Overview of the National Agreement on Closing the Gap
The National Agreement represents a fundamental shift in the way First Peoples and governments are working in partnership to deliver better outcomes for First Peoples.
When the Victorian Government signed the National Agreement in July 2020, alongside all Australian governments, the Australian Local Government Association and the Coalition of Aboriginal and Torres Strait Islander Peak Organisations (Coalition of Peaks), it committed to fundamentally transforming the way it works with First Peoples. The Coalition of Peaks, a representative body of over 80 Aboriginal and Torres Strait Islander community-controlled peak organisations and members, was formed as an act of self-determination to work in partnership with Australian governments on Closing the Gap.
The National Agreement set out four Priority Reforms that are the mutually reinforcing enablers for achieving better outcomes for First Peoples. The four self-determination enablers in the VAAF broadly aligns with the Priority Reforms (see Figure 1), which have guided the Victorian Government’s efforts to improve outcomes for and with First Peoples.
The four Priority Reforms are:
- Priority Reform One: Formal partnerships and shared decision-making
- Priority Reform Two: Building the community-controlled sector
- Priority Reform Three: Transforming government organisations
- Priority Reform Four: Shared access to data and information at a regional level.
The National Agreement also sets out 17 socio-economic outcome areas and 19 associated socio-economic targets to measure progress in the outcomes experienced by Aboriginal and Torres Strait Islander people. Summaries of how Victoria is progressing against the targets for socio-economic outcome areas are included on the overview page of each relevant VAAF goal.
Reviews of the National Agreement
On 7 February 2024, the Productivity Commission published its first, three-yearly review of progress under the National Agreement, Review of the National Agreement on Closing the Gap (Review).
On 5 July 2024, the Joint Council on Closing the Gap (Joint Council) agreed to the Review's four key recommendations and to 15 of the 16 recommended actions.
Victoria will address and implement the recommendations and actions approved by the Joint Council through Victoria’s new Closing the Gap Implementation Plan. Victoria will ensure that the new Closing the Gap Implementation Plan complements the VAAF and its more ambitious goals compared to those enumerated in the National Agreement.
The Review highlights Victoria’s Treaty process as an example of ‘what rebalancing of power can look like’. It also shows clearly that more needs to be done to transform the way governments work and deliver true shared decision-making and accountability.
The National Agreement (clause 125-127) requires that an Independent Aboriginal and Torres Strait Islander-led Review (Independent Review) be conducted following each Productivity Commission review.
Clause 125 highlights that an Independent Review is an opportunity to capture the lived experiences of Aboriginal and Torres Strait Islander people and communities of the implementation of the Agreement.
Joint Council has agreed on a revised Terms of Reference for the Independent Review and the Assembly – a formal mechanism for First Peoples to inform the implementation of the National Agreement.
The Assembly was held on Ngunnawal and Ngambri Country in April 2025 and brought together the Aboriginal Community Controlled sector, other First Peoples-led organisations and experts who have experience implementing the National Agreement.
A Steering Committee has been established to oversee the Independent Review and to convene the Assembly, comprising Aboriginal Community Controlled sector leaders, a representative from the Department of Prime Minister and Cabinet, one representative nominated by state and territory governments and one representative from the Australian Local Government Association.
The final report for the Independent Review will be delivered by the end of May 2025, for consideration by Joint Council in June 2025. Public release of the final report will follow Joint Council approval.
Victoria’s Closing the Gap Implementation Plan
Victoria’s Closing the Gap Implementation Plan (Implementation Plan) outlines the actions Victoria is taking to implement the National Agreement on Closing the Gap (National Agreement) and driving progress on the Priority Reforms and socio-economic outcomes. Developed in 2021, the Implementation Plan is Victoria’s first under the National Agreement and sets the groundwork for actions that will create lasting change. This includes providing greater resourcing to ACCOs, addressing cultural safety in government organisations and institutions, and investing in data and information sharing with First Peoples.
The Victorian Government is developing Victoria’s new Implementation Plan in partnership with its formal implementation partner. The new Implementation Plan is set to be in place in 2026 and will supersede Victoria’s current Implementation Plan. The new Implementation Plan will outline the next phase of Victoria’s approach to achieving its commitments under the National Agreement and build on the actions progressed through the current Implementation Plan. It will be responsive to the recommendations of the Productivity Commission’s Review by focusing on strategic actions to progress the Priority Reforms and socio-economic targets.
Victoria’s Closing the Gap Partnership Forum
Victoria’s Closing the Gap Partnership Forum was established in May 2022 as the formal body for shared decision-making between the Victorian Government and First Peoples on matters under the National Agreement. The Partnership Forum comprises:
- Representatives of 14 ACCO sectors, elected by ACCOs and Traditional Owner groups through a community-based selection process.
- Aboriginal Governance Forum delegates, as nominated by the Aboriginal Caucuses of the Victorian Aboriginal Governance Forums.
- Senior executives from across the Victorian Government, including Secretaries of each department, the Chief Commissioner of Victoria Police, the Victorian Public Sector Commissioner and the Chief Executive Officer of Homes Victoria.
Ngaweeyan Maar-oo
Ngaweeyan Maar-oo, meaning “voice of and from the people” in Gunditjmara dialect, is comprised of community-elected representatives of 14 ACCO sectors and delegates of eight of Victoria’s Aboriginal Governance Forums, as nominated by the Aboriginal Caucuses of the Victorian Aboriginal Governance Forums.
As the formal implementation and decision-making partner with the Victorian Government on the National Agreement, Ngaweeyan Maar-oo informs the design, implementation, oversight and monitoring of the National Agreement and Victoria’s Implementation Plan.
Ngaweeyan Maar-oo meets independently of government to determine policy positions and engage independent policy advice. This includes producing responses to drafts and inquiries, allocating funding, conducting community engagement and establishing expert working groups. It is supported by a policy team secretariat, auspiced by the Victorian Aboriginal Health Service.
As a member of Coalition of Peaks and Joint Council, Ngaweeyan Maar-oo ensures that the wide range of knowledge and expertise within its membership informs Closing the Gap implementation at both the national and local level.
Annual reporting approach
Under clause 118 of the National Agreement, government parties are required to report annually on the implementation of the National Agreement. In Victoria, annual reporting against the National Agreement is currently embedded in the annual Victorian Government Aboriginal Affairs Report. Reporting for the calendar year 2023 was embedded in the 2023 Report, which was tabled in Parliament in June 2024. This Report primarily relates to the calendar year 2024 with 2025 updates included where appropriate.
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