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NDIS and occupational therapy: Compatible in intention
and purpose from the consumer perspective
Mark V. Russi
Occupational Therapy, Monash University, Frankston, Victoria, Australia
KEY WORDS disability, occupational therapy, services.
People living with disability in Australia face additional
challenges compared to other people within the com-
munity. These challenges include having poorer access
to health services, lower levels of engagement in mean-
ingful education and fewer employment opportunities
(Australian Bureau of Statistics, 2010a). Consequently,
Australians with disabilities are 2.5 times more likely to
experience poverty than the general population. To
address the extra challenges, a person with a disability
has a National Disability Insurance Scheme (NDIS) was
proposed by the Productivity Commission (2011). The
NDIS involves a federally funded support scheme that
will provide lifelong support and care for people with
significant disabilities. This paper aims to:
1. Highlight the unequal health status of people living
with disability and how social insurance system may
address this inequity.
2. Explain how the NDIS, if implemented as proposed
by the Productivity Commission (2011), could pro-
vide equitable access to services to all Australians
living with disability.
3. Describe potential risks and limitations to the NDIS
and how these could be minimised.
4. Use a case illustration to demonstrate that compensa-
ble insurance can lead to gaining tertiary qualifica-
tions and a career in occupational therapy.
5. Describe how the occupational therapy profession
and NDIS are complementary and that the values,
skills and attributes of occupational therapists match
those of the scheme.
I sustained a complete T1 spinal cord injury in a
motor vehicle accident in 2004 but was fortunate
enough to be compensable and therefore financially
supported with injury-related expenses. The successful
completion of my Bachelor of Occupational Therapy
will be used to demonstrate what can be achieved when
financial barriers are removed and individualised sup-
port provided to enable the achievement of client-cen-
tred goals. Becoming tertiary educated has provided the
knowledge and skills related to health, which, when
combined with my life experience, allows the provision
of an informed consumer perspective to inform practice
in occupational therapy.
Current Australian disability
supports systems
The Productivity Commission is the Australian Govern-
ment’s independent research and advisory body on a
range of economic, social and environmental issues
affecting the welfare of Australians (Productivity Com-
mission, n.d.). Disability Care and Support was the Pro-
ductivity Commissions Inquiry Report outlining the
proposed National Disability Strategy. The current dis-
ability support system in Australia has been described
as underfunded, unfair, fragmented and inefficient.
According to the Productivity Commission (2011), peo-
ple with disabilities are provided with limited choice,
no certainty of access to appropriate supports, and little
scope to participate in the community. The current dis-
ability support system in Australia has been described
as underfunded, unfair, fragmented, and inefficient.
According to the Productivity Commission (2011), peo-
ple with disabilities are provided with limited choice,
no certainty of access to appropriate supports, and little
scope to participate in the community. It is proposed
that the NDIS will provide a fairer and more accessible
system by maximising community support and partici-
pation for people living with disability through indivi-
dual, organisational and policy approaches (Fig. 1).
The supports and services provided have been subject
to financial cycles and political influence (Department
of Families, Housing, Community Services and Indige-
nous Affairs [FaHCSIA], 2009). This means that access
to services has been subject to the availability of
funding, rather than being based on a human rights
Mark V. Russi BOccTherapy; New Graduate Occupational
Therapist.
Correspondence: Mark V. Russi, Department of Occupa-
tional Therapy, PO Box 527, Frankston, Victoria, 3199,
Australia. Email: mvrussi@outlook.com
Accepted for publication 26 May 2014.
© 2014 Occupational Therapy Australia
Australian Occupational Therapy Journal (2014) doi: 10.1111/1440-1630.12138
provision of services. Currently, people with chronic
medical conditions are able to claim five annual allied
health service visits through Medicare when managed
by their general practitioner. For many people with
ongoing health issues, five annual consultations are not
sufficient to enable effective management and active
participation in self-care, productivity and leisure tasks
and roles. To address this inadequate and inequitable
provision of support and services, it was proposed at
the Australia 2020 Summit that the most appropriate
way to satisfy the requirements of planning, efficiency
and positive outcome realisation was through a social
insurance type approach (FaHCSIA, 2009).
Social insurance schemes are mandatory redistribu-
tive mechanisms governments fund through taxes or
premiums that are paid for by participants. Such
schemes partially or fully fund injury-related expenses.
No fault insurance schemes provide compulsory first
party insurance for personal injuries and restrictions on
the right to sue for negligence that causes or contributes
to causing accidents (Cummins & Weiss, 1999). As the
purpose of NDIS is to improve the health and wellbeing
of people with disabilities, delivery of services will be
defined under its legislation. The implementation of
appropriate policies and management protocols pro-
vides guidelines and facilitates application of the legis-
lation, while minimising liability and enabling a
financially sustainable system.
Currently, disability supports are funded through
state-operated organisations that prevent many people
with disability from being able to engage meaningful
activities, including productive and employment roles.
More than 200,000 people with disabilities who are not
currently in the workforce indicate they would be able
to work if they were provided with appropriate support
(Australian Bureau of Statistics, 2010b). The introduction
of NDIS means that potentially, providing people with
disabilities with assistance to gain and maintain
employment could reduce the number of people reliant
on welfare and increase tax revenue and that increasing
the participation of people with disability in paid
employment may contribute to the reduction in the fis-
cal gap caused by the ageing population (Long, 2012).
Increased independence could reduce the reliance on
family members to provide support, and this in turn
will allow other family members to increase their partic-
ipation in paid employment and tax contribution, fur-
ther reducing the cost of NDIS.
The Productivity Commission (2011) proposes an
‘individual choice’ model, in which people with a dis-
ability (or their guardians) could choose how much con-
trol they wanted to exercise. This model, when
combined with the increased access to supports and ser-
vices, would provide a client-centred system that could
meet the needs of people with disabilities and their
families. It would allow people with disability to reduce
reliance on case managers and increase self-management.
