accessed 24 hours a day, every day of the year. On-site interpreting is available during business hours. Settlement Grants providers are able to access on-site interpreting inside, and outside business hours, when delivering Settlement Grants funded services. This information does not cover all interpreting services provided by DSS. DSS provides funds to a large number of services and programs that may include access to interpreting services. Access to interpreting services may be incorporated into the cost into the funding agreement or contract with the service provider, sourced by the service provider and then [the cost] reimbursed by DSS, or provided to the service provider directly, through a commercial interpreting service provider (including TIS National). The Department of Human Services engages 3500 interpreters registered nationally, 800 of which are in Queensland. More than 50 per cent of these interpreters are accredited.


Comparative summary across states and territories

State/Territory LSP * Model Approximate Proportion of permanent settlers from OTMESC*

New South Wales Language Services Unit embedded within a statutory body Budget approximately $8.9 million per annum Approximately 620 casual staff + HCIS-Health Care Interpreter Service across four health districts

34.48 per cent

Victoria Government owned enterprise Budget approximately $20 million per annum Approximately 3,000 interpreters on their database

30.29 per cent

Western Australia Common Use Arrangement Government Procurement system (mainly for Perth region)

13.17 per cent

Queensland Government departments and funded services access TIS, Oncall, SWITC or other private providers Budget approximately $10 million per annum

10.78 per cent

South Australia SA Interpreting and Translating Centre embedded within a government department Budget approximately $4 million per annum Approximately 300 casual staff

7.38 per cent

Northern Territory NT Interpreting and Translation Service embedded within a government department Approximately 2,400 contractors + Aboriginal Interpreter Service embedded in Department of Communities

Tasmania Government departments primarily access TIS

Commonwealth Government

Government departments primarily access TIS which is embedded in Department of Immigration and Border Protection

*LSP-Language Service Provider *OTMESC-Other than mainly English-speaking countries 2013-14

(ABS unpublished source)


In 2013-14, other than main English-speaking background permanent settlers to Queensland totalled 10,610, or 10.78 per cent of the Australian total.

Issues for interpreters and service providers The industry reports that interpreters and translators experience poor work conditions and remuneration, high out of pocket expenses and inconsistent work, making community interpreting an unviable profession. High attrition rates of credentialed community interpreters is a concern with loss of credentialed interpreters from Queensland to practice their profession interstate and off-shore, or to other careers entirely, all of which offer higher and more secure income. This leads service providers in Queensland to contract non-credentialed interpreters or bi-lingual workers (at the same or similar rates as credentialed interpreters), thereby undermining the quality of the profession and increasing risks for clients, government departments and community services. Private providers operate in a highly competitive situation where volume of business and profit can undermine quality of service. This situation significantly jeopardises the professionalism of the interpreting industry, resulting in some departments and organisations having reduced confidence in community interpreting.


Generally, private language service providers do not provide professional support, development and training for interpreters. Inconsistent access to interpreters and varying quality of interpreting in government services can result in poor outcomes for clients and significantly higher costs for government. This presents high risks for service users and providers in critical areas such as health, justice and police services as well as in other complex human services contexts.

Lack of data

There is currently limited data with which can to measure demand and trends in supply by:

credentialed interpreters

languages and

geographic location.

This data would be available and depends on the willingness of those agencies which procure language services and the language service providers themselves. The Queensland Government Language Services Policy states that Queensland Government agencies will monitor and report on the implementation of the policy by collation and analysis of:

census data regarding the percentage of the Queensland population that do not speak English well or at all (through the Australian Bureau of Statistics)

number of clients that require language support for the year (provided by Queensland Government agencies)

the amount spent annually on interpreters engaged by agencies (provided by Queensland Government agencies) and

the number of occasions interpreters are engaged annually by the agency (provided by Queensland Government agencies).

Data showing the number of occasions on which an interpreter was requested but could not be supplied would provide valuable planning information. There is insufficient data at this stage to enable the development of tenders for potential language services providers. At the least, any competitive tendering process would require:

detailed delivery specifications,

accurate performance targets and

cost benchmarks.


What a Queensland language services provider would achieve

Benefits

Jobs for Queenslanders in Queensland

Increased service output for investment as part of a revenue positive approach to language services provision

Increased ability to build language services that are

Responsive to regional Queensland

Increased career pathways for and improved retention of credentialed interpreters

Implementation of the Queensland Government Language Services Policy

Promotion of Queensland’s engagement in the languages of business and trade partners.

Key goal statements

Improving access to services by culturally and linguistically diverse (CALD) Queenslanders

Growing a Queensland industry

Developing the credentialed language services workforce in Queensland

Developing procurement of language services in line with the coordination and transformation of procurement services in Queensland Government

Enhancing the Queensland tertiary education sector’s role in the languages service workforce and

Increasing capacity to host national and international events and conferences in Queensland.

