Christmas Island 2018 Plan - Initial Directions Report
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&
Anthony Whitaker SPS
Christmas Island 2018 Plan
Initial Directions Report
Shire of Christmas Island
May 2010
This Report has been prepared for:
Shire of Christmas Island
This report has been prepared by:
C Change Sustainable Solutions
ABN: 17 416 837 533
Mob: 0414 868 191
Fax: 07 3878 9929
Web: www.cchange.net.au
Email: vbennett@cchange.net.au
“Be the change you want to C in the world”
&
Anthony Whitaker Strategic Planning Services
ABN: 32938663749
PO Box 826
Stones Corner QLD 4120
Telephone/Fax: +61 7 33912950
Mobile: 0437 233 617
Email: anthonywhitaker@bigpond.com
Table of Contents
Su mma ry o f I n it ia l Con su lta t io n f o r th e Direc t ion s f o r t h e Ch ris t mas
I s la n d: 201 8 P la n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
1 I n t ro duc t ion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
1.1 Background to Christmas Island: 2018 Plan ..................................................................1
1.2 Purpose of the Initial Directions Report & Next Steps ...................................................... 3
1.3 Report Structure .......................................................................................................4
2 Su mma ry o f F e e db ac k R eceiv e d Du ring On - I s lan d Cons u lt at io n . 5
2.1 General Views on the Christmas Island: 2018 Plan Project ...............................................5
2.2 Factors Critical in Creating a Successful CI: 2018 Plan ....................................................6
2.3 Visions / Aspirations for the Future of Christmas Island ...................................................7
2.4 Priority Issues / Opportunities for the Future of Christmas Island .....................................8
2.5 Perceived Barriers to Successful Planning and Implementation ....................................... 10
2.6 Challenges and Opportunities in Community Engagement on Christmas Island ................. 11
3 Su mma ry o f I mp lic a t ion s fo r t h e de v e lop men t o f th e Ch ris t mas
I s la n d: 201 8 P la n . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 3
3.1 Opportunities to Strengthen the Scope of Planning for Christmas Island .......................... 13
3.2 Draft Themes for Joint Vision Statement and Strategy Development ............................... 14
3.2.1 Draft themes for the development of a joint vision statement for Christmas Island14
3.2.2 Draft themes for the development of a strategy and action plan ........................ 16
3.3 Key Success Factor for the Development of the Plan (perceptions of key stakeholders) ...... 16
3.4 Strategic Questions to Guide the Development of the Plan ............................................. 17
3.5 The Planning Forum ................................................................................................ 18
3.5.1 Membership .............................................................................................. 18
3.5.2 Draft Terms of Reference for the Planning Forum ............................................ 19
3.6 Community Engagement and Capacity Building Opportunities ........................................ 20
4 Ne x t St e ps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1
A p p en d ix A – Lis t o f In d iv id u a ls an d Org an is at io n s Co n su lt ed . . . . . . . . 1
A p p en d ix B: Su mma ry o f Cu rre nt P lan s an d R ep o rts f o r Ch rist mas
I s la n d . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Themed Plans / Reports ............................................................................................. 1
Jurisdictional Based Plans / Reports .............................................................................1
Disclaimer
This report has been prepared on behalf of Shire of Christmas Island. It was prepared by C Change - Sustainable Solutions Pty Ltd. Any representation,
statement, opinion or advice expressed or implied in this publication is made in good faith. C Change - Sustainable Solutions Pty Ltd is not liable to any
person or entity for any damage or loss that has or may occur in relation to that person or entity taking or not taking action in respect of any
representation, statement, opinion or advice referred to above.
Christmas Island 2018: Initial Directions Report
Summary of Initial Consultation for the
Directions for the Christmas Island: 2018
Plan
In January 2010, the Shire of Christmas Island called for submissions from suitably
qualified consultants regarding the provision of ‘facilitation services’ over a 10 month
period. The purpose of the commission was to assist the Christmas Island Combined
Planning Forum and the Australian Government develop the ‘Christmas Island: 2018
Plan’. Upon commissioning of the project, it was found that the Christmas Island
Combined Planning Forum was yet to be established. Hence a key component of the
first stage of the project was to ensure that a workable and representative Forum
was established.
The Christmas Island: 2018 Plan (hereafter called ‘the Plan’) is required to clearly
articulate shared community directions for the future of the Island. The Plan is to
include key actions, milestones and time lines. Importantly, the Plan is to ensure
that outcomes are agreed upon and can be met. In addition to the Plan, the
successful consultants were required to assist the Planning Forum and the Australian
Government establish a mechanism for implementing and monitoring the delivery of
the agreed required outcomes.
Achieving implementation of the Christmas Island: 2018 Plan is both the single
biggest challenge for the project and the indicator most likely to give people
confidence that the process and its outputs were not a waste of time. Indeed, the
successful outcome of this project is likely to reinstate confidence in the people of
Christmas Island about future commissions and projects also.
For the majority of people interviewed by the consultants during their on-island visit,
implementation of the Plan meant a commitment of real resources by the various
agencies governing the island as an explicit and visible output of the planning
process.
The degree of cynicism met by the consultants is understandable, given Christmas
Island’s extensive history of visiting consultants and succession of reports, often with
repeated recommendations that have failed to be implemented time and time again.
