Over the past decade, a number of forces have created severe stresses in rural Australia which have deeply affected Australia's farm families. The most recent examples have been the prolonged drought in eastern Australia and the collapse of wool prices. But such events are not unusual, indeed they recur often enough to be correctly seen as endemic. As well, there are other characteristics of agriculture in a mature open market economy which mean it is unavoidably subject to almost continuous pressure to 'adjust', (Musgrave, 1990; Stayner, 1995) a term used to refer to changes in the ways farmers manage the overlapping demands of their business and family affairs. Farmers respond by making a range of changes in their business and households. Household-related responses include 'belt-tightening' - that is, reduction of expenditure on food, clothing, health, utilities, entertainment, vacations, education, and home maintenance; the rundown of savings; off-farm employment or relocation of one or more family members; increased use of credit; borrowing from relatives; and receipt of government or non-government assistance. These actions can have damaging consequences for the well-being of farm families, including the breakdown of family relationships, depression, poor physical health, substance abuse, increased occupational accidents, and even suicide. Many farm families remain in the industry in a very distressed state, while others experience severe trauma in leaving it.
There are several aspects of family farming which result in farm families experiencing adjustment stress differently from those in other occupations. These relate to: the intimate connection between the farm as a place of work, residence, family tradition and identity; attitudes towards passing on both the occupation of farming and particular farm assets to the next generation; attitudes towards self-sufficiency and independence; gender roles; and attitudes towards alternative occupations and non-farming lifestyles. These factors have important implications for considering the adequacy and effectiveness of the institutional supports brought to bear in responding to these pressures.
It is clear that many of the effects of farm adjustment on families are neither directly nor adequately addressed by programs targeted at the financial condition of farm businesses. Given the nature of farming as a business, and given the fact that the overwhelming majority of farms in Australia are family owned and operated, from time to time families will experience significant business and personal stress. The challenge is to design programs which address the welfare needs of farm people in ways which do not unnecessarily inhibit the efficiency of the industry. Given the close relationship between business performance and family well-being, however, this is no easy task.
The chronic adjustment problems of the farm sector have elicited government programs which have largely avoided dealing directly and openly with the welfare dimensions of the experience of farm families. Farmers have a deep aversion to the word welfare, and tend not to see their problems as welfare problems, but as consequences of poor economic conditions and policies. Accordingly, adjustment policy has preferred to characterise the problem as arising from alleged failures in the farm finance market, and the overwhelming bulk of adjustment support has gone into subsidising the interest payments of the farm business. That is, programs have been targeted at improving the financial condition of the farm business. There have been and still are programs which attempt to provide financial incentives to farmers to leave the industry, and from time to time governments modify the assets tests in determining the eligibility of farm families for various forms of income support.
There has been a plethora of responses to these effects, from governments at all levels and from non-government organisations. Commonwealth and State Governments have responded with various programs of support particularly as the drought persisted. In September 1997 the Government announced its Agriculture - Advancing Australia package, which it claimed will provide an integrated set of programs for farm families, including a revamped welfare program.
It is therefore an opportune time to review the range of programs of support for farm families, to assess their relevance, identify any gaps in services and propose ways of improving future service provision to safeguard the well-being of Australian farm families. The Rural Development Centre was funded to conduct such a study by the Rural Industries Research & Development Corporation.
Objectives of the Project
The aims of the study were to:
Data Collection
Case studies were conducted in the districts surrounding Moree and Condobolin in New South Wales and Roma in Queensland.
We interviewed 43 service providers in the three districts, some by telephone, others in person, to gather an overview of the types of services offered in each region, identify which services or programs were the most successful in delivering services to farm families and where the gaps in service delivery lay. Face-to-face interviews were conducted with 21 farm families to seek an understanding of the situations that led them to seek help or advice, what type of help they sought, how they went about seeking support and whether there were any problems encountered.
Reasons for seeking assistance
Farm families were asked what event or situation led them to seek help or advice. Without exception, all participants reported that they were in financial difficulties. Drought was frequently blamed as the underlying cause of the current financial problems. However, in many cases, the problems of these families were well in place before the onset of the drought. For some participants, the high interest rates of the 1980's were clearly the catalyst for their current financial difficulties. Some families had gone into debt to expand their operation to establish their children in farming. The subsequent rise in interest rates, along with the collapse of the floor price of wool and the slump in cattle prices, placed these families in a poor position to cope with several years of drought.
