Christmas Island 2018 Plan - Initial Directions Report

 
Christmas Island 2018 Plan - Initial Directions Report
&
                            Anthony Whitaker SPS

Christmas Island 2018 Plan
Initial Directions Report

Shire of Christmas Island
May 2010
Christmas Island 2018 Plan - Initial Directions Report
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
Christmas Island 2018 Plan - Initial Directions Report
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 Plan - Initial Directions Report
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.

 & Anthony Whitaker SPS                       P. 1   2010_2003 (001) CI Initial Directions Report - 05-24-10.doc
Christmas Island 2018: Initial Directions Report

          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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Christmas Island 2018: Initial Directions Report

                 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

                    & Anthony Whitaker SPS                                                P. 1                                               2010_2003 (001) CI Initial Directions
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