Australian Association for Research in Education Annual Conference. University of Queensland, Brisbane, 2-5 December 2002.

Pamela Curtin and Claire Smith

Queensland Treasury

This paper explores the dynamics involved in introducing responsible gambling curriculum into schools. The core function of Queensland Treasury is not primarily education and when the Gambling Policy Directorate relocated from the Department of Families, it also brought education specialists and a policy mandate to ensure children and young people were informed about the issues associated with problem gambling. Conceptualising and negotiating the complexities of bureaucratic partnerships and developing participatory curriculum approaches are discussed from the viewpoints of two former teachers and current policy officers with Queensland Treasury.

We draw attention to the issues associated with gambling in relation to children and young people and in so doing locate the importance and a framework for education strategies. We endeavour to outline the processes and protocols when working across government departments to introduce a new subject into the school curriculum, and we explore what it means to work between the spaces of school and government and the overall perceived effectiveness of the responsible gambling curriculum modules that have been implemented in Queensland schools.

Like drugs and sex education, public views on educating young people about risk behaviours are divided. Some believe teaching about responsible gambling can encourage gambling. Others do not recognise gambling as a problem. However, gambling is embedded in Australia's cultural history. Jacobs (2000) states, "today's juveniles are the first generation to be raised in an environment where legalized gambling is  so pervasive, readily  accessible, and socially acceptable" (p.149).

Gambling is now a legalised activity in approximately 90 countries (Hardoon & Derevensky, 2001). It is generally regarded as a popular and acceptable form of entertainment and the number of gambling venues and the types of gambling activities available have multiplied and become far more visible in recent times. Selling raffle tickets, playing bingo, and celebrating the Melbourne Cup are all commonly accepted as part of Australian life and introduced to children at an early age.

A study carried out by Jacobs' (2000) in the United States revealed that the top four gambling activities by children and young people were "cards, dice and board game[s] with family and friends, games of personal skill with peers, sports betting, usually with peers in school settings, but also with a bookmaker, and bingo" (p.124). While it may be illegal for children and young people below the age of 18 participate in gambling, as with underage drinking, banning minors from gambling is difficult to identify and enforce. (Moore & Ohtsuka, 2001).

However, research indicates  that  those  18  years and under are most at risk for developing addictive  patterns of behaviour, including problem gambling (Jacobs 2000), and  that  young  people  are unlikely to have the skills and strategies to manage  their  gambling  and to  avoid financial and personal difficulties (Volberg & Lamar Moore, 1999). Studies carried out with young people in Victoria indicate that of those surveyed, between  3-9%  were considered to be problem gamblers (Victorian Government  1999,  Moore  and  Ohtsuka,  1997).  In  the  USA, studies have identified between 4-6% and 8.1% of problem gamblers among different youth populations  (Jacobs,  2000;  Govonni,  Rupcich & Frisch,1996) and Canadian research reveals  that  the  rate of problem gambling among adolescents is twice as high as that of adult problem gamblers (Gupta & Derevensky 1998).

Relationships Australia (2001) claims that an adolescent's participation in gambling potentially leads to gambling-related problems as an adult. This is supported by  a  number  of  studies, including the Queensland Household Gambling Survey (Queensland Government, 2001),  where the vast majority of adult problem gamblers  have admitted to commencing gambling in their teens, and some as early as 9 or 10 years old (Gupta & Derevensky 1998).

Young people considered at  risk  of becoming problem gamblers are often those where there is problem gambling within the family and who demonstrate other  'at  risk'  behaviours. Hardoon  and  Derevensky  (2001) identify several studies that claim the age when children begin gambling is often at  the  same  time  if  not  before  the  initiation  into  other  illicit behaviours,  such as smoking and drug use. For example, Ladouceur, Dube and Bujold (1994)  found  that 86% of a survey group of 4th, 5th and 6th grade Canadian  primary  school children claimed to have experienced placing bets of monetary value with 40% stating they gambled at least once a week.

Educating young people about responsible gambling is therefore perceived as a proactive measure to ensure that they are informed of the risks involved and aware of the significant effects that gambling can have on the social, economic and general wellbeing of individuals, families and society.

To address the issues of problem gambling among young people, researchers have drawn on theories and practices developed in other risk-related fields and applied them to education. Ladouceur, Dube and Bujold (1994) stress that  as  gambling  behaviours  appear  to  be  commencing  at  a young age prevention  programs  should  be  implemented in school environments. These programs might also deal with drug and alcohol abuse and provide proactive strategies in the areas of communication and stress management so young people develop skills that can assist them throughout their lives.