Self-management involves day-to-day activities involved
in managing one’s own health, including health promot-
ing activities such as physical exercise and the manage-
ment of ongoing health conditions (Lorig & Holman,
2003). The issue of self-management is especially impor-
tant where only the client can be responsible for his or
her day-to-day care over the length of the illness. For
most of these people, self-management is a lifetime
task.
Currently within Australia, the best examples of no-
fault insurance schemes include the Transport Accident
Commission (TAC) and Workcover Insurance systems.
These schemes cover medical expenses, support services,
assistive equipment, home and vehicle modifications,
and loss of income protection for people involved in
motor vehicle and workplace accidents. These schemes
demonstrate, that if implemented and managed
effectively, that the NDIS has the potential to be finan-
cially viable while meeting the needs of people with
Disability Care will take a
long-term view and have a
strong incentive to fund cost
effective early interventions.
Services will aim to better
link people with disabilities
with the community,
including by using not-for-
profit organisations.
People will have much more
choice: support packages will
be tailored to their individual
needs.
Current clinical practice,
evidence based practice and
or clinical guidelines will be
utilised to ensure best
possible outcomes for
clients.
Data collection and analysis
will monitor outcomes and
ensure efficiency.
Provide information at a
population level, to help
break down stereotypes held
by the community regarding
disability.
Services will be based on
need as opposed to fiscal
allocations.
Ensure quality assurance and
diffusion of best practice
among providers.
Data collection and analysis
will monitor outcomes and
ensure efficiency.
FIGURE 1: Key components outlined by Productivity Commission (2011) outlined benefits of a national disability scheme.
© 2014 Occupational Therapy Australia
2 M. V. RUSSI
disabilities. However, as the NDIS involves funding indi-
vidually tailored supports and services for people with
disabilities, the economic impact of the scheme must be
considered to determine its viability and long-term sus-
tainability. This has to be considered because the ageing
Australian population may lead to cost escalation and
further vulnerability of people with disabilities.
Benefits of NDIS
NDIS will be the funder but not the provider of sup-
ports and services, providing financial certainty to sup-
ports and services that will improve the health and
wellbeing of people who have disabilities and their fam-
ilies. It is proposed that NDIS will manage client
accounts to provide consistency across the country and
achieve better outcomes for all Australians by address-
ing disability reform using a three tier approach:
Tier 1 – Everyone: All Australians will be protected
against the costs involved if they or a family mem-
ber acquire a significant disability.
Tier 2 – People with or affected by disability: Informa-
tion and referral services will be provided about
the most effective care and support options.
Tier 3 – People with significant care and support needs:
Individualised supports and services will be avail-
able to people with significant limitations due to
disability.
The proposed key benefits of NDIS include the provi-
sion of access to aids, equipment and environmental
modifications, access to allied health services, and per-
sonal, community and domestic support services (see
Table 1). These supports and services are in areas where
occupational therapists have the skills to provide and
effectively deliver services to people with disabilities.
The National Injury Insurance Scheme is a separate
federated scheme that will provide fully funded care
and support for all cases of people with catastrophic
injury. Claims would be operated and managed by the
states but funded by the federal system. It is recom-
mended that existing institutions like the TAC and
Workcover expand to include the management of other
catastrophic injuries within those jurisdictions.
Boundaries and regulatory systems must be estab-
lished to ensure risks and responsibilities are managed
efficiently. Such systems will facilitate shared service
planning and provide accountability. To enable people
with disabilities and their families to have control of
their lives, the NDIS is based on values of choice, secu-
rity and confidence. In addition, the goal of the NDIS is
to facilitate the development of a comprehensive and
sustainable support sector, and an inclusive society
(National Disability Services, 2013). Shared decision
making between service recipients, service providers
and NDIS Australia will provide flexibility and ensure
the scheme is managed effectively.
Limitations of and risks to NDIS
Interestingly, the core features of choice and control
over the supports they receive may also pose a major
risk of the scheme. Enabling people with significant dis-
abilities to have control over funds may make them vul-
nerable to exploitation by service providers and
marketing of ineffective products with limited scientific
basis. The provision of ineffective, harmful and non-evi-
dence based interventions is often harmful to the con-
sumer and would cause financial harm and pressures
on NDIS. Enabling greater choice and control also may
make NDIS vulnerable to exploitation by providers who
may effectively undercut value for money service provi-
sion. The occupational therapist involved in service pro-
vision in this area has the ability to mitigate these risks
through direct service provision and involvement
within the NDIS Agency.
Relevant comparable examples of social insurance
schemes highlight potential limitations of and risks of
NDIS. The German Long Term Care (LTC) Scheme pro-
vides clear recognition of the cost burden of an ageing
population. LTC has produced a financial deficit for the
past 10 years in spite of failure to adjust any welfare
benefits (Rothgang, 2010). Although the NDIS will not
provide income support, as older people are more likely
to have disabilities demand for support required is
likely to increase as the population age increases
(Australian Institute of Health and Welfare, 2000). This
comparison highlights concerns for the financial sustain-
ability of NDIS, with the median age of Australia’s pop-
ulation projected to increase from 36.7 in 2007 to
TABLE 1: Proposed services to be funded under NDIS and
occupational therapy role
NDIS service
Direct
occupational
therapy service
Consultative
occupational
therapy service
Allied health services Yes Yes
Aids and appliances Yes Yes
Home and
vehicle modifications
Yes Yes
Personal care Yes Yes
Community
access supports
Yes Yes
Respite No Yes
Specialist
accommodation support
Yes Yes
Domestic assistance Yes Yes
Transport assistance Yes Yes
Supported
employment services
Yes Yes
© 2014 Occupational Therapy Australia
VIEWPOINT 3
between 41.9 and 45.2 years by 2056 (Australian Bureau
of Statistics, 2012).