Services most widely used and accepted by farmers
Service providers were also asked which services in their area were the most widely used or accepted by farmers. The popularity and success of Rural Financial Counsellors was evident in all three districts. An established service for over ten years, Rural Financial Counsellors provide farm families with free and confidential advice on financial and related personal matters. The NSW Drought Support Workers program was also very successful. This program aimed to address the information and emotional needs of farmers and their families through provision of counselling services, links with support services and emergency cash payments ( a maximum of $500) to assist in meeting household needs. The service was located within the offices of NSW Agriculture which added to its popularity and acceptance as the Department was not regarded as a welfare service. Drought Support Workers were mainly women. All were well known in their own community and presented a non-threatening, non-bureaucratic face. The program concluded in 1997 but in Queensland, a similar program, known as Rural Family Support Workers program, continues. In Queensland, these services are located in neighbourhood centres. Some workers stated they would rather not be located with welfare type services and would prefer locations similar to their New South Wales counterparts.
All of the farm families interviewed were very grateful to receive Drought Relief Payment. The assurance of having money regularly each fortnight to 'put food on the table' reduced much of the stress that families were experiencing, particularly the women. St Vincent de Paul, Lifeline, Anglicare, Salvation Army, Red Cross and the Smith Family were all cited as services which were well utilised. These agencies were involved in the distribution of Government drought funding and welfare support. The Government wisely recognised that acceptance of welfare services by farm families would be facilitated by utilising these established, well-known and trusted welfare agencies in rural areas.
Services least used and accepted by farmers
Service providers were also asked which services in their area were the least used or accepted by farmers. Most services appeared to be fully utilised. However some reported that the programs offered by the health department were not well used Often these services were hindered by rural people's concept of health as they do not see themselves as ill, rather they have an agricultural problem!
The label of mental health was cited as a deterrent to rural people seeking counselling services. The services offered by psychologists and mental health workers go beyond their nominal titles and names of their agencies. The stigma associated with mental illness sees people distancing themselves from such services.
The Health Department appointed Drought Counsellors during the drought. These services were not well taken up, as with all services put into place for farm families, there needs to be a period of time allowed for acceptance before a service becomes fully utilised. In some cases, there was not enough time to build up rapport with a community. It is acknowledged, however, that funding bodies have difficulty in maintaining a service which is not well utilised.
Barriers to farm families seeking assistance
Service providers were asked whether they saw anything that might stop farmers or farm families from approaching or using their services.
Encouraging farm families to seek assistance
Providers were asked whether they or any other local services done anything to encourage or make it easier for farmers to begin to seek help. Some providers believe "cold visits" to farmers (arriving on their doorstep with no warning) is the best way to communicate and assist farm families.
Service providers were very active in participating in information seminars, farm forums, field days and networking with other service providers, grower organisations and local communities to encourage farmers to use their services. In Moree, the Rural Financial Counsellor in conjunction with the local Department of Agriculture formed a group of local providers called the Red Tape Busters . This aimed to prevent farmers from having to approach several services to find the assistance they needed. The group met regularly which ensured all service providers were aware of the various services available which facilitated networking and referral between services. It also produced a pamphlet outlining the services available which was mailed to farm families in the district. Information meetings were conducted throughout the district using the existing rural networks such as the Country Women's Association and the Rural Women's Network.
The Department of Social Security in Moree, concerned that farm families would not enter the local office, liaised with local community groups to arrange neighbourhood meetings where officers were able to explain the services available and distribute the application forms for Drought Relief Payment. The department also established direct line to a Drought Officer as farmers loath the 1300 line which requires a long wait time.
Support from charity organisations
Farm families were asked about the assistance they received from charity organisations. The Farmhand appeal, the Save the Farm Fund based at the Gold Coast, Red Cross, the CWA, Chemist Guild, the Salvation Army, St Vincent de Paul, service clubs such as Rotary and Lions, Scouts and Guides Associations, the Sisters of Charity and Josephite Sisters as well as many other churches in various districts were all involved in the distribution of food and other household items to farm families. Toiletry items such as shampoo, toilet paper, cosmetics and perfume were particularly valued by farm women as these are items that people tend to do without when times are tough. Fodder drops were beneficial in that they surfaced those farm families who were in need. Farmers were able to recognise that they were not the only ones experiencing tough times.