Program objectives

The objectives of developing a Queensland based language service provider are to:

develop a coordinated, proficient and quality language services model in this state

develop and apply state of the art technology in telephones and video-conferencing for the operation of languages service

apply the existing spend in Queensland in a more efficient manner in order to provide a broader reach of service

create jobs and career pathways for interpreters and translators in this state

determine and expand the languages requiring professional interpreters based on Queensland demographic priorities

create efficiencies in the procurement of language services for the Queensland Government, and, as an adjunct,

build the capabilities of the Queensland tertiary education sector in the education, training and development of workforce for the language services industry.


Key program deliverables

Develop new legislation or policy approvals to establish a Queensland-based language services provider.

Establish program and governance structures for the new language services provider.

Establish dedicated fund allocation to a central control (coordinated procurement) with greater ability to provide detailed reporting on expenditure.

Establish a telephone and IT booking system that is leading edge drawing on the strengths of existing systems in Queensland and interstate.

Grow the number of interpreters available for work with remote Aboriginal and Torres Strait Islander communities.

Revenue growth for re-investment in language services industry following initial outlays to establish infrastructure.

Create more opportunities to use Queensland interpreters in trade shows, in import and export activities and with visiting international delegations.

Establish partnerships with education facilities, community groups and other key stakeholders to manage and support the new service.

Outcomes

Queensland able to retain the resources in the state and enjoy the benefits of the multiplying factor.

Efficiencies in language services provision will allow Queensland Government to re-direct revenue over time toward further industry growth and development in Queensland.

Utilisation of state-of-the-art technology and channels will meet communication challenges in rural and remote parts of Queensland.

Policies to use only credentialed interpreters embedded in procedures of the Queensland provider.

Provision of consistent and coordinated professional development and support to interpreters working in specialist and complex areas.

Targeted and planned development of languages required in Queensland including priorities for Aboriginal and Torres Strait Islander languages.

Quality assured, reliable, ethical and responsive interpreting services regulated and monitored by the Queensland Government.

Promotion of Queensland as a state that can engage in the languages of business and trade partners.

Increased confidence in interpreting services will minimise risk for service users and providers alike.

Orderly employment of practitioners will help to define a career path and encourage more to join the profession and discourage others from leaving.


Program structure

Benefits

M More jobs for Queenslanders

Engagement with business and trade

Increased pathways for and retention of interpreters

Increased output with revenue positive model

Implement Language Services Policy

Increased response to regions

Outcomes

Retain resources in Queensland.

Promote Queensland able to operate in a culturally diverse region.

Central control of resources for coordinated procurement reporting.

Develop career pathways for interpreters and grow job numbers in the industry.

Queensland Government regulates and monitors standards for high quality services

Ensures interpreters are NAATI credentialed.

Delivers consistent and coordinated professional support to interpreters.

Increased confidence in quality language services.

Minimise risk for service users and language service providers.

Growth of revenue to re-invest in development of the industry.

Have state of the art technology to meet complex settings and regional needs.

Make data available across government and across state.

Key deliverables

Develop new legislation /policy basis for new language services provider.

Develop implementation plan for phasing in new language services provider.

Establish program and governance structures for new language services provider.

Establish budgeting and reporting systems.

Establish dedicated fund allocation to a central control.

Promote a Queensland that can engage in the languages of business and trade partners.

Develop specifications for and procure an IT and telephone system.

Developing operational policies and procedures for the new service.

Build capabilities of Queensland tertiary sector in building workforce for language services sector

Expand the number of Aboriginal and Torres Strait Islander languages for which professional interpreters are available.


Establishing a viable model in Queensland

The model must be:

reliable, timely, accessible 24 hours per day, seven days per week

simple and easily used by Government and Government funded service providers

able to effectively meet the language needs of culturally and linguistically diverse Queenslanders providing for:

o ethnic community languages

o Aboriginal Australian languages

o AUSLAN

fee-free to Government funded service providers and their clients

able to access interpreters from inter-state when this is required for the purposes of maintaining confidentiality and anonymity.

A feasibility plan for the establishment of a state-based language services provider has not yet been undertaken. However, based on the following factors it would appear that a viable state-based provider can be developed in Queensland. Those factors are:

overseas migration from other than mainly English-speaking countries current and estimated future share of net

current spend on language services in Queensland by both State and Commonwealth Government departments and their funded services

plans for growth of credentialed language services under the new Queensland Government Language Services Policy.

The new Queensland based language services provider would require initial set up costs to establish the necessary infrastructure to commence operations and would over time develop a revenue positive budget.

Risk Management Strategy

The language services industry is currently in decline in Queensland and will be unable to meet growing demand in the future unless action is taken now. A new entity is required to stabilise and grow the industry. This could be a state-owned or private company or be a non-government organisation. A risk management strategy would need to be developed as part of policy and program development plans. The strategy will need to include mitigation strategies to ensure continued supply of current languages services procurement arrangements while a new entity and arrangements are established in Queensland.


All current Memoranda of Understanding and procurement arrangements would remain in place until a new Queensland based entity and procurement system were introduced over a staged implementation process. It would not be the intention of a new state-based language services provider to replace arrangements in place by Commonwealth Government Departments operating in Queensland. However, over time, the Queensland based provider may submit competitive tenders to Commonwealth agencies as its own capacity and capability grows.

