Go to home page
Skip to Content
Skip to Main Navigation
Skip to Local Navigation
Skip to Search

Better health and ageing for all Australians

Home > For Consumers > Ageing > Publications

Interim Evaluation of the Northern Territory Aboriginal and Torres Strait Islander Community Aged Care Workforce Development Projects - Final Report

5: Evaluation Element 2: Northern Territory Resources Project

Up to Publications

prev page| TOC |next page

Table of contents

5.1 Overview And Summary

The resources developed and evaluated as part of the NT Resources Project included:

Training Resources Database
Skills Audit Database and Manual
Model and business plan for the establishment of a national Aboriginal and Torres Strait Islander community aged care resources clearing house, and
HACC Training Manual: What the HACC?

The development of these resources were part of the first stage of this project and were utilised to identify core skills and training needs, identify gaps in resources, provide access to resources, support training to Aboriginal and Torres Strait Islander aged care services and inform the development of further resources as stage 2 of the project. This is described in 5.6 Further Resource Development.

Summary of findings

The Resources Database identified gaps in information and resources for Aboriginal and Torres Strait Islander aged care services and has informed the development of further training resources as stage 2 of the project which commenced in Feb 2010.

The skills audit database has not been an effective tool for the collection of accurate information on aged care services staff and on training provided and outcomes achieved.

Alternative data collection tools and strategies are proposed to improve and streamline the collection of information. These include a web based database to record worker information and training achievement, an annual census of aged care workers to maintain accurate workforce data and linking worker information to the Employment Retention Reports that are used by aged care service providers to report funding usage and retention of workers in CDEP converted positions.

5.2 Resource Database

5.2.1 Background

In 2008, DoHA commissioned a Consultancy to provide strategic advice on the Aboriginal and Torres Strait Islander HACC workforce key skills sets and training needs in the Northern Territory. A range of learning and assessment resources aimed at improving or recognising the competence of Aboriginal and Torres Strait Islander HACC workers in core skill areas were collected and analysed.

The results of this work are detailed in a project report provided to DoHA in April 2009⁶⁵.

The report highlighted the following issues:

171 resources were evaluated against a range of criteria to identify their suitability to the NT HACC workers target group
Whilst a range of resources were identified for over 21 skills areas, only meal preparation, personal care and occupational health and safety had a significant amount of available resources
Types of resources varied from charts, books, information sheets, DVDs, handbooks, online resources, power point presentations and videos
50% of resources were over five years old (however, an accurate date of publication of over 20% of resources could not be ascertained)
53% of resources were rated as very relevant for HACC service provision and a further 23% were fairly relevant, and
59% of resources were identified as adhering to adult learning principles and 94% were assessed as being suitable for remote service settings.

The report concludes that the core skills of meal preparation and providing personal care have adequate available resources and that providing domestic assistance, transporting clients and providing social support have limited available training resources.

Of most concern is that resources are not available for working effectively in a community care environment, facilitating cooperative behaviours and assisting with self medication.

A database of materials was developed as part of the work completed and this was made available to the RTOs who delivered training as part of the NT Training Project. The vision for this project was that it would be followed by the development of a clearinghouse (see 5.4: Community Aged Care Resources Clearinghouse) and that RTOs could add details of their own resources to the database.

This project highlighted the need for specific resource development in some areas and identified other areas where there were adequate training resources publicly available to RTOs. This has informed the development of aged care training resources specifically for use with Aboriginal and Torres Strait Islander learners. The first part of the skills identification process (outlined below) was used to inform the consultants about which were the priority skills in which staff required training. Thus enabling them to prioritise which training resources should be developed. This Part two of this project and commenced in February 2010.

The training resources that are currently being developed will provide learning and training modules to meet the needs of Aboriginal and Torres Strait Islander workers. Although the resources are not finalised the drafts viewed by the evaluators reflect the type of learning resources and approaches identified by evaluation respondents as successful⁶⁶.

5.2.2 Appropriateness and useability of the resources database

Interviews with RTOs throughout the conduct of the evaluation explored the use of the resource database; responses are detailed below. The RTOs advised that the purpose of the database was not clearly articulated to them.

Resources Database	1 V Poor	2	3	Total RTOs
Frequency of use	50%	25%		3
Usefulness	50%	25%		3
Ease of use		75%		3
Instructions / support		25%	25%⁶⁷	2

Note: The responses from the RTO who was directly involved in the work to provide advice regarding the resource database have been excluded from the results.