All the families interviewed were very appreciative of the packages although some did find that being on the receiving end of charity was embarrassing.
Farm families' attitudes to welfare and support services
Service providers were asked whether they had noticed any shift in the attitude of farming people towards approaching welfare and support services. Some maintained that farm families have always been and continue to be embarrassed about requesting assistance. Usually the families have reached a stage of desperation before asking for help. However, the majority of the participants reported observing a growing acceptance by farm families of the support provided.
A small percentage of farm families were found to be abusing the system by accessing as many services as they could. One provider believed that the Drought Relief Payment has encouraged this attitude and that provision should be made to screen against welfare dependency. Others maintained that cases of dependency were minimal. In fact some Government agencies found that families were returning money and cancelling their Drought Relief Payment as they were able.
Unofficial sources of help
Farm families were asked about any unofficial person or group who was particularly helpful to them. Many heart warming stories came forth that demonstrated the generosity of city people and their concern for country people.
Participants commented on the value of supportive neighbours. For example, one woman found a job as a cook in a local nursing home and then employed her neighbour to do her ironing. She also made clothes for her neighbour to assist her look for work and supported her with material gifts. Their neighbours and friends had also developed a barter system of farm labour. The Country Women's Association provided valuable networks of women in rural areas. Many community groups formed drought support groups throughout the rural areas for the purpose of distributing welfare (mostly food and clothing). North of Moree, women's groups organised a "Drought House", a cottage on one of the properties which became a place for farm families to go discretely to access clothing and food as they required.
The Adult Education group at Gravesend, a small township located about 85 km east of Moree, evolved from an organisation providing interest-based courses for women to a group that provided education and information on support services for local farm families and a strong social network of support.
Gaps in services
It became evident that in general, farm families in Queensland had better access to services than did those in the districts surveyed in New South Wales. In Dubbo, Government health and welfare services were strained under the work load. There is a limit to the services Community Health provide to the area with distances they have to cover. There is also a high turnover in staff. In contrast, the Community Health staff in Roma felt that the district was well serviced. In the neighbouring town of Miles (population 800), the community health nurse felt there was a need for more doctors, there were three and a hospital. In comparison Condobolin in New South Wales there was only one doctor available for 3 000 people as well as those in surrounding districts. Several providers saw the end of Drought Support Worker program as a gap. The success of this service suggests that such service should be maintained on a more permanent basis as are the Rural Family Support Workers in Queensland. An obvious gap expressed by many service providers is the difficulty in getting information across to those who need it.
In some small isolated towns particularly in New South Wales, a question relating to gaps in services highlighted the need for a doctor, a bank, a fuel depot, public transport and access to fresh fruit and vegetables - common services that most people take for granted.
Farm employees are ineligible for the support available for farmers. While many farmers allowed their employees to continue living on their properties, there was only very occasional casual work available. These families experienced difficulties in accessing irregular unemployment benefits in isolated areas. Many elected to try to cope without assistance.
There was no provision in drought relief for rural contractors and similar businesses who are utterly dependent upon the farm community for income. Rural Contractors often have large debt in machinery, a large asset base and are therefore ineligible for assistance.
Farm families leaving farming need support. The loss of a farm may include the loss of a valued way of life, one's occupation and one's home which can be most traumatic. Following relocation, families are often isolated and have little contact with family and friends. They are no longer considered as 'farmers' and are no longer eligible for support services.
Respondents cited the following services as necessary for farm families who are leaving farming:
There were some services for exiting farmers which were initiatives of the Queensland Government:
The Bush Connection
The Bush Connection is a service in Toowoomba which assists farm families making the adjustment from farming by providing information and referral, financial, emotional and social support, legal advice and debt mediation services. Emergency aid is also available with food and accommodation. Assistance is provided with removals, either with physical or financial help, or other needs. Vocational guidance and retraining is provided. Social functions such as Barbeques are held regularly with the volunteers and clients and have proven to be very successful. The service employs a coordinator but functions with the services of volunteers. The coordinator suggested that Commonwealth Rehabilitation Service program which provides access to psychologists, occupational therapists, physiotherapists etc. would be very applicable to rehabilitating farmers.
Social Adjustment Advisers
The Department of Family Services also funds two Social Adjustment Advisers who assist farmers facing the prospect of leaving the land, one in Charleville and the other in Mareeba.