Positively, however, despite the level of cynicism, many people are able to see
themselves and/or their families at a future time living on Christmas Island, and
aspirations are high. It is critical that a meaningful joint vision statement for the
future of the island be developed, and that strategies and actions to achieve this
vision are consistent with the principles and values that were consistently articulated
as part of people’s aspirations. Principles and values that were considered
instrumental from the stakeholders included:
Diversity;
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Uniqueness;
Sustainability;
The concept of the island as a Home;
Self reliance; and
Accessibility.
A primary focus of the Christmas Island: 2018 Plan is economic diversification. The
identification of planning and development as a priority by many people interviewed
is a critical enabler to the successful economic development of Christmas Island;
particularly the identified priorities of land use and infrastructure planning, land
release and housing that were included in the economic development list. However,
it is equally important to note other priority issues identified by people, including
youth as the future of the island, climate change and community capacity building.
Indeed it is essential that development of the Plan acknowledges the complex and
integrated nature of community planning, and takes a broad, holistic and
generational view of development to ensure that strategies and actions create a
sustainable future for the people of Christmas Island. Accordingly, it is
recommended that development of the plan begins with consideration of high level
planning themes that include:
Economic diversification;
Land use planning;
Infrastructure planning and development;
Community capacity, health and wellbeing; and
Governance, institutional capacity and the process of getting things done.
The last theme is important to note, as it is the complex process of decision making
that many people see as a significant barrier to good planning and implementation
that will need to be addressed as part of the Christmas Island: 2018 Plan.
The detention centre bares specific mention as an important contextual element for
the development of the Plan. It is important on a number of levels:
It is a major contributor to the economy of Christmas Island;
It is likely to be part of the future of Christmas Island, at least within the
timeframes of this project;
It was identified by many people as both an opportunity and a threat to the
future of the island; and
It was identified by some people as a barrier to good planning and engagement
through its draw on people’s time, energy and resources.
It is also noted that the lack of an explicit public plan from DIAC concerning the
immigration processing and reception centre and its impacts on the community is a
current gap in planning for the island. Accordingly, engagement of DIAC in the
planning process will be important to the effectiveness of the Plan’s overall
development.
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Finally, the success or otherwise of the Plan cannot be removed from the notion of
individual commitment and responsibility. Many people were frank with the
consultants in identifying the role of the individual and that of the community as a
whole in the success or otherwise of initiatives on Christmas Island. It was expressed
that the community could do a lot more to help itself and that individual
personalities, organisational politics, lack of ownership of issues and actions and a
culture of blame and expectation all got in the way of progress. While the Plan itself
has little scope to address such issues directly, it is hoped that the process of
developing the plan, the active and positive contributions of participants and
successful engagement of the broader community may provide opportunities for
individual capacity building and go some way to making a positive contribution to the
culture of “how things happen” on Christmas Island.
This report’s aim was to:
Provide an overview of current plans and initiatives that may impact the future
direction of Christmas Island, particularly with respect to the development of a
sustainable economy;
Summarise initial feedback received from residents and other key stakeholders;
Identify the key success factors that will need to be in place for the Plan to be
successful;
Identify the key stakeholders that need to be engaged in the development of the
Plan; and
Outline the recommended process for establishing and implementing the
Planning Forum as the key point of reference for the consultants during the
development of the Plan.
While this summary outlines the key findings, the body of the report contains all the
above information. Following the dissemination of the report, the next step in the
development of the Plan is to hold the first meeting / workshop of the Planning
Forum with identified participants. This will take place during a visit to Christmas
Island by the consultants from the 29th May to 12th June 2010.
The purpose of the first forum will be to:
Review and discuss the issues and opportunities identified in the Initial
Directions Report;
Develop a draft joint vision statement; and,
Discuss and agree on the issues and opportunities that will form the basic
framework for developing the strategies and actions of the Plan.
In addition to the Planning Forum, the consultants will undertake a range of face to
face interviews and focus group sessions with representatives of the target groups
identified in the body of the report. We look forward to consulting again with
stakeholders on Christmas Island and assisting them develop the Christmas Island:
2018 Plan.
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1 Introduction
1.1 Background to Christmas Island: 2018 Plan
In January 2010, the Shire of Christmas Island called for submissions from suitably
qualified consultants regarding the provision of ‘facilitation services’ over a 10 month
period. The purpose of the commission was to assist the Christmas Island Combined
Planning Forum and the Australian Government develop the ‘Christmas Island: 2018
Plan’. Upon commissioning of the project, it was found that the Christmas Island
Combined Planning Forum was yet to be established. Hence a key component of the
first stage of the project was to ensure that a workable and representative Forum
was established.
The Christmas Island: 2018 Plan (hereafter called ‘the Plan’) is required to clearly
articulate shared community directions for the future of the Island. The Plan is to
include key actions, milestones and time lines. Importantly, the Plan is to ensure
that outcomes are agreed upon and can be met. In addition to the Plan, the
successful consultants were required to assist the Planning Forum and the Australian
Government establish a mechanism for implementing and monitoring the delivery of
the agreed required outcomes.