RTO comments included:

Three RTOs reported that resources were either generally not available, not relevant, didn’t have links, or were outdated
One RTO suggested that most resources were required in a ready-to-use, hard-copy format and that often resources could not simply be downloaded, eg flip-charts, so the use of the database was limited, and
One RTO suggested resources that required purchasing were an issue and that title lists were of little use if the resources had to be ordered or purchased to be able to see the detail of the resource.

5.2.3 Strengths and weaknesses of the resource database

The strength of the resource database was that it provided an overview of resources specific to Aboriginal and Torres Strait Islander workers in community aged care for RTOs and assisted in identifying additional resources that were required.

While it was never the intent for the project, the main weakness of the resource database was that it did not facilitate easy access to resources that were up to date and relevant. It did however, highlight the need for a mechanism to achieve this, which could have been enabled by a clearinghouse.

In addition, the lack of resources available that the RTOs themselves identified, validated the need for the Aboriginal and Torres Strait Islander Resource Development Project Part 2 (see 5.6 Further Resource Development) that will provide specific resources to assist in the delivery of training to Aboriginal and Torres Strait Islander workers.
Top of page

5.3 Skills Audit Database (Sad) And User Manual

5.3.1 Background

The aim of the Skills Audit Tool was to ensure that all workers were commencing training in the competencies that would give them the skills necessary to complete their current work role.

After the identification of the training resources available for training Aboriginal and Torres Strait Islander aged care workers, the consultants were required to identify the core skills necessary to deliver services to Aboriginal and Torres Strait Islander aged and disabled people in remote locations in the NT. The project identified 30 core skill areas across a range of work roles that are required by direct care workers and coordinators to work in Aboriginal and Torres Strait Islander community aged care services in the NT. This involved analysis of job descriptions, site visits to a sample of services to evaluate the range of duties undertaken by services, and review of the Home and Community Care (HACC) Minimum Data Set.

The Skills Audit Database was then developed, based on this mapping, to assist RTOs to identify and link the:
Range of services the community aged care service is funded to deliver
Skills required to deliver those services, and
Individual skills of each worker, to determine their training needs, prior to training.

This evaluation highlighted the need for this process to occur to achieve quality training outcomes for the workers. There is however, a need for increased investment in refining the tool itself as the RTOs did not find it easy to use and also to further communicate its intent and purpose to the RTOs to increase the use of the tool.

The Skills Audit Tool was further developed to support the collection of information about the training being delivered and to develop a workforce profile across the aged care workforce in the NT; it then became the Skills Audit Database (SAD). This has not been an effective tool for its purpose and the development of alternative data collection strategies are recommended to improve and streamline the collection of information.

The SAD database was developed using Visual Basic in a Microsoft Access framework and was intended to capture a range of information to develop an accurate workforce profile and to record the skills audit assessments and training outcomes of training participants. The SAD also included the core skills for the Aboriginal and Torres Strait Islander HACC workforce, the relevant units of competency, their code and title. The tool allowed RTOs to tailor skills development to the actual service profile and/or duties performed by individual Aboriginal and Torres Strait Islander HACC workers in aged care services.

The RTOs were required to collect data in the SAD. It was anticipated that the SAD would facilitate a census approach to the development of a workforce profile of the aged care workforce through the collection of demographic data on all staff including training participants, thereby reducing the time and resource impacts on service providers. As the tool did not effectively meet the needs of the RTOs, the full capability of the SAD was not utilised and training was not fully tailored in the manner intended.

The user manual was developed to guide the RTOs in the use of the SAD. Information regarding the use of the SAD was updated during the project to clarify the data entry requirements.

5.3.2 Use of the SAD data in the evaluation

The evaluators used the data entered by RTOs into the SAD to review the training delivered and to develop a community aged care workforce profile. Some shortcomings in the SAD data, including the accuracy of the data, were identified and limited its use in the development of the workforce profile. Table ET2: Summary of SAD Data Issues Relevant to Evaluation is included in Attachments Section 3: Data Tables: Evaluators Tables and details the issues identified through the evaluation.

Factors related to two areas:

The design of the database, and
The integrity of collection of data by RTOs.

Factors identified by the evaluators that may have impacted on the SAD data quality include:

Design of SAD

Information was not included in the SAD User Manual on most data items in the Employment, Education and Disability tabs of the SAD
Some data items were marked as ‘required’, hence, items not marked in this way may have been interpreted by trainers as optional
The SAD screens did not provide enough information on how to enter some data items, and
Changes to data entry requirements resulted in (for some data items) requirements that conflicted with what was indicated on screen.