Legal Aid Farm Financial Service
This service employs only two lawyers, one in Toowoomba and the other in Rockhampton and aims to assist farmers with severe debt-related problems in order to equalise their bargaining position. Advice is given for managing assets and accessing assistance. The lawyer in Toowoomba believes there is a desperate need for this type of service. Servicing the whole of southern Queensland is a mammoth task. The majority of the clients seen are exiting farmers. Ideally, he would like to help farmers before they get to the mediation stage, however, the extent of the work load prevents this at present. There is also a need to extend the service to cater to the needs of small businesses in rural areas.
Gaps in Services - The Farm Families
Farm families were asked whether there any services or sorts of help they felt they needed but were not available. Farmers generally responded that they were satisfied with the services that they had accessed and were grateful for the assistance received. Of those who did respond to this question, the following needs were highlighted:
Childcare
Many of the farm women interviewed were required to work on-farm to assist their partners, or take off-farm work to seek extra income. Parents who have no extended family for support in these times are placed in a difficult position regarding child care and their farm work. Where farms are isolated from towns or mobile preschools, it is inefficient to travel to access childcare services. Parents told of their concern for their children being in an unsafe and dangerous workplace and how children often spent long days confined to the cabin of a tractor, or a farm utility while both parents tried to cope with managing their farms through the drought. These families would have liked the services of a nanny or access to family day care on a neighbouring property.
Legal advice
The majority of the farm families were receptive to the Queensland concept of legal aid for farmers as they would appreciate assistance with legal matters.
Counselling
One of the main gaps in services is the delivery of general counselling services, namely stress and crisis intervention, marriage and relationship and family counselling. Service providers observed the benefit in those farm families who have accessed such services. Farm families agreed that while the churches and Drought Support Workers were helpful, there was a need for counsellors with a greater level of skills. Two farm women had sought counselling from a female doctor.
One provider noted that following a reasonable season last year, people have been able to meet their financial commitments. Yet surprisingly, it is now that they are having relationship difficulties. With recovery comes a re-prioritising of objectives. Through the drought, farm families were united in their efforts to save the farm. However, with the breaking of the drought, the women are stating that they no longer want the pressures of farm life. Men are finding they cannot work and are realising that the farm was controlling their lives and that their family relationships have suffered. There is a need for counselling and support services for these families at this stage of transition. There is a particular need for trained counsellors to teach families communication skills. Funding is needed for travelling counsellors to visit families on their properties. Farm families need privacy in crisis and rarely can afford to travel to counsellors in major centres. There are some mobile services available. The Salvation Army has two rural chaplains one based in Armidale, the other in Balranald who try to cover much of rural New South Wales visiting farm families in their homes. Lifeline in southern Queensland offers face to face counselling by travelling counsellors who visit farm families on their properties. However these services are extremely limited with only one of that type of counsellor employed cover a large region. The Sisters of Charity in Gunnedah and Balranald and Josephite Sisters of Tullamore also offer a similar service. The Anglican Counselling Service trains counsellors who are then able to support families in their local areas. Several trainees are farmers themselves. In Dubbo, a group of counsellors with diverse skills are available to Rural Financial Counsellors for their farm clients as required.
Conclusion
The condition of Australian farm families experiencing adjustment stress raises knotty policy questions. To what extent should agriculture be treated as a special case of industry adjustment? What sort of assistance and support should farm families experiencing extreme pressure be offered from the public purse? In the past a great deal has been spent on farm adjustment, ostensibly to remedy the efficiency problems of the industry, but in reality as a response to chronic and acute low incomes of farm families. This money has not improved the efficiency of the industry; indeed it is now acknowledged to have been disguised welfare spending. Unfortunately, it has also only indirectly addressed the welfare problems of farm people. There is a gathering feeling, both within governments and, somewhat surprisingly, amongst the farming community, that support for farm families should not be directed to propping up struggling farm businesses, but would be better applied to treating directly and openly the financial and other traumas of farm people. This will require close attention to the sorts of considerations dealt with in this study, in order to design a comprehensive and farmer-friendly set of services and programs. It is likely that rural communities themselves will play an increasing role in delivering these services.
Elaine Crosby, Senior Project Officer,
The Rural Development Centre, University of New
England Armidale NSW 2351
Phone:
(02) 67735141.
Fax: (02) 67733245.
Email:ecrosby@metz.une.edu.au
Internet:
http://www.une.edu.au/~trdc/RDC.HTM