Stages of Implementation

Stage 1 includes :

development of a Prospectus and a Blueprint for a Queensland language services provider

initial and targeted consultation with key industry stakeholders

submission to Queensland Government for consideration

policy decision to proceed to planning stage.

Stage 2 includes:

identification of agency and resources to lead project management

development and oversight by a Project Management Committee

development of program management plan showing hierarchy of projects

development of risk management strategy for Stage 2

development of a program business plan

development of stakeholder and industry engagement strategy

development of program specifications and costings.

Stage 1

Policy Decision

Stage 2

Planning

Stage 3

Implementation


Stage 3 includes:

development of legislation/policy to create the new language services provider entity

development of risk management strategy for Stage 3

phased implementation over three to four years.

Consultation to date

Members of the Queensland Accessing Interpreters Working Group (QAIWG)

Maureen Fordyce Amparo Advocacy

Cecilia Barassi-Rubio Immigrant Women’s Support Service

Sarah Hoyes Multicultural Development Association

Jenny Ryan Mater Health Services

Jim Duncan NAATI, Queensland Manager (advisory role)

Rachel Wicks Centacare, Cairns

Shine Jang Nambour Community Centre

Sediqa Karimi Association of Australian Tertiary Students from Afghanistan

Grazia Catalano (CONVENER-QAIWG)

Queensland Council of Social Service (QCOSS)

Attendees at the Stakeholder Engagement Roundtable hosted by QAIWG on 15 September 2014

Maria Corbett Australian Institute of Interpreters and Translators (AUSIT)

Maree Madden Australian Sign Language Interpreters Association (ASLIA), National President

Finn McCarthy-Adams Professionals Australia

Rod Stephen Ethnic Communities Council of Queensland (ECCQ),Corporate Services Manager

Etienne Roux Access Community Services, Divisional Manager

Meg Davis Townsville Multicultural Support Group, Coordinator

Lisa Toh Cultural Diversity Queensland, Senior Policy Officer

Max Brandle Australian Council for Europe and NAATI Advisor

Jason Webb Magistrates Court, A/Deputy Principal Registrar

Letitia Casagrande Department of Justice and Attorney-General (Victim Assist Qld)

Daynan Brazil Department of Health, Principal Policy Officer

George Ildes Commonwealth Department of Human Services, Assistant Director

Mary Denver Independent Chair of Roundtable


Summary of outcomes of the Stakeholder Engagement Roundtable 15 September 2014

There was strong support for the continued development of a proposal for a state-based language services provider in Queensland and the need to work at a state level to optimise best practice and outcomes. The meeting emphasised that it was now critical to take forward a proposal that would progress the implementation of the Queensland Government Language Services Policy. The meeting noted the very good progress on the use of interpreters in some sectors in Queensland. Some stakeholders expressed concern that:

progress to date on the uptake of the Languages Services Policy had been slow in some sectors and that access to credentialed interpreters in Queensland was still presenting as difficult

other service providers (both Government and non-Government) may not yet realise their liabilities if not using credentialed interpreters in delivery of services

there remain limited career pathways for interpreters in Queensland at this time

the value of a language services provider to augment capability in the business and trade sectors had not yet been realised

representative bodies for the industry emphasised that a commitment to quality language services required a strong commitment to:

use credentialed interpreters and translators,

offer fair conditions of work

offer consistent work to Queensland contractors to support careers in the industry

quality assurance

professional conditions of contract

specialist training for interpreters

ensuring interpreters receives regular or enough hours to enable the interpreter to make a living in this profession.

The discussion included consideration of the impact of technology in future service delivery options which could be factored into new service specifications and costings for a Queensland model The meeting considered current interstate models for language services procurement and provision and discussed the pros and cons of various aspects. The discussion concluded that while the Victorian model seemed very attractive, there were likely elements from other states and systems that could contribute to the development of the optimum model for Queensland with sufficient reach to regional areas.


The roundtable meeting agreed that the Working Group would:

1. Revise the Draft Blueprint on the basis of stakeholder feedback (15 September 2014)

2. Tighten the definition of the product through a proposed new entity

3. Ensure strong links to The Queensland Plan in terms of growing a Queensland industry and

jobs and increased responsiveness of frontline services to regional areas of the state

4. Stress urgency of proceeding in the submission to Government given the weaknesses of

the current system and the increasing demands in Queensland.

5. Keep participants informed of developments to enable their further input to the process.


The Queensland Accessing Interpreters Working Group is made up of representatives from:

Amparo Advocacy

Immigrant Women’s Support Service

Multicultural Development Association

Mater Health Services

NAATI, Queensland Manager (advisory role)

Centacare, Cairns

Nambour Community Centre

Association of Australian Tertiary Students from Afghanistan

Queensland Council of Social Service (QCOSS)

Contact through the Queensland Council of Social Service (QCOSS) on (07) 3004 6901.

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