The New Zealand Accident Compensation Corpora-
tion in recent years has faced severe pressure from cost
and liability escalation in their serious injury cohort.
This has necessitated a review of the serious injury gov-
ernance and service delivery model leading to a model
which is more focussed on outcomes and evidence-
based practice (FaHCSIA, 2009). Although agencies such
as TAC and Workcover face these same issues, they
have appropriate policies and procedures in place to
effectively manage liability. For example, prescription of
supports, services and medications must be recom-
mended by qualified health professionals, including
occupational therapists, physiotherapists or medical
practitioners. Clinical justification must be provided and
supported by scientific evidence. This ensures that only
items that are of benefit to people with disabilities are
funded by insurers and funding agencies. Although pol-
icies and regulations may not always appear client-cen-
tred, they are necessary to maintain an insurance model
where supports can be provided to entitled claimants
(Ferrera, 2000).
An insider’s perspective
As a case illustration, my experience demonstrates that
when people with disabilities are given appropriate
supports and services, this enables them to be produc-
tive and contributing members of the community, some-
thing that is very difficult without such assistance.
Following my discharge from 19 months rehabilitation,
the availability of paid attendant care support facilitated
the continuation of therapy, which allowed me to
improve my health and fitness, and to economically and
socially participate in my community. To improve my
health and fitness, to allow me to participate more fully
in the community and be more independent at home, a
self-managed gymnasium programme was prescribed
by a community spinal physiotherapist. Regular partici-
pation in this fitness regime increased my strength and
endurance which increased my independence. Funded
attendant care support is necessary to set up gym
equipment and to assist with completing the pro-
gramme. Without this support, I would be unable to
independently complete the gymnasium programme
which would negatively impact my physical and mental
health by reducing my community involvement and
participation.
Needs-based supports involve the provision of sup-
port based on the needs of the client. Support is not
limited or restricted by financial constraints, time-
frames or quotas. If a physical or psychological need is
caused by an individual’s impairment then services
and supports are made available to address these.
Needs-based supports allowed me to successfully com-
plete tertiary studies, first starting in Health Sciences
and then leading to a Bachelor of Occupational
Therapy. Following rehabilitation, I did not have the
ability to drive or access to public transport and as a
result attendant care allowed me to access the commu-
nity, which enabled me to remain active and involved
in my local community. Needs-based supports enabled
me to regain my driver’s license by providing specia-
lised driving lessons in a modified vehicle and the
vehicle modifications necessary to independently trans-
port. A car was purchased using the impairment bene-
fit received for personal injury sustained in my
accident. Hand controls and an electric seat were fitted
that allows me to independently get my wheelchair
into and out of the car. When the NDIS is introduced
all eligible clients, not just those with compensable
injuries, can become empowered to become more
autonomous and have greater involvement and control
in their own health care and lives.
In my experience and opinion, the creation of a sup-
portive home environment forms the foundation from
which people are able to achieve beyond what society
would expect. During rehabilitation, my home was
extensively modified to enable wheelchair access and
support my independence. This included the construc-
tion of an accessible bathroom, new entrances, a new
driveway and creating a more open plan layout with
greater circulation space. For many people, this is
beyond them unless supported with timely and appro-
priate support to manage their impairment. Support as
was done through TAC and could be done through
NDIS. Removal of financial barriers and provision of
equitable support may allow people with disability to
become more actively involved in the community and
increase opportunity and participation in education,
employment and other productive roles.
Support for non-compensable disability
As supported by Ivanoff, Iwarsson and Sonn (2006), the
provision of assistive technology and physical environ-
mental interventions represented important strategies
that promoted my occupational performance including,
but is not limited to, the provision of assistive devices
such as wheelchairs, commodes, vehicle modifications,
and an accessible bathroom and home environment.
Access to home modifications and assistive technology
allows people with a disability to compensate for absent
or impaired abilities and enable participation and occu-
pational performance (Buning, 2008). With the provision
of a suitable home environment, my independence was
supported which enabled me to address other goals
with minimal additional support and self-care issues.
My experience demonstrates that access to health pro-
fessionals and individualised support facilitates effective
health management of people living with disability.
These client-centred supports are not currently available
to more than 400,000 people that the Productivity Com-
mission (2011) estimates who do not have compensable
injury or disability. Allied health services, including
© 2014 Occupational Therapy Australia
4 M. V. RUSSI
occupational therapy and physiotherapy will be fully
funded under NDIS as long as they are supported by
clinical evidence (Productivity Commission). Profes-
sional guidance and support will assist to address the
challenges people with disabilities face in their
everyday life. Individual families and people living
with disability will work with a ‘planner’ to identify
goals and action strategies and supports to meet
client-centred goals that lead to economic or social
participation. This has potential to create greater auton-
omy and self-management for many people with dis-
abilities.
NDIS and occupational therapy
Because occupational therapy is a profession committed
to improving the quality of life and economic and social
participation for people with disabilities (Law, 2002),
the profession is ideally placed to complement and sup-
port the NDIS. The introduction of NDIS will have a
significant impact on the occupational therapy profes-
sion if it increases access to allied health services and
enables access to the most effective therapies; these
would strengthen and support the provision of occupa-
tional therapy services. Through the NDIS, occupational
therapists may be better funded to contribute to the bet-
terment and improved participation in the daily lives of
clients.
Community-based occupational therapy practice will
be facilitated and enhanced by NDIS as it will enable
people with disabilities who currently are non-compen-
sable to receive allied health services (Productivity
Commission, 2011). Occupational therapists will be able
to enable people to develop long-term goals, such as
returning to study or gaining employment that will
guide therapy and be achieved through a series of
short-term goals. As shown by Doig, Fleming, Cornwell
and Kuipers (2009), goals provide structure, which facil-
itates participation in rehabilitation despite the presence
of barriers, including reduced motivation and impaired
self-awareness. A therapist-facilitated, structured, goal-
setting process in which the client, therapist and signifi-
cant others work in partnership can enhance the process
of goal setting and goal-directed rehabilitation in a com-
munity rehabilitation context. Provision of aids and
appliances will facilitate therapy as financial constraints
will not impede therapists’ ability to achieve the best
possible outcomes for clients. Occupational therapists
will have greater freedom and control over the environ-
ment as home and workplace modifications will also be
funded under the NDIS (Productivity Commission,
2011).
Occupational therapists are uniquely positioned to
provide services within the three tiered levels of service
provision. These include increasing opportunities for
people with disability by creating a more inclusive com-
munity, provision of information and referral to sup-
ports and services for people affected by disability, and
by providing individualised support and services with
people with significant disabilities. The profession as a
whole, as well as individual practitioners, are likely to
be instrumental in the implementation and continued
delivery of the scheme. Occupational therapists must
use client-centred practice and their knowledge of the
health-care system to provide supports that enhance the
lives of people living with disability. They will achieve
this by creating a more inclusive and supporting
community, through advocacy, and utilising clinical rea-
soning skills to provide fairer, more positive outcomes
in the same way that has been done with compensable
clients for some time. Without health-care practitioner’s
involvement with the NDIS, the full benefits of the
scheme are unlikely to be realised.
However, there is a possibility that opportunity for
occupational therapy could result in a workforce short-
age. This is likely due to increased access to allied
health services by people with disability and demand
for occupational therapy services, which could poten-
tially lead to there not being enough qualified occupa-
tional therapists to cater for this increased demand for
occupational therapy services. Other roles and positions
created by the NDIS that occupational therapists could
complete would only exacerbate this potential problem.
Workforce demands are already evident through cur-
rent workforce shortages of occupational therapists
around Australia (Occupational Therapy Australia,
2012). The Australian Minimum Competency Standard
for New Graduate Occupational Therapists (Occupa-
tional Therapy Australia, 2010) ensures therapists have
diverse skills that prepare them to fulfil a range of
health positions. Roles created by NDIS that occupa-
tional therapists could competently perform realistically
extend beyond the planner, or direct service provider to
include positions in health promotion, community
development and research (Productivity Commission,
2011).
Fundamental principles that underpin occupational
therapy are entrenched within the recommendations
proposed by the Productivity Commission (2011). The
NDIS has a holistic view of health that reflects the holis-
tic view of health and wellness practised by occupa-
tional therapists through increased participation in
meaningful occupation. This approach gives equal
importance to the occupational environment, the person
and their interaction, and is used to identify interven-
tions that will promote the ability to perform occupa-
tions with greater efficiency, effectiveness and
satisfaction (Schkade & Schultz, 1992). The NDIS uses a
lifelong approach to provide care and support, recognis-
ing that planning must look beyond the immediate need
and involve lifelong planning (Productivity Commis-
sion). This reflects an occupational perspective that
views occupational engagement across the lifespan
incorporating early-intervention, rehabilitative therapies
and long-term goals.
© 2014 Occupational Therapy Australia
VIEWPOINT 5
NDIS and occupational therapy are both person and
client centred. Client centredness is promoted within
occupational therapy though individual autonomy and
choice, partnership, shared responsibility, enablement,
accessibility and by respecting diversity (Law, Baptiste &
Mills, 1995). This is reflected in support management of
the NDIS as it considers how individual client potential
might be realised through personal planning, application
and outcome monitoring (FaCSIA, 2009). Under the
NDIS, people with disabilities will have a choice of sup-
ports and services they use, who provides them, how
they are designed and provided, how resources are uti-
lised and how their funding is managed (Common-
wealth of Australia, 2013). These features are congruent
with the best practice recommendations of Clark, Scott
and Krupa (1993) that client involvement in intervention
planning, collaboration and evaluation should form the
basis for planning occupational therapy services.
Outcomes of the NDIS/moving forward with
NDIS
Many inequities faced by people living with disability
could be reduced by the introduction of the NDIS
though equitable access to services and supports and
removal of financial barriers. Australia’s ageing popula-
tion leading to greater utilisation of health and support
services, escalating costs and operations management
systems pose potential risks and limitations for the
NDIS. Many of these risks can be mitigated through
regulatory systems whose effectiveness has been dem-
onstrated in comparable insurance schemes. The NDIS
will increase the demand for health services such as
occupational therapy and allow improved client out-
comes due to shared and complementary perspectives
of health.
Occupational therapy could be strengthened, sup-
ported, enhanced and complemented by the NDIS, as
the NDIS reflects occupational therapy core principles
and has a lifespan view of health that may ultimately
improve the health and wellbeing of people with a dis-
ability. What is certain is that the occupational therapy
profession needs to be proactive in this new arena to be
able to be instrumental in delivery of this scheme. My
personal experience demonstrates that removing the
financial burden associated with living with disability
has the potential to improve the health and wellbeing of
people with disabilities and enable them to be produc-
tive and contributing members of society.
Acknowledgements
I would like to thank Monash University academic staff
for their professionalism and support while completing
my undergraduate studies, with particular acknowl-
edgement of Dr Helen Bourke-Taylor and Associate
Professor Louise Farnworth for their assistance prepar-
ing this manuscript.
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© 2014 Occupational Therapy Australia
VIEWPOINT 7

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NDIS and occupational therapy Compatible in intention and purpose from the consumer perspective

  • 1. Viewpoint NDIS and occupational therapy: Compatible in intention and purpose from the consumer perspective Mark V. Russi Occupational Therapy, Monash University, Frankston, Victoria, Australia KEY WORDS disability, occupational therapy, services. People living with disability in Australia face additional challenges compared to other people within the com- munity. These challenges include having poorer access to health services, lower levels of engagement in mean- ingful education and fewer employment opportunities (Australian Bureau of Statistics, 2010a). Consequently, Australians with disabilities are 2.5 times more likely to experience poverty than the general population. To address the extra challenges, a person with a disability has a National Disability Insurance Scheme (NDIS) was proposed by the Productivity Commission (2011). The NDIS involves a federally funded support scheme that will provide lifelong support and care for people with significant disabilities. This paper aims to: 1. Highlight the unequal health status of people living with disability and how social insurance system may address this inequity. 2. Explain how the NDIS, if implemented as proposed by the Productivity Commission (2011), could pro- vide equitable access to services to all Australians living with disability. 3. Describe potential risks and limitations to the NDIS and how these could be minimised. 4. Use a case illustration to demonstrate that compensa- ble insurance can lead to gaining tertiary qualifica- tions and a career in occupational therapy. 5. Describe how the occupational therapy profession and NDIS are complementary and that the values, skills and attributes of occupational therapists match those of the scheme. I sustained a complete T1 spinal cord injury in a motor vehicle accident in 2004 but was fortunate enough to be compensable and therefore financially supported with injury-related expenses. The successful completion of my Bachelor of Occupational Therapy will be used to demonstrate what can be achieved when financial barriers are removed and individualised sup- port provided to enable the achievement of client-cen- tred goals. Becoming tertiary educated has provided the knowledge and skills related to health, which, when combined with my life experience, allows the provision of an informed consumer perspective to inform practice in occupational therapy. Current Australian disability supports systems The Productivity Commission is the Australian Govern- ment’s independent research and advisory body on a range of economic, social and environmental issues affecting the welfare of Australians (Productivity Com- mission, n.d.). Disability Care and Support was the Pro- ductivity Commissions Inquiry Report outlining the proposed National Disability Strategy. The current dis- ability support system in Australia has been described as underfunded, unfair, fragmented and inefficient. According to the Productivity Commission (2011), peo- ple with disabilities are provided with limited choice, no certainty of access to appropriate supports, and little scope to participate in the community. The current dis- ability support system in Australia has been described as underfunded, unfair, fragmented, and inefficient. According to the Productivity Commission (2011), peo- ple with disabilities are provided with limited choice, no certainty of access to appropriate supports, and little scope to participate in the community. It is proposed that the NDIS will provide a fairer and more accessible system by maximising community support and partici- pation for people living with disability through indivi- dual, organisational and policy approaches (Fig. 1). The supports and services provided have been subject to financial cycles and political influence (Department of Families, Housing, Community Services and Indige- nous Affairs [FaHCSIA], 2009). This means that access to services has been subject to the availability of funding, rather than being based on a human rights Mark V. Russi BOccTherapy; New Graduate Occupational Therapist. Correspondence: Mark V. Russi, Department of Occupa- tional Therapy, PO Box 527, Frankston, Victoria, 3199, Australia. Email: mvrussi@outlook.com Accepted for publication 26 May 2014. © 2014 Occupational Therapy Australia Australian Occupational Therapy Journal (2014) doi: 10.1111/1440-1630.12138
  • 2. provision of services. Currently, people with chronic medical conditions are able to claim five annual allied health service visits through Medicare when managed by their general practitioner. For many people with ongoing health issues, five annual consultations are not sufficient to enable effective management and active participation in self-care, productivity and leisure tasks and roles. To address this inadequate and inequitable provision of support and services, it was proposed at the Australia 2020 Summit that the most appropriate way to satisfy the requirements of planning, efficiency and positive outcome realisation was through a social insurance type approach (FaHCSIA, 2009). Social insurance schemes are mandatory redistribu- tive mechanisms governments fund through taxes or premiums that are paid for by participants. Such schemes partially or fully fund injury-related expenses. No fault insurance schemes provide compulsory first party insurance for personal injuries and restrictions on the right to sue for negligence that causes or contributes to causing accidents (Cummins & Weiss, 1999). As the purpose of NDIS is to improve the health and wellbeing of people with disabilities, delivery of services will be defined under its legislation. The implementation of appropriate policies and management protocols pro- vides guidelines and facilitates application of the legis- lation, while minimising liability and enabling a financially sustainable system. Currently, disability supports are funded through state-operated organisations that prevent many people with disability from being able to engage meaningful activities, including productive and employment roles. More than 200,000 people with disabilities who are not currently in the workforce indicate they would be able to work if they were provided with appropriate support (Australian Bureau of Statistics, 2010b). The introduction of NDIS means that potentially, providing people with disabilities with assistance to gain and maintain employment could reduce the number of people reliant on welfare and increase tax revenue and that increasing the participation of people with disability in paid employment may contribute to the reduction in the fis- cal gap caused by the ageing population (Long, 2012). Increased independence could reduce the reliance on family members to provide support, and this in turn will allow other family members to increase their partic- ipation in paid employment and tax contribution, fur- ther reducing the cost of NDIS. The Productivity Commission (2011) proposes an ‘individual choice’ model, in which people with a dis- ability (or their guardians) could choose how much con- trol they wanted to exercise. This model, when combined with the increased access to supports and ser- vices, would provide a client-centred system that could meet the needs of people with disabilities and their families. It would allow people with disability to reduce reliance on case managers and increase self-management. Self-management involves day-to-day activities involved in managing one’s own health, including health promot- ing activities such as physical exercise and the manage- ment of ongoing health conditions (Lorig & Holman, 2003). The issue of self-management is especially impor- tant where only the client can be responsible for his or her day-to-day care over the length of the illness. For most of these people, self-management is a lifetime task. Currently within Australia, the best examples of no- fault insurance schemes include the Transport Accident Commission (TAC) and Workcover Insurance systems. These schemes cover medical expenses, support services, assistive equipment, home and vehicle modifications, and loss of income protection for people involved in motor vehicle and workplace accidents. These schemes demonstrate, that if implemented and managed effectively, that the NDIS has the potential to be finan- cially viable while meeting the needs of people with Disability Care will take a long-term view and have a strong incentive to fund cost effective early interventions. Services will aim to better link people with disabilities with the community, including by using not-for- profit organisations. People will have much more choice: support packages will be tailored to their individual needs. Current clinical practice, evidence based practice and or clinical guidelines will be utilised to ensure best possible outcomes for clients. Data collection and analysis will monitor outcomes and ensure efficiency. Provide information at a population level, to help break down stereotypes held by the community regarding disability. Services will be based on need as opposed to fiscal allocations. Ensure quality assurance and diffusion of best practice among providers. Data collection and analysis will monitor outcomes and ensure efficiency. FIGURE 1: Key components outlined by Productivity Commission (2011) outlined benefits of a national disability scheme. © 2014 Occupational Therapy Australia 2 M. V. RUSSI
  • 3. disabilities. However, as the NDIS involves funding indi- vidually tailored supports and services for people with disabilities, the economic impact of the scheme must be considered to determine its viability and long-term sus- tainability. This has to be considered because the ageing Australian population may lead to cost escalation and further vulnerability of people with disabilities. Benefits of NDIS NDIS will be the funder but not the provider of sup- ports and services, providing financial certainty to sup- ports and services that will improve the health and wellbeing of people who have disabilities and their fam- ilies. It is proposed that NDIS will manage client accounts to provide consistency across the country and achieve better outcomes for all Australians by address- ing disability reform using a three tier approach: Tier 1 – Everyone: All Australians will be protected against the costs involved if they or a family mem- ber acquire a significant disability. Tier 2 – People with or affected by disability: Informa- tion and referral services will be provided about the most effective care and support options. Tier 3 – People with significant care and support needs: Individualised supports and services will be avail- able to people with significant limitations due to disability. The proposed key benefits of NDIS include the provi- sion of access to aids, equipment and environmental modifications, access to allied health services, and per- sonal, community and domestic support services (see Table 1). These supports and services are in areas where occupational therapists have the skills to provide and effectively deliver services to people with disabilities. The National Injury Insurance Scheme is a separate federated scheme that will provide fully funded care and support for all cases of people with catastrophic injury. Claims would be operated and managed by the states but funded by the federal system. It is recom- mended that existing institutions like the TAC and Workcover expand to include the management of other catastrophic injuries within those jurisdictions. Boundaries and regulatory systems must be estab- lished to ensure risks and responsibilities are managed efficiently. Such systems will facilitate shared service planning and provide accountability. To enable people with disabilities and their families to have control of their lives, the NDIS is based on values of choice, secu- rity and confidence. In addition, the goal of the NDIS is to facilitate the development of a comprehensive and sustainable support sector, and an inclusive society (National Disability Services, 2013). Shared decision making between service recipients, service providers and NDIS Australia will provide flexibility and ensure the scheme is managed effectively. Limitations of and risks to NDIS Interestingly, the core features of choice and control over the supports they receive may also pose a major risk of the scheme. Enabling people with significant dis- abilities to have control over funds may make them vul- nerable to exploitation by service providers and marketing of ineffective products with limited scientific basis. The provision of ineffective, harmful and non-evi- dence based interventions is often harmful to the con- sumer and would cause financial harm and pressures on NDIS. Enabling greater choice and control also may make NDIS vulnerable to exploitation by providers who may effectively undercut value for money service provi- sion. The occupational therapist involved in service pro- vision in this area has the ability to mitigate these risks through direct service provision and involvement within the NDIS Agency. Relevant comparable examples of social insurance schemes highlight potential limitations of and risks of NDIS. The German Long Term Care (LTC) Scheme pro- vides clear recognition of the cost burden of an ageing population. LTC has produced a financial deficit for the past 10 years in spite of failure to adjust any welfare benefits (Rothgang, 2010). Although the NDIS will not provide income support, as older people are more likely to have disabilities demand for support required is likely to increase as the population age increases (Australian Institute of Health and Welfare, 2000). This comparison highlights concerns for the financial sustain- ability of NDIS, with the median age of Australia’s pop- ulation projected to increase from 36.7 in 2007 to TABLE 1: Proposed services to be funded under NDIS and occupational therapy role NDIS service Direct occupational therapy service Consultative occupational therapy service Allied health services Yes Yes Aids and appliances Yes Yes Home and vehicle modifications Yes Yes Personal care Yes Yes Community access supports Yes Yes Respite No Yes Specialist accommodation support Yes Yes Domestic assistance Yes Yes Transport assistance Yes Yes Supported employment services Yes Yes © 2014 Occupational Therapy Australia VIEWPOINT 3
  • 4. between 41.9 and 45.2 years by 2056 (Australian Bureau of Statistics, 2012). The New Zealand Accident Compensation Corpora- tion in recent years has faced severe pressure from cost and liability escalation in their serious injury cohort. This has necessitated a review of the serious injury gov- ernance and service delivery model leading to a model which is more focussed on outcomes and evidence- based practice (FaHCSIA, 2009). Although agencies such as TAC and Workcover face these same issues, they have appropriate policies and procedures in place to effectively manage liability. For example, prescription of supports, services and medications must be recom- mended by qualified health professionals, including occupational therapists, physiotherapists or medical practitioners. Clinical justification must be provided and supported by scientific evidence. This ensures that only items that are of benefit to people with disabilities are funded by insurers and funding agencies. Although pol- icies and regulations may not always appear client-cen- tred, they are necessary to maintain an insurance model where supports can be provided to entitled claimants (Ferrera, 2000). An insider’s perspective As a case illustration, my experience demonstrates that when people with disabilities are given appropriate supports and services, this enables them to be produc- tive and contributing members of the community, some- thing that is very difficult without such assistance. Following my discharge from 19 months rehabilitation, the availability of paid attendant care support facilitated the continuation of therapy, which allowed me to improve my health and fitness, and to economically and socially participate in my community. To improve my health and fitness, to allow me to participate more fully in the community and be more independent at home, a self-managed gymnasium programme was prescribed by a community spinal physiotherapist. Regular partici- pation in this fitness regime increased my strength and endurance which increased my independence. Funded attendant care support is necessary to set up gym equipment and to assist with completing the pro- gramme. Without this support, I would be unable to independently complete the gymnasium programme which would negatively impact my physical and mental health by reducing my community involvement and participation. Needs-based supports involve the provision of sup- port based on the needs of the client. Support is not limited or restricted by financial constraints, time- frames or quotas. If a physical or psychological need is caused by an individual’s impairment then services and supports are made available to address these. Needs-based supports allowed me to successfully com- plete tertiary studies, first starting in Health Sciences and then leading to a Bachelor of Occupational Therapy. Following rehabilitation, I did not have the ability to drive or access to public transport and as a result attendant care allowed me to access the commu- nity, which enabled me to remain active and involved in my local community. Needs-based supports enabled me to regain my driver’s license by providing specia- lised driving lessons in a modified vehicle and the vehicle modifications necessary to independently trans- port. A car was purchased using the impairment bene- fit received for personal injury sustained in my accident. Hand controls and an electric seat were fitted that allows me to independently get my wheelchair into and out of the car. When the NDIS is introduced all eligible clients, not just those with compensable injuries, can become empowered to become more autonomous and have greater involvement and control in their own health care and lives. In my experience and opinion, the creation of a sup- portive home environment forms the foundation from which people are able to achieve beyond what society would expect. During rehabilitation, my home was extensively modified to enable wheelchair access and support my independence. This included the construc- tion of an accessible bathroom, new entrances, a new driveway and creating a more open plan layout with greater circulation space. For many people, this is beyond them unless supported with timely and appro- priate support to manage their impairment. Support as was done through TAC and could be done through NDIS. Removal of financial barriers and provision of equitable support may allow people with disability to become more actively involved in the community and increase opportunity and participation in education, employment and other productive roles. Support for non-compensable disability As supported by Ivanoff, Iwarsson and Sonn (2006), the provision of assistive technology and physical environ- mental interventions represented important strategies that promoted my occupational performance including, but is not limited to, the provision of assistive devices such as wheelchairs, commodes, vehicle modifications, and an accessible bathroom and home environment. Access to home modifications and assistive technology allows people with a disability to compensate for absent or impaired abilities and enable participation and occu- pational performance (Buning, 2008). With the provision of a suitable home environment, my independence was supported which enabled me to address other goals with minimal additional support and self-care issues. My experience demonstrates that access to health pro- fessionals and individualised support facilitates effective health management of people living with disability. These client-centred supports are not currently available to more than 400,000 people that the Productivity Com- mission (2011) estimates who do not have compensable injury or disability. Allied health services, including © 2014 Occupational Therapy Australia 4 M. V. RUSSI
  • 5. occupational therapy and physiotherapy will be fully funded under NDIS as long as they are supported by clinical evidence (Productivity Commission). Profes- sional guidance and support will assist to address the challenges people with disabilities face in their everyday life. Individual families and people living with disability will work with a ‘planner’ to identify goals and action strategies and supports to meet client-centred goals that lead to economic or social participation. This has potential to create greater auton- omy and self-management for many people with dis- abilities. NDIS and occupational therapy Because occupational therapy is a profession committed to improving the quality of life and economic and social participation for people with disabilities (Law, 2002), the profession is ideally placed to complement and sup- port the NDIS. The introduction of NDIS will have a significant impact on the occupational therapy profes- sion if it increases access to allied health services and enables access to the most effective therapies; these would strengthen and support the provision of occupa- tional therapy services. Through the NDIS, occupational therapists may be better funded to contribute to the bet- terment and improved participation in the daily lives of clients. Community-based occupational therapy practice will be facilitated and enhanced by NDIS as it will enable people with disabilities who currently are non-compen- sable to receive allied health services (Productivity Commission, 2011). Occupational therapists will be able to enable people to develop long-term goals, such as returning to study or gaining employment that will guide therapy and be achieved through a series of short-term goals. As shown by Doig, Fleming, Cornwell and Kuipers (2009), goals provide structure, which facil- itates participation in rehabilitation despite the presence of barriers, including reduced motivation and impaired self-awareness. A therapist-facilitated, structured, goal- setting process in which the client, therapist and signifi- cant others work in partnership can enhance the process of goal setting and goal-directed rehabilitation in a com- munity rehabilitation context. Provision of aids and appliances will facilitate therapy as financial constraints will not impede therapists’ ability to achieve the best possible outcomes for clients. Occupational therapists will have greater freedom and control over the environ- ment as home and workplace modifications will also be funded under the NDIS (Productivity Commission, 2011). Occupational therapists are uniquely positioned to provide services within the three tiered levels of service provision. These include increasing opportunities for people with disability by creating a more inclusive com- munity, provision of information and referral to sup- ports and services for people affected by disability, and by providing individualised support and services with people with significant disabilities. The profession as a whole, as well as individual practitioners, are likely to be instrumental in the implementation and continued delivery of the scheme. Occupational therapists must use client-centred practice and their knowledge of the health-care system to provide supports that enhance the lives of people living with disability. They will achieve this by creating a more inclusive and supporting community, through advocacy, and utilising clinical rea- soning skills to provide fairer, more positive outcomes in the same way that has been done with compensable clients for some time. Without health-care practitioner’s involvement with the NDIS, the full benefits of the scheme are unlikely to be realised. However, there is a possibility that opportunity for occupational therapy could result in a workforce short- age. This is likely due to increased access to allied health services by people with disability and demand for occupational therapy services, which could poten- tially lead to there not being enough qualified occupa- tional therapists to cater for this increased demand for occupational therapy services. Other roles and positions created by the NDIS that occupational therapists could complete would only exacerbate this potential problem. Workforce demands are already evident through cur- rent workforce shortages of occupational therapists around Australia (Occupational Therapy Australia, 2012). The Australian Minimum Competency Standard for New Graduate Occupational Therapists (Occupa- tional Therapy Australia, 2010) ensures therapists have diverse skills that prepare them to fulfil a range of health positions. Roles created by NDIS that occupa- tional therapists could competently perform realistically extend beyond the planner, or direct service provider to include positions in health promotion, community development and research (Productivity Commission, 2011). Fundamental principles that underpin occupational therapy are entrenched within the recommendations proposed by the Productivity Commission (2011). The NDIS has a holistic view of health that reflects the holis- tic view of health and wellness practised by occupa- tional therapists through increased participation in meaningful occupation. This approach gives equal importance to the occupational environment, the person and their interaction, and is used to identify interven- tions that will promote the ability to perform occupa- tions with greater efficiency, effectiveness and satisfaction (Schkade & Schultz, 1992). The NDIS uses a lifelong approach to provide care and support, recognis- ing that planning must look beyond the immediate need and involve lifelong planning (Productivity Commis- sion). This reflects an occupational perspective that views occupational engagement across the lifespan incorporating early-intervention, rehabilitative therapies and long-term goals. © 2014 Occupational Therapy Australia VIEWPOINT 5
  • 6. NDIS and occupational therapy are both person and client centred. Client centredness is promoted within occupational therapy though individual autonomy and choice, partnership, shared responsibility, enablement, accessibility and by respecting diversity (Law, Baptiste & Mills, 1995). This is reflected in support management of the NDIS as it considers how individual client potential might be realised through personal planning, application and outcome monitoring (FaCSIA, 2009). Under the NDIS, people with disabilities will have a choice of sup- ports and services they use, who provides them, how they are designed and provided, how resources are uti- lised and how their funding is managed (Common- wealth of Australia, 2013). These features are congruent with the best practice recommendations of Clark, Scott and Krupa (1993) that client involvement in intervention planning, collaboration and evaluation should form the basis for planning occupational therapy services. Outcomes of the NDIS/moving forward with NDIS Many inequities faced by people living with disability could be reduced by the introduction of the NDIS though equitable access to services and supports and removal of financial barriers. Australia’s ageing popula- tion leading to greater utilisation of health and support services, escalating costs and operations management systems pose potential risks and limitations for the NDIS. Many of these risks can be mitigated through regulatory systems whose effectiveness has been dem- onstrated in comparable insurance schemes. The NDIS will increase the demand for health services such as occupational therapy and allow improved client out- comes due to shared and complementary perspectives of health. Occupational therapy could be strengthened, sup- ported, enhanced and complemented by the NDIS, as the NDIS reflects occupational therapy core principles and has a lifespan view of health that may ultimately improve the health and wellbeing of people with a dis- ability. What is certain is that the occupational therapy profession needs to be proactive in this new arena to be able to be instrumental in delivery of this scheme. My personal experience demonstrates that removing the financial burden associated with living with disability has the potential to improve the health and wellbeing of people with disabilities and enable them to be produc- tive and contributing members of society. Acknowledgements I would like to thank Monash University academic staff for their professionalism and support while completing my undergraduate studies, with particular acknowl- edgement of Dr Helen Bourke-Taylor and Associate Professor Louise Farnworth for their assistance prepar- ing this manuscript. 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Qualitative exploration of a client-centered, goal-directed approach to community-based occupational therapy for adults with traumatic brain injury. American Journal of Occupational Therapy, 64, 559–568. Ferrera, M. (2000). Building a sustainable welfare state. West European politics, 23, 257. Ivanoff, S. D., Iwarsson, S. & Sonn, U. (2006). Occupational therapy research on assistive technology and physical environmental issues: A literature review. Canadian Jour- nal of Occupational Therapy, 73, 109–119. Law, M. (2002). Participation in the occupations of every- day life. American Journal of Occupational Therapy, 56 (6), 640. Law, M., Baptiste, S. & Mills, J. (1995). Client-centred prac- tice: What does it mean and does it make a difference? Canadian Journal of Occupational Therapy, 62, 250–257. Long, B. (2012). The economic impact of the national dis- ability insurance scheme. 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  • 7. Lorig, K. R. & Holman, H. R. (2003). Self-management edu- cation: History, definition, outcomes, and mechanisms. Annals of Behavioral Medicine, 26, 1–7. National Disability Services Submission. (2013). National Disability Insurance Scheme Bill Regulatory Impact State- ment (RTS). Retrieved June 11 2014 from http://www. nds.org.au/asset/view_document/979321482 Occupational Therapy Australia. (2010). Australian Mini- mum Competency Standards for New Graduate Occupa- tional Therapists (ASCOT) 2010. Retrieved June 11 2014 from http://www.otaus.com.au/sitebuilder/aboutus/ knowledge/asset/files/16/australian_minimum_compe tency_standards_for_new_grad_occupational_therapists.pdf Occupational Therapy Australia. (2012). National disability & insurance scheme draft report feedback. Retrieved from http://www.pc.gov.au/__data/assets/pdf_file/000 7/109456/subdr868.pdf Productivity Commission. (2011). Disability care and support. Productivity Commission Inquiry Report, No. 54. Retrieved from http://www.pc.gov.au/__data/assets/pdf_file/001 4/111272/disability-support-overview-booklet.pdf Productivity Commission. (n.d.). About the productivity commission. Retrieved from http://www.pc.gov.au/ about-us Rothgang, H. (2010). Social insurance for long-term care: An evaluation of the German Model. Social Policy and Administration, 44, 436. Schkade, J. K. & Schultz, S. (1992). Occupational adaptation: Toward a holistic approach for contemporary practice, part 1. American Journal of Occupational Therapy, 46, 829–837. © 2014 Occupational Therapy Australia VIEWPOINT 7