In the Project Brief, it was noted that the Plan would build upon the vast array of
work completed in the past, and in particular incorporate the outcomes of the
‘Christmas Island Conversations’ that were held with over eighty residents of
Christmas Island in July 2008. The ‘Christmas Island Conversations’ were part of the
suite of projects hosted by the Shire of Christmas Island to celebrate the 50th
anniversary of the Islands Australian sovereignty. Upon commissioning of the
Christmas Island 2018 Plan, however, it was found that little recorded information
regarding the Conversations was present. As such, part of the current commission
was to again articulate the agreed directions for Christmas Island from a variety of
stakeholders.
A key aspect of the Plan is to ensure that strategies are community initiated and that
these strategies assist in developing long-term economic diversity for the Island’s
economy. In this regard previous economic development strategies and Christmas
Island’s Plan for the Future (adopted August 2009) will be instrumental in the
development of the Plan.
The Project Brief noted that over the ten months period, the successful team will
collaborate with the community of Christmas Island, the Shire, the Island
Administrator, the Indian Ocean Territories Attorney Generals Department,
Christmas Island businesses, the Union of Christmas Island Workers and members of
the Planning Forum to develop the Christmas Island: 2018 Plan.
This report is the first in a series of outputs for the Christmas Island: 2018 Plan.
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From the Project Brief:
Aim:
The facilitation team will collaborate with the Planning Forum and the Australian
Government to co-create a Christmas Island: 2018 Plan
Key milestones
A time line
Agreed outcomes
A mechanism for implementing and monitoring the delivery of those outcomes.
Project Outputs:
A Christmas Island: 2018 directions discussion paper for distribution prior to the
initial workshop with the Planning Forum.
First draft of a detailed Christmas Island: 2018 directions planning paper, which
prioritises key milestones within a timeline
An implementation strategy for identified topics for immediate action within the
Christmas Island: 2018 plan.
A systemic template for dealing with future issues and ideas that may arise and a
method of evaluating their capacity to achieve the vision in the Christmas Island:
2018 plan.
Development of a set of protocols for all future community consultations and
consultants to communicate with the Planning Forum and a means to provide
feedback as a result of the consultation, to the wider community.
An agreed method to share information contained within the Christmas Island
2018 Plan across the community.
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1.2 Purpose of the Initial Directions Report & Next
Steps
This report represents a summary of current plans and related reports that pertain to
the future of Christmas Island. In addition, this report contains feedback received
during a visit to the island by the consultants from 14th to 22nd April, 2010.
Thus, this initial directions report was developed through the following tasks:
1. Review of existing plans and reports;
2. On-island consultation carried out from 13th to 21st April 2010:
a. A workshop with Councillors and Shire staff held on 15th April
b. Face to face interviews conducted with government and community
representatives (see Appendix A); and,
3. Drafting of the report based on an analysis and synthesis of stakeholder
feedback and key issues and aspirations identified in plans and reports.
The purpose of summarising this information was to provide an initial context for
stakeholders to directly participate in the development of the Plan. In this regard,
the objectives of this report were to:
Provide an overview of current plans and initiatives that may impact the future
direction of Christmas Island, particularly with respect to the development of a
sustainable economy;
Summarise initial feedback received from residents and other key stakeholders;
Identify the key success factors that will need to be in place for the Plan to be
successful;
Identify the key stakeholders that need to be engaged in the development of the
Plan; and
Outline the recommended process for establishing and implementing the
Planning Forum as the key point of reference for the consultants during the
development of the Plan.
Following the dissemination of the report, the next step in the development of the
Plan is to hold the first meeting / workshop of the Planning Forum with identified
participants. This will take place during a visit to Christmas Island by the consultants
from the 29th May to 12th June 2010.
The purpose of the first forum will be to:
Review and discuss the issues and opportunities identified in the Initial
Directions Report;
Develop a draft joint vision statement; and,
Discuss and agree on the issues and opportunities that will form the basic
framework for developing the strategies and actions of the Plan.
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In addition to the Planning Forum, the consultants will undertake a range of face to
face interviews and focus group sessions with representatives of the target groups
identified in section 3.6 below.
1.3 Report Structure
The remainder of this report is divided into two (2) additional sections as follows:
Section 2 summarises feedback received through interviews and meetings during
the on-island visit.
Section 3 summarises the considerations for the development of the Christmas
Island: 2018 Plan.
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2 Summary of Feedback Received During
On-Island Consultation
2.1 General Views on the Christmas Island: 2018
Plan Project
The consultants conducting this study were aware that much consultation and
development of reports had occurred in the past regarding the potential future
directions for Christmas Island. Many reports had developed key recommendations
for the Island’s diversification and in some instances the recommendations had not
been implemented either at all or in a timely manner. As the achievement of the key
actions that will ultimately make up the Plan is inherently linked to the stakeholders’
commitment to implementation, it was considered necessary to consult with
stakeholders to determine their general views on the Christmas Island: 2018 Plan
Project.
A range of positive and negative views were expressed about the project. These are
summarised in figure 1 (below) which categorises these views according to the
degree of cynicism or positivity expressed by stakeholders.
Figure 1: Range of views expressed by stakeholders in relation to the Christmas
Island: 2018 Plan
CYNICAL CYNICAL but still HOPEFUL
“It won’t work” “It would be a good thing for the
“Not another one” Island, but good luck making it
“It’s been done before” happen”
“I’ve been involved in those
before”
“Nothing will come out of it –
just another report to put on the
shelf”
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HOPEFUL POSITIVE
“Its an opportunity to do things “It will be good to have an
differently to how they always overarching plan for CI that pulls
happen – people are so together everyone’s efforts and helps
disillusioned right now” to coordinate planning and
implementation”
“It would be good to have the Shire
and the Commonwealth working
together on important projects for
the future, like economic
development”
The above shows that there is a degree of cynicism in the development of the Plan
and this represents a risk for the success of the Plan. However, should the actions
included in the Plan be committed to by the appropriate stakeholders, and should
the Plan have some early ‘wins’, it is likely that this cynicism could be turned around.