Data Collection Process

RTO staff changed over time and may not always have been informed of the data collection requirements
The collection of the data items required for the workforce profile was not the core business of the RTOs, hence ensuring the accuracy or reliability of the data may have been difficult, and
The evaluators, who were compiling the workforce profile, did not have an integrated role in the development of the data collection tool.

More consideration could be given to the methodology for the collection of workforce data, including the separation of the skills audit process from collection of the workforce data and training information to:

Improve the skills audit process to ensure that it informs the content of training being delivered, and
Achieve baseline data of the size, demographic of the entire aged care workforce in the NT which is measurable in future years.

As data integrity is essential to any evaluation it is recommended that, for the ongoing evaluation of the Projects, the evaluators are involved in the management of the data collection. In particular, it is recommended that in any future work on the development of a workforce profile the management of the collection of data is assigned to those responsible for compiling the profile. More importantly, if future work is to occur on the workforce profile it is imperative that the collection tool is developed to an appropriate standard to ensure the accurate collection of information.

5.3.3 Appropriateness and useability of the skills audit database and manual

The four RTOs used the SAD to record individual worker data as part of the evaluation and to assist in record keeping and reporting to DoHA. RTOs were asked to rate the SAD and the SAD User Manual on its usefulness, ease of use and instructions/support. Responses were rated between one to five, with one being very poor and five being excellent. Note: The responses from the RTO who was directly involved in the work to provide advice regarding the skills audit database have been excluded from the rated results. Specific comments from RTOs about issues with the SAD are included in Attachment 3: Data Tables: Evaluators Table ET2A: RTOs Issues with SAD.

Skills Audit Database and Manual	1 V Poor	2	5 Excellent
Usefulness	25%	25%	25%
Ease of use		75%
Instructions / support		50%	25%

5.3.4 Skills audit approach

In the funding agreements DoHA had with the RTOs, one of the principal requirements for the delivery of training was the identification of each person’s training needs against their job requirements. The skills audit database was developed for this purpose and used by the RTOs. Generally, the first visit to communities involved the trainer/s conducting the skills audit assessment. It is envisaged that through the skills audit and discussion with the coordinator and workers, the RTO would match the appropriate training and qualification to meet the needs of the workers, service provider and ultimately the clients.

Service coordinators were asked how the RTO identified what training was needed. The responses were:

Group assessment of workers (15 services or 45%)
Individual assessment of workers (7 services or 21%), and
Asking the coordinator (12 services or 36%)⁶⁸.

As the above responses were multiple choice further analysis of the data was conducted and showed:

In 9 services staff only had a group assessment
In 4 services staff only had an individual assessment
In 5 services only the coordinator was asked about the staff training needs
In 1 service an individual and group assessment of workers was conducted
In 5 services the coordinator was consulted as well as a group assessment conducted, and
In 5 services the coordinator was consulted as well as individual assessments.

In all, one on one assessment was conducted in only 21% of services sampled. This raises the question as to whether group assessments provide the same accuracy of information as one on one assessments and whether this approach to assessments has contributed to the data quality issues discussed in 5.3: Skills Audit Database (SAD) and User Manual.

"RTO: The skills audit database was a data collection tool, rather than a skills audit; the latter requiring detailed notes and information collection."

Coordinators and RTOs identified that assessment of learners needs is imperative to the success of training and needs to take into consideration the knowledge, skills, learning history, literacy and any special needs of learners.

5.3.5 Strengths and weaknesses of the SAD

The strength of the SAD was that it supported the collection of individual data in the field. The developers of the SAD identified that greater specification of the information requirements and more face-to-face contact may have improved the end product

The main weakness of the SAD was that it was developed to collect data for multiple purposes including worker demographics, training data and skills assessment data, but did not fully meet the requirements in each area and was difficult to use.

5.3.6 Alternative data collection tool

It is recommended that an alternative to the SAD is developed with the following features:

A web based system
Demographic data for training participants
Skills audit results
Training plan including proposed qualifications, the units to be delivered and recognition of prior learning
Training timetable
Training provided
Competencies and qualifications achieved
Extensive notes, and
Interface (import/export) to the most common RTO training systems.

Consideration could also be given to including in the system a service provider portal with access to elements of the information from the RTO system such as current information on each staff person, the training calendar for the community and other information on the Projects.

Service provider reporting requirements, such as the Employment Retention Reports and Progress Reports, could also be included in the system for on-line completion.
Top of page

5.4 Community Aged Care Resources Clearinghouse

5.4.1 Background

In 2008, DoHA commissioned a Consultancy to conduct a scoping exercise to explore the options for the establishment of a training/learning resource clearinghouse for the Aboriginal and Torres Strait Islander community aged care workforce. The Consultant conducted web searches to identify and examine clearinghouse services supporting Aboriginal and Torres Strait Islander workers and service providers and interviewed a range of stakeholders who provide clearinghouse services or were able to provide relevant comment on clearinghouse services and their applicability to the sector. The results of this work are detailed in a project report provided to DoHA in June 2009⁶⁹.