Drug and alcohol programs have developed protective factors that aim to "prevent or limit risk  factors  (those variables associated with a high probability of onset, greater severity, and longer duration of major mental health  problems)  and increase protective factors (conditions that improve an  individual's  resistance  to  risk  factors  and  disorders)" (Dickson, Derevensky & Gupta, 2002, p.103). Rutter (1990) outlines four categories of protective factors:

• Reduce impact or young person's exposure to risk
• Reduce negative reactions following bad experiences
• Promote self-esteem and self-efficacy through achievement
• Promote positive relationships and new directions and opportunities

A recent theoretical focus has also been on developing resilience among young people.  As defined by Howard and Johnson (1999) resilience consists of "the inherent and nurtured capacity to deal with life's stresses in ways that enable them to lead healthy and fulfilled lives" (p.3). According to Shene (1999), children who are resilient often demonstrate the following behaviours:

• Social competence
• Problem solving skills
• Critical consciousness
• Autonomy

However, Dickson et al. (2002) stress that resilience can be strong in certain areas and not in others. Their example is that "a child may grow up with an alcoholic parent and be academically and socially competent but struggle with depression."  (p.101). Likewise, a child's immediate or long-term reaction to a parent's problem gambling behaviours may not always manifest itself in an obvious way.

In order to focus on how resiliency can be incorporated into the school environment the following principles have been recommended (Drug Strategy, 2001):

• Equity, risk-taking and learning are valued, promoted and discussed.
• The school recognises the importance and power of its culture and ethos and communicates its agreed mission and vision.
• The school sets clear and consistent boundaries which stakeholders have agreed upon.
• The school puts efforts into learners developing skills for life including social and emotional skills.
• Learners have a strong sense of belonging.
• High expectations are set and communicated.

THE QUEENSLAND CONTEXT: POLICY, PARTNERSHIPS & PRAGMATISM Taking into consideration the factors mentioned above, the Department of Families and Queensland Treasury developed the first set of responsible gambling curriculum materials in partnership with the (former) Queensland School Curriculum Council. This association enabled the responsible gambling modules to be published with a number of other curriculum modules that were being produced by the Council in the areas of Health and Physical Education (lower and lower-middle secondary) and Studies of Society and the Environment (middle-upper primary). Informal contact between the former Queensland School Curriculum Council (now Queensland Studies Authority) and the Department of Families, through the Responsible Gambling Advisory Committee Secretariat, was initiated to develop the first responsible gambling curriculum materials. At that time, the Secretariat was based in the Department of Families and the Queensland School Curriculum Council was the statutory authority responsible for the development of Years 1-10 syllabuses across key learning areas. There was recognition from all parties that, in the long term, prevention and early intervention strategies are essential to effectively address gambling related problems. Tunstall (1999) described the partnership between the Queensland School Curriculum Council and the Department of Families in the following way:

The Health and Physical Education modules focused on promoting the health of individuals and communities, and enhancing personal development; particularly dealing with conflict and communication issues. The modules were written by a seconded teacher to the Secretariat with further support from officers, who were internally assigned to assist in the development of the modules, from the Office of the Queensland School Curriculum Council. The Department of Families, through the Secretariat, agreed to fund the development of the modules, however, it was further negotiated that the modules would become part of the suite of materials supporting the key learning area syllabuses and bear the branding of the statutory authority. In this way, it was projected teachers would recognise the modules as part of the state-wide resources provided to schools across the three schooling systems in Queensland. This pragmatic strategy was used to guard against the possibility of the materials being viewed as 'stand alone' resources, as 'extra-curricular' activities, or as teachers would say, "another excellent resource gathering dust on the shelf'. A template was provided by the Queensland School Curriculum Council, which directed the structure of the responsible gambling curriculum modules. While this had advantages with the format of the responsible gambling curriculum modules resembling all others in the suite of materials, it also provided challenges with the limitations it imposed. Consequently, the need for further responsible gambling supporting information and opportunities for interactive student activities resulted in a pragmatic response, the development of the School Stuff website which was located on the host website (http://www.responsiblegambling.qld.gov.au). The School Stuff website went online to coincide with the state-wide release of the full suite of Health and Physical Education sourcebook modules in 2001. The Gambