Indigenous communities leading disaster resilience as governments fail to close the gap
Monash University
New analysis from Monash University has found that governments at all levels in Australia have failed to act on a key commitment in the National Agreement on Closing the Gap to engage with Aboriginal and Torres Strait Islander peoples before, during and after emergencies.
To mark National Close the Gap Day, the National Indigenous Disaster Resilience (NIDR) program, based in Monash University’s Faculty of Arts, has released a new Closing the Gap in Emergency Management Explainer. The Explainer outlines the lack of progress on agreed priority reforms and the immediate actions governments must take on disaster resilience.
NIDR’s program lead Associate Professor Bhiamie Williamson said the Explainer is necessary to hold governments accountable for the widening gap between their commitments and practical action, which is leaving Indigenous communities disproportionately exposed to the impacts of natural hazards.
“Indigenous communities, with a unique connection to their land, are also uniquely affected by environmental disasters. Despite facing greater risks when disaster hits, and having tens of thousands of years of knowledge on caring for Country and managing impacts of disasters, Indigenous people continue to be left out of decisions that directly affect their communities and Country. Governments signed up to engage with Aboriginal and Torres Strait Islander peoples in emergencies, but six years on, there is still no evidence of meaningful progress.”
The National Agreement on Closing the Gap, signed in 2020 by all levels of government and the Coalition of Aboriginal and Torres Strait Islander Peak Organisations, sets out commitments designed to transform the way governments work with Indigenous peoples. Under Clause 64, governments are committed to engaging with Aboriginal and Torres Strait Islander representatives before, during and after emergencies, and to ensuring Indigenous peoples are not disproportionately affected by disasters and can recover at a comparable rate to non‑Indigenous Australians.
NIDR’s Explainer, and more detailed Disaster Preparedness Scorecard, shows that no government has reported any progress against this clause since the Agreement was signed.
Researchers found limited action to transform emergency management agencies and eliminate racism, and no jurisdiction meeting expectations for engagement, funding or shared decision‑making with Indigenous communities before disasters.
The Scorecard also reveals that Indigenous peoples are significantly overrepresented in disaster‑impacted areas. Local Government Areas affected by disasters have an average Indigenous population of 14.7 per cent – almost four times the national average. Many of these areas are located on Country where Indigenous peoples hold native title, statutory land rights and cultural responsibilities, yet these rights are inconsistently recognised in emergency management legislation, policy and practice.
NIDR’s analysis further highlights the growing reliance on Indigenous‑led organisations, which are stepping in to support disaster‑impacted communities where government systems fall short. Despite this, these organisations receive only a fraction of disaster preparedness funding. Of the nearly $800 million disbursed through the Disaster Ready Fund, just $22 million – 3.1 per cent – went to Indigenous community based organisations.
Associate Professor Williamson said governments must now move beyond commitments and take concrete steps to close the gap in disaster preparedness.
“Indigenous organisations are already doing the work, often without recognition, resources or a seat at the table. If governments are serious about Closing the Gap, they must invest in Indigenous leadership and embed shared decision‑making in emergency management. The solutions are known; what’s missing is the political will to act.”
To address these gaps, NIDR has identified three priority actions governments can take to meet their emergency management commitments under the National Agreement. These include building formal partnerships with Aboriginal and Torres Strait Islander organisations to support shared decision‑making; investing in the community‑controlled sector to build an Indigenous emergency management capability, including through a dedicated $20 million stream under the Disaster Ready Fund; and fully integrating reporting requirements under Priority Reform 3 into annual reporting for emergency management agencies.
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