This was reinforced below (refer Section 2.2), with people indicating that
implementation was the key way in convincing people that a Plan such as this is
worthwhile.
2.2 Factors Critical in Creating a Successful CI:
2018 Plan
As noted above, successful implementation was considered instrumental in ensuring
that the CI 2018 Plan was considered worthwhile. In addition to implementation,
factors such as full inclusion of Islanders, clear articulation of Commonwealth
intentions for the Island and independence in leadership for the Plan were also
considered highly important.
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Figure 2: Factors that people said would give them confidence that the Plan would
make a positive difference to the future of Christmas Island
REQUIRED FACTORS FOR POSITIVE RESULTS
“That one idea comes to fruition and leads to permanent positive change”
“A commitment of resources for implementation”
“A socially inclusive process that gives a voice to people we don’t
normally hear from”
“A clear statement from Commonwealth department heads about the
future intention for the island – “what it is and where they want it to go””
“An independent chairperson for the forum”
2.3 Visions / Aspirations for the Future of
Christmas Island
One of the key components in the next phase of the project is to develop a shared
vision statement for the Island. In order to assist the facilitation of this vision
statement, the initial consultation asked people what their visions/aspirations for the
Island were (Figure 3) . Many of the responses noted leadership, diversity (economic
and cultural), longevity, and maintenance of the safe environment as key to the
overall long term success / attractiveness of the Island. A sense of place was key in
many people’s responses, and statements such as ‘This is our home and we need to
protect it’ showed people’s level of attachment to the Island. Their wish for a
positive future for the Island was evident in the way they responded.
Figure 3: Aspirations for the future of Christmas Island
ASPIRATIONS
It is our home: “its our Island, we need to protect it.”
Would like to see Chinese and Malay people with confidence in their jobs
and in leadership positions
Need to avoid branding as ‘Detention Island’
An holistic view of development of the Island
Employment opportunities other than detention centre, government and
mine
More development
Cosmopolitan
Thriving tourism industry
More events and celebrations
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Recognition that we are a diverse community with a diversity of views
Parliamentary representation
A safe place
2.4 Priority Issues / Opportunities for the Future of
Christmas Island
When asked to nominate priorities for Christmas Island, people identified a range of
initiatives from outstanding projects yet to be implemented to new ideas. As the list
in Figure 4 shows, planning and development dominated people’s priorities;
particularly land use and infrastructure planning, land release and housing. Youth
and providing opportunities for them, was another significant priority. This was
consistent with many interviewees assertion that young people represented the
future of the island and should therefore feature heavily in this and other planning
processes. Other issues of note included climate change and the need for a focus on
community capacity building. Interesting comments were also made in relation to
taking an holistic approach to economic development of the Island not just a focus
on big industry; for example, providing assistance to home-based businesses.
Figure 4: Identified priority issues and opportunities for Christmas Island
PRIORITY ISSUES AND OPPORTUNITIES
General
Projects that haven’t been implemented
Planning and Development
A town plan
Land use and Infrastructure planning between the Shire, AGD and
National Parks
Infrastructure (generally)
Housing / accommodation supply
Land release – including foreshore / ocean view land for tourism
development
Increased capacity / expansion of trunk infrastructure (especially
sewerage and power to sites)
Infrastructure for ageing / retirement e.g retirement homes
Beautification of public spaces
Kampong Development
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Economic Development
Alternative industries – e.g. fisheries
Overcoming constraints of labour market, particularly the draw of the
detention centre on local contractors and service delivery
On-island apprenticeships / traineeships
Assistance for home-based businesses
Take a bit more interest in the whole economy of the Island, not just big
industry
Community capacity building and health / wellbeing
Community capacity building projects
A social plan
Women’s health
Youth
Activities other than sport
Transport
18-25 yrs
Single bedsit accommodation
Increase in illegal drugs
A workshop for youth skills development
Music development
Environmental Sustainability
Recycling
Planning for climate change
Impact of sea levels on Kampong
Service Delivery
Align services with WA
Develop a service culture on CI
Update the community directory
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2.5 Perceived Barriers to Successful Planning and
Implementation
Figure 5 lists the range of responses people made when asked what they saw as the
major barriers to planning on Christmas Island and achieving implementation of
projects. The process of making decisions and getting things done on Christmas
Island was identified as the greatest barrier by the majority of people interviewed. In
particular, people highlighted the complex and seemingly convoluted processes that
seems to underpin even simple decision making, and the impact that a particular
person can make (positively and negatively) through their individual approach and
commitment to a job. Many people thought that the community could do a lot more
to help itself and that individual personalities, organisational politics, lack of
ownership of issues and actions and a culture of blame and expectation all got in the
way of progress. The detention centre was also mentioned by many people in the
context that while it had created employment and money making opportunities, it
also served as a distraction from thinking about the long-term sustainable future of
the Island.
Figure 5: Barriers to Successful Planning and Implementation on Christmas Island
BARRIERS TO SUCCESSFUL PLANNING AND IMPLEMENTATION
Leadership and Vision
Haven’t had strong community leadership on CI
Divided or incompatible visions – e.g. Galapagos vs. detention centre
Communication
There is a lack of effective communication on the island
The Commonwealth is not very good at communicating what it is doing
and what is has achieved
The Process of Making Decisions and Getting Things Done
Decision making and processes for getting things to happen on the island
are clumsy and cumbersome
Fundamentals are missing – difficult bureaucracy, legislation and policies
are extremely onerous (e.g. development)
Organisations and individuals make a lot of assumptions about what is
needed for the Island (they know what’s good for the Island)
A lot of planning focuses on the needs of business people on the Island –
“Business comes first before community.”
Personalities are a big part of why some things do or don’t happen on CI
Individuals don’t follow through on previous commitments when they
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step into a role
Talk but no action
Grant applications take a long time for processing and notification – need
faster decisions
Working Together , Responsibility and Recognition
There is a lack of trust between organisations and between individuals
A lack of cohesion between community groups – “years of built up
issues”; “we would hold more power if we had a single voice.”
There is a culture of ‘expectation’ on the island – people don’t do enough
to help themselves
There’ is a culture of ‘complaint’ on the island but little recognition or
celebration when something good happens
Impact of the Detention Centre
Everything seems to be reactive to North West Point
Detention Centre has created a distraction for people’s time, energy and
resources
“The detention centre is good for business but not the future.”
Other
Isolation and cost of doing anything
2.6 Challenges and Opportunities in Community
Engagement on Christmas Island
When asked to provide ideas for improving community engagement as part of the
Christmas Island: 2018 Plan, people generally started their responses by emphasising
the difficulty in actually getting people to participate. This was thought to be due to
a range of reasons, including apathy, day to day ‘busy-ness’ (particularly in relation
to the detention centre) and cynicism about consultation processes (as summarised
in Figure 1). Despite these barriers to engagement, people suggested some practical
advice for the success of the project; including putting on food for participants, good
upfront communication and follow up and ensuring that young people are included.
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Figure 6: Considerations for Good Engagement Practices in Development of the
Plan.
COMMUNITY ENGAGEMENT CHALLENGES AND OPPORTUNITIES
‘Care Factor’ – getting people to participate is difficult
Usually the same people
Need to provide a learning environment for people
Chinese and Malay residents are under-represented at forums compared
with the size of their communities
Provide food for people
Engaging youth:
o Year 11 and 12
o Early 20’s
o Young people who have left the island and returned
o Engage through the school
Public meetings not very effective unless they are topical
People need to be kept informed – timely and accurate information
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3 Summary of Implications for the
development of the Christmas Island:
2018 Plan
As noted at the outset, as well as summarising the initial feedback from residents
and other key stakeholders and determining the key success factors that need to be
in place for the Plan to be successful (refer Section 2), other aims of the first phase
were to:
Provide an overview of current plans and initiatives that may impact the future
direction of Christmas Island, particularly with respect to the development of a
sustainable economy;
Identify the key stakeholders that need to be engaged in the development of the
Plan; and
Outline the recommended process for establishing and implementing the
Planning Forum as the key point of reference for the consultants during the
development of the Plan.
The following provides this information with reference to:
Opportunities to Strengthen the Scope of Planning for Christmas Island (section
3.1), which includes a review of current planning documents and reports;
Draft Themes for Joint Vision Statement and Strategy Development (section 3.2);
Reiteration of Key Success Factor for the Development of the Plan (perceptions
of key stakeholders) (section 3.3);
Strategic Questions to Guide the Development of the Plan (section 3.4); and
Membership and suggested draft terms of reference for the Planning Forum
(section 3.5).
Suggestions regarding community engagement and capacity building opportunities
are also discussed.
3.1 Opportunities to Strengthen the Scope of
Planning for Christmas Island
In order to assist the development of the Christmas Island: 2018 Plan, a review of
current planning documents and reports was undertaken (see Appendix B). The
initial review included in this report will be built upon with input from stakeholders
in subsequent stages of the project.
The review of current planning documents and reports for Christmas Island revealed
a number of opportunities to strengthen strategies and actions governing
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community capacity, health and wellbeing when compared with mainstream
planning themes such as infrastructure, land use and economic development.
Specific identified opportunities include:
Organisational capacity building
Social infrastructure planning
o Human services
o Community facilities
o Community networks
Community cultural development
These identified opportunities should be considered in the development of the Plan.
It is also noted that the lack of an explicit public plan from DIAC concerning the
immigration processing and reception centre and its impacts on the community is a
considered a deficit in the upfront planning context for undertaking the development
of the Christmas Island: 2018 Plan. Engagement of DIAC in the planning process will
be important to the effectiveness of the Plan’s overall development.
3.2 Draft Themes for Joint Vision Statement and
Strategy Development
3.2.1 Draft themes for the development of a joint vision
statement for Christmas Island
The following themes and sub-headings have been extrapolated and interpreted
from an analysis of explicit vision statements in existing plans and studies (see
Appendix B) and from expressed aspirations of individuals consulted during initial on-
Island consultation. The largely values / principles based themes are presented here
as a starting point to stimulate thinking about and facilitate the development of a
joint vision statement with the Planning Forum during an upcoming visit by the
consultants. There are many ways of articulating a vision statement, and some of
these will be discussed at the upcoming Planning Forum workshop. However,
regardless of format, a vision statement should convey something about who we are
as a community, where we want to go, and express our values that underpin the way
we do things (our shared culture).