The report highlighted the following issues:

There was strong support from stakeholders (27 interviewed) for the establishment of a training/learning resource clearinghouse for the Aboriginal and Torres Strait Islander HACC workforce that provides:
No clearing house was identified that has an understanding of the Aboriginal and Torres Strait Islander aged care programs, credibility with Aboriginal and Torres Strait Islander service providers and a strong content knowledge of community aged care services.
Four clearinghouses were identified as meeting either the Indigenous Sector or community aged care requirements, but not both, and
Two models of clearinghouse development were proposed: link with an Indigenous clearinghouse (eg Australian Indigenous Health Infonet) or link with a credible community care resource centre (eg Queensland HACC Resource Unit). Either alignment was seen to be generally satisfactory to stakeholders with a slight preference towards the Australian Indigenous Health Infonet as it had a clear Indigenous focus.

5.4.2 Evaluation findings

A review of the report and discussions with the consultants responsible for the project revealed:

Two potential clearinghouses were identified that could provide the HACC resources function and were satisfactory to the stakeholders consulted
The cost and resource requirements of establishing a new clearinghouse or adding another element to an existing clearinghouse were not clearly articulated in the project report, and
Staffing and resource requirements were not scoped in enough detail to assist in progressing a clearinghouse collaboration.

Discussions with case study participants and RTOs regarding the provision of resources through a clearinghouse identified the following requirements for a clearinghouse if it was to satisfactorily meet the needs of its customers:

It needs to provide contemporary, appropriate resources to a range of stakeholders, including training providers, service providers, peak agencies and interested individuals, and
The resources identified on the clearinghouse website need to be:

RTOs stated that they currently access resources that they have developed or sourced through their work in the sector over time. Service providers identified that they source resources from the RTOs, government departments or colleagues. Whilst a clearinghouse would ensure a repository of suitable resources, it is constrained by the service provider’s access to relevant and contemporary materials and ability to source the printed and physical materials.

Stakeholders currently access resources through a range of mechanisms and the logistics of providing clearinghouse materials is complicated by the type of resources currently used, ie those that cannot be readily downloaded and printed locally. However, if the clearinghouse could source, print and send materials (printed materials, DVDs and other learning resources) it may be of value to the sector.
Overall, the report did not clearly articulate options, costs and implications for the implementation of the clearinghouse, so whilst a clearinghouse is generally supported it is recommended that further scoping and costing is conducted to determine if a clearinghouse should be developed. In the meantime, DoHA has funded the development of tailored training resources that will be a valuable resource to training providers, service providers and workers.

5.5 The HACC Manual

5.5.1 Background

The Aboriginal and Torres Strait Islander HACC Financial & Management Training Manual (HACC Manual) was developed in 1994-95. The HACC Manual covers most aspects of managing a HACC service. The Aboriginal and Torres Strait Islander HACC Reference Group (the Reference Group) initiated the update of the HACC Manual, and included it on their work plan in 2007. Following advice from Reference Group members on required changes, the Department contracted a Consultancy to begin updating the Manual in November 2008.

At their April 2009 meeting, the Reference Group considered the updated version of the HACC Manual, and identified further input from the Service Delivery Working Group on their work plan. In May 2009, the Service Delivery Working Group held a one day meeting in Sydney facilitated by the consultants to finalise the necessary changes to the Manual and made a range of recommendations for consideration by the full Reference Group. In September 2009, further revisions were approved by the Reference Group and completed by the consultants, with further minor revisions made at the end of 2009. The manual has been reviewed by HACC Officials and will be updated to reflect Community Care Common Standards before final editing and production.

5.5.2 Evaluation of the HACC manual

Originally, an evaluation of the useability of the HACC Manual with service providers and other stakeholders was planned. As the manual is not yet published or circulated this was not possible. However, it was evident through consultation with service providers, including coordinators that a resource is required to provide the background information required by service providers and their staff in understanding the community aged care context and service delivery requirements.

Coordinators during on-site visits expressed that it is important to have relevant, easy to access information regarding the programs delivered to assist them in their role and it was reiterated that this is especially important for new coordinators.

The evaluation of this resource now only includes the evaluators’ desk review of the content of the manual against the expressed opinions of service providers and the consultants engaged to complete the work and the evaluators own extensive knowledge of the HACC program and its application to the sector.

The consultants who were engaged to complete the work highlighted that the Project would have benefited from greater face-to-face workshop meetings to review and revise the manual and a more strategic approach to its completion.

5.5.3 Strengths and weaknesses of the HACC manual

Evaluation observations from the desk review of the draft HACC Manual (before final review) and discussions with the consultants engaged to complete the work include:

The manual provides an overview of the HACC service provision requirements for Aboriginal and Torres Strait Islander services; however the focus is mainly on financial and management requirements
There are planned updates to the manual to incorporate the proposed changes to the Community Care Common Standards (when published)
The manual does not currently outline the quality reporting processes required of HACC (and other community care programs). Given that most remote service providers deliver services under both HACC and packaged care programs this is a major deficit
Some of the advice regarding the requirement for police checks is inaccurate as it is not a requirement in each state and territory, and
Some of the references to materials are out of date.

Overall, the HACC Manual (renamed What the HACC? Everything you wanted to know about HACC but were too afraid to ask) provides an overview of HACC, its application to HACC services and is presented in an easy to understand manner, with examples and worksheets to promote learning.
The evaluation of the manual revealed that it requires updating to reflect:

The new Community Care Common Standards (when released)
The quality reporting process required of community care service providers
Current materials references, and
Accurate police clearance requirements relevant to each jurisdiction.

It is recommended that the HACC manual is further updated to include these minor changes before it is distributed to service providers.

5.6 Further Resource Development

As Part 2 of the Resource Project, DoHA commissioned a Consultancy in December 2009 to develop/adapt new and existing learning resources tailored to Aboriginal and Torres Strait Islander aged care workers⁷⁰. It was identified through the review of available community care learning and training resources conducted in part one of the NT Resources Project, that additional resources were required to assist in training Aboriginal and Torres Strait Islander aged care workers, especially those with low literacy levels. This issue was also raised by RTOs who are currently providing training to this group.

By developing learning and assessment resources tailored to this target group, this project aims to achieve the following outcomes for the Aboriginal and Torres Strait Islander aged care workforce:

Improve the job-specific skill base
Increase recruitment and retention outcomes
Improve learning outcomes
Improve completion rates of Aboriginal and Torres Strait Islander workers participating in vocational training
Enable Aboriginal and Torres Strait Islander workers to work towards managerial roles, and
Build career pathways within the aged and health care sector⁷¹.

The six modules being developed for Aboriginal and Torres Strait Islander learners are described below (CHCOH312A Follow safety procedures for direct care work will be included in all modules).

Module 1
CHCCS305A Assist clients with medication
HLTAP301A Recognise healthy body systems in a health care context
Module 2
CHCHC311A Work effectively in HACC
CHCCS411A Work effectively in the community sector
Module 3
CHCAC318A Work effectively with older people
CHCICS304A Work effectively with carers
Module 4
HLTMS2A Perform general housekeeping duties to maintain a clean environment
HLTMS5A Provide personal laundry services to clients/patients
Module 5
HLTCD8A Transport clients/patients
Module 6
CHCAC317A Support older people to maintain their independence
CHCICS303A Support individual health and emotional well being.

Each module will contain:

Learners Workbook and Assessment Resources
Trainer Guide
Mapping of delivery and assessment resources to elements, essential skills and essential knowledge of each unit of competency to comply with AQTF
Audio Visual materials, and
Training aids⁷².

A review of one draft module (workbook and trainer guide) found that the material was clear and easy to understand with example forms, processes and practices for learners and trainers to refer to.

Other RTOs participated in discussions regarding the proposed development of resources in the RTO workshop in February 2010. RTOs interviewed as part of the evaluation were keen to source additional learning and training materials to assist them in the provision of training to Aboriginal and Torres Strait Islander aged care workers and contribute to the ongoing review of the materials to ensure that they meet their needs, which is proposed by DoHA. The evaluator envisages that these resources will be helpful to RTOs in delivering the relevant aged care training.
Top of page

65. April 2009 Project Report: Gaps in Training Resources for ATSI HACC Worker Core Skill Requirements
66. Further information on the NT Resources Project is included in Section 5: Evaluation Element 2: Northern Territory Resources Project.
67. One RTO did not access instructions/support
68. Table SP11
69. June 2009 Business Case for Establishing a National Clearing House for Community Aged Care Learning Resources
70. Department of Health and Ageing RFT 164/0910 Aboriginal and Torres Strait Islander Aged Care Training Resources Project
71. ibid pB3
72. Overview draft pdf provided by Department of Health and Ageing May 2010