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Figure 7: Draft themes and sub-themes to assist in the development of a joint
vision statement for Christmas Island
DRAFT THEMES AND SUB-THEMES FOR THE DEVELOPMENT OF A JOINT
VISION STATEMENT
Diversity
o Cultural
o Economic
o Co-existence of diverse views and aspirations
Uniqueness
o The people
o Preservation of culture and cultural traditions
o Natural environment
o Visitor experience
o International reputation
Sustainability
o Population
o Sustainable resources
o Social, cultural and environmental values
o Sensitive to the environment
o Impact of climate change
o Sustainable economy
o Future generations
o Balance and holism in our approach to development
Our Island our Home
o A place for young people
o A place for older people
o A place for families
o A safe and hospitable place
o A place to celebrate
o Cosmopolitan
o Vibrant
Self reliance
o Producing locally
o Working together
o Taking responsibility
o Self determining
Accessibility
o Air
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o Freight
3.2.2 Draft themes for the development of a strategy and
action plan
The following high level themes in Figure 8 are presented here as a starting point to
stimulate thinking about the structure and scope of the Christmas Island: 2018 Plan.
It is noted that while a primary objective of the Plan is economic diversification, it is
not possible to achieve and sustain this as a future outcome without a holistic view
of planning, development and sustainability of the islands natural, human, physical,
social and cultural resources.
Figure 8: Draft high level themes for the development of strategies and actions for
the Christmas Island: 2018 Plan
DRAFT HIGH LEVEL THEMES FOR STRATEGIES AND ACTIONS
Economic diversification
Land use planning
Infrastructure planning and development
Community capacity, health and wellbeing
Governance, institutional capacity and the process of getting
things done
3.3 Key Success Factor for the Development of the
Plan (perceptions of key stakeholders)
Given the list of constraints to undertaking the development of the Plan that was
emphasised by most people interviewed and noted in Section 2, it was important to
understand what people perceived as factors for success of the project. As shown in
Figure 9 (below), the main success factors identified related to the Plan’s ability to
provide clarity of direction for the people of Christmas Island and a sense of
ownership of the plan. Some general and specific comments were also made in
relation to the make-up and process for the Planning Forum. These are essential
starting points to be noted when developing the Plan.
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Figure 9: Key success factors for the development of strategies and actions for the
Christmas Island: 2018 Plan
KEY SUCCESS FACTORS
Clarity of Direction
It must establish the direction for where we want to go
o A clear, understandable statement of the vision
o A guide for people’s work
We must first get big decisions out of the way, e.g. the future
of the mine, what is the government’s plans for the future of
the island, including maximum planned population
Ownership
We need to be clear on ownership of the plan – Shire, joint,
multi-jurisdictional?
People must receive a sense of empowerment
The Planning Forum
Must be a functional committee with people prepared to
drive the Plan
Need to capture the ‘decision makers’
Individuals should send a proxy if they can’t attend
Need to overcome language barrier for people with English as
a second language
Consider young people as the future of the island and engage
them accordingly in development of the Plan
3.4 Strategic Questions to Guide the Development
of the Plan
Given the consultation that occurred, it appeared to be a widely held assertion that
developing and implementing a plan such as Christmas Island 2018 is a complex and
challenging process. To acknowledge these complexities and create an intention to
systematically address them as part of the planning process, a number of strategic
questions have been posed as part of the initial direction report.
Is the Plan about ‘big picture’ strategic projects, smaller community driven
projects, or both? How will stakeholders’ differing expectations about what
the plan should do and the determination of priorities be managed?
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What structures and processes need to be put in place to ensure effective
implementation of the CI 2018 Plan?
What status will the Plan hold with the various agencies that will be
responsible for the implementation of key strategies? How will the Plan
relate to other key strategic documents of the Shire, ADG, Parks Australia,
CIP and other relevant agencies in a consistent, coherent and meaningful
manner?
How can the realisation of a combined vision for Christmas Island successfully
and pragmatically address the tensions that inherently exist in planning for
multiple and sometimes contrary futures; including, mining, ecological
conservation, tourism, human settlement and a detention centre.
Answering these questions with stakeholders present will be a key component of the
next Phase of the project.
3.5 The Planning Forum
Given that the Planning Forum was not established at the commencement of the
project, a key aim of the first phase was to determine an appropriate membership
and terms of reference for the group. Details regarding these elements are noted
below.
3.5.1 Membership
At a project meeting with the Christmas Island Shire Councillors on April 15, 2010, it
was resolved that membership of the planning forum would be comprised to
represent the major authorities and organisations on Christmas Island. Membership
of the Planning Forum has been invited from the following organisations / groups.
Shire of Christmas Island
o Executive
o Councillors
Commonwealth
o Administrator of Christmas Island
o Attorney-General’s Department
o Parks Australia
o DIAC
Community
o Malay Association
o Chinese Literary Association
o Islamic Council
o Women’s Association
o Cricket and Sporting Club
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Business / Industry
o Christmas Island Tourism Association
o Christmas Island Economic Development Coordination Group
o Christmas Island Phosphates
o Union of Christmas Island Workers
3.5.2 Draft Terms of Reference for the Planning Forum
One of the earliest tasks of the Planning Forum when it formally meets will be to
agree on the purpose of the forum, the scope of task it will undertake, and how it
will undertake these tasks. The following draft terms of reference (Figure 10) are
offered as a starting point for considering these issues.
Figure 10: Draft terms of reference for the Planning Forum
DRAFT TERMS OF REFERENCE
Project Outputs and Outcomes
1. To jointly develop a shared vision statement for the future of Christmas
Island
2. T o develop integrated strategies and an implementation plan for priority
projects to achieve the shared vision for Christmas Island
3. To develop a protocol for community engagement by visiting consultants
and government representatives
4. To determine an appropriate mechanism for the ongoing monitoring,
evaluation and reporting on the implementation of the Christmas Island:
2018 Plan.
Process
5. To actively participate in meetings and workshops
6. To send a proxy representative if unable to attend meetings and
workshops
7. To disseminate information from the Planning Forum to broader
community organisations and networks and provide any subsequent
feedback to the Planning Forum
8. To assist the consultants to undertake broader community consultation
9. To provide comments and feedback to the consultants on written project
outputs
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3.6 Community Engagement and Capacity Building
Opportunities
In addition to working with the Planning Forum, the consultants will be
implementing a range of consultative processes to engage with individuals and
organisations that have been identified as often missing out on engagement and
planning processes. These include:
Youth at school aged 15-17
Youth post school and on-island aged 16-19
Youth in 20s who have left island for further education and made a decision
to return
Families who live on the mainland and are waiting for an opportunity to
come back and settle on the island
Older people past working age
Parents and in particular mothers
As part of the development of the Plan, broader community consultative processes
will be conducted in July/August to ensure that all individuals and organisations on
Christmas Island have an opportunity to be heard and help shape the structure and
content of the Plan. The consultants will work with members of the Planning Forum
and other community representatives to build capacity around good community
engagement processes and to jointly develop and implement these broader
consultative processes. These processes will be documented in due course such that
repeat consultations can be conducted by the Forum in the future without the aid of
consultants.
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4 Next Steps
This initial Directions Report was prepared to ensure that the consultation that was
undertaken in the initial visit by the consultants clearly articulated the messages
noted by stakeholders. As noted at the outset, following the dissemination of the
report, the next step in the development of the Plan is to hold the first meeting /
workshop of the Planning Forum with identified participants. This will take place
during a visit to Christmas Island by the consultants from the 29th May to 12th June
2010. The purpose of this first forum will be to:
Review and discuss the issues and opportunities identified in the Initial
Directions Report
Develop a draft joint vision statement
Discuss and agree on the issues and opportunities that will form the basic
framework for developing the strategies and actions of the Plan
In addition to the Planning Forum, the consultants will undertake a range of face to
face interviews and focus group sessions with representatives of the target groups
identified in section 3.6 above.
We look forward to consulting again with stakeholders on Christmas Island and
assisting them develop the Christmas Island: 2018 Plan.
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Appendix A – List of Individuals and
Organisations Consulted
Workshop with Shire Councillors – 15 April 2010
David Nielson - CEO
Cr Foo Kee Heng
Cr Chin Soon Chew
Cr Chin Soon Kheong (individual interview also)
Cr Nora Koh
Cr Azmi Yon
Cr Rosnah Pal
Cr Kamarazaman Ismail
Cr Mahmood Ismail
Individual / Group Interviews
Brian Lacey
Administrator of Christmas Island
Charlene Thompson
Social Worker
Christmas Island Neighbourhood Centre
Chris Su
Community Liaison Officer
Shire of Christmas Island
Christmas Island Tourism Association
Lisa Preston
Katrina Bird
Linda Cash
David Nielsen
CEO
Shire of Christmas Island
Cr Gordon Thomson
President
Shire of Christmas Island
Ian Francis
Principal
Christmas Island District High School
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Kane Martin
Commercial and Risk Service Manager
Christmas Island Phosphates
Katherine Wildermuth
Director
Indian Ocean Territories Administration
Attorney General’s Department
Malay Association
Asmi Yon (President)
Hassi Hassim
Marjory Gant
Government Conservator
Christmas Island National Park
Mike Misso
Planning Officer
Christmas Island National Park
Simon Milcock
Economic Development Officer
Indian Ocean Territories
Attorney-General's Department
Simon Princess
CI Divers
Zainal Abdul Majid
President
Islamic Council of Christmas Island
Other Residents
Suzane Chan
Alicia Tan
Rhiannon Bird
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Appendix B: Summary of Current Plans and Reports for Christmas Island
Note: The list of plans and reports summarised below is not exhaustive. It represents the documents that were identified by and accessible to
the consultants for the drafting of this report. The consultants believe the list of documents covers the majority of plans and reports that are
current and have a focus on the future development of Christmas Island. The list may be amended as a result of feedback received during the
initial workshop with the Planning Forum.
Themed Plans / Reports
Plan / Report Purpose / Elements of Christmas Priority Initiatives / Recommendations Primary
Description Island Vision Responsibility
Economic Development
Indian Ocean Territories The IOT Economic The Indian Ocean Territories Community Capacity Assessment CI Economic
Economic Development Development Strategy is to have sustainable diversified Housing / tourism accommodation report (long-term needs) Development
Draft Strategic Plan 2010- provide an agreed set of economies that are sensitive Aged care needs Consultative Group
2015 targets and outcomes which to the environment and the Marketing Plan
provide direction for a unified impacts of climate change. Outline Development Plans (urban design master plans)
approach to the development Education – research and development of economic development
of actions, monitoring and opportunities (e.g. export education – ‘school of excellence)
evaluation by the IOT Tourism – EOI process for a CI resort
community on achieving this Next Budget
vision. Community Leadership program
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Feasibility of IOTs Investigation into the ‘The IOTs will be largely self- Achievement of this vision will require:
Horticultural Industries 2010 development of a reliant on fresh, affordable the collaboration and commitment of government, private enterprise,
(SGS Economics and horticultural industry in the produce from sustainable regional bodies, and community organizations committed to
Planning) Indian Ocean Territories local horticulture by 2020, sustainable food production;
(IOTs) of Christmas Island and with the cost of produce in- the avoidance of waste; and,
Cocos (Keeling) Islands. As per line with mainland prices’ improvements to the economic and environmental sustainability of IOT
the terms of reference, critical communities.
components of the study will Importantly, it will require a system that ‘closes the loop’ on key
include: nutrient resources, land use, local food production and water
A review of previous management to provide multiple economic, environmental and social
studies, as well as prior benefits.
successes and failures of
the horticultural industry
in the IOT;
Investigation of and
reporting on relevant
research initiatives;
Investigation of and
reporting on initiatives on
similar island horticultural
efforts;
A community consultation
process;
Risk assessment and
mitigation considerations;
Development of costed
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scenarios to reduce the
import and increase the
export of horticultural
produce from the IOT.
Aquaculture Study (Draft in No information available Dept Fisheries, WA
2005, pending finalisation)
Inquiry into the changing An enquiry to examine the Summary of Recommendations
economic environment in issues associated with
the Indian Ocean Territories economic development in the Economic Environment of the IOTs
2010 (Joint Standing IOTs in the context of the 1. A focus on tourism development as part of economic
Committee on the National service delivery of diversification in response to possible permanent closure of CIP
Capital and External communications, transport, mine.
Territories) housing, the operation of 2. Funding for economic modelling of the impact of the detention
business and preparation to centre on the CI economy
deal with the impact of 3. A program of price monitoring for the IOTs
climate change. 4. Application of Corporations Law to the IOTs asap.
5. Government agencies should ensure payment of accounts within
30 days for goods and services sourced within the IOTs.
6. A health and safety inspectorate for CI.
7. Review building codes to ensure suitability for physical
environment and climate
8. Funding for establishment of local economic development
officers within the shires
9. Provision of discretionary grant approval authority to the
respective EDCGs for approval of individual grants under the
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economic development funding program; and former IOT
incorporated advisory bodies be dissolved
10. Review and streamline application process for the economic
development funding program
11. Increase the amount of funds available under the ED funding
program to $150,000 per annum for each territory
12. Funds be made available for the upgrade of the road to the
Detention Centre as soon as feasibility study is completed
13. Shires to develop a practical administrative complaints handling
process + provision of funding for secretariat support for this
purpose.
Emerging Industries
14. Examine the feasibility of implementing a tourist or short-stay
visa waiver scheme
15. CITA and ADG to develop an SDA with Tourism Australia to
review, revise and implement the CI Destination Development
Report
16. Establish renewable energy sources to supplement power needs
of IOTs
17. Draft and implement a land release and development plan
18. Transfer ownership of Quarantine Station on West Island to Shire
of Cocos (Keeling) Islands
19. Acknowledge potential effects of climate change, brief
stakeholders and build appropriate risk evaluation to any
proposals relating to ED
Information Communication Technology
20. Department of Broadband, Communications and Digital Economy
to review the operation of the Australian Broadband Guarantee
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as it applies to the IOTs
21. Subsidise improvements to the satellite link for the IOTs to
enable improved communication links with mainland
22. Provide assistance for the upgrade of telephony infrastructure
and services in line with mainland metropolitan standards
23. Explore possibility of ‘self help’ transmitters to the IOTs to enable
live sporting events
Transportation
24. Government provide a subsidy aimed at reducing cost of sea
freight and shipping services
25. Government continue to underwrite domestic air services
26. Cabotage restrictions should be removed for the IOTs
Tourism
Tourism - General Land use planning Various
Accommodation investment
Further development of infrastructure to access the parks (visitor
servicing)
Christmas Island Tourism This Christmas Island By the year 2012, we want For the period 2008-2012, the main priorities for CITA in the development CITA
Christmas Island to be
Plan 2008 – 2012 (Planning Tourism Association Plan of the tourism industry on Christmas Island will be to:
recognised as a great
for People) has been prepared to guide destination for tourism. Build on the existing known tourism products which are already
the management, We want to be recognised as attracting visitors;
development and having a unique suite of Match the tourism products with identified target markets, ensuring
tourism products focused on
promotion of tourism on the Island’s natural and that marketing material and promotions are directly targeted to those
Christmas Island for the cultural strengths. market segments, and that tourism operators and businesses are aware
period 2008-2012. It should We want to be known for of those markets and their preferences;
our hospitality which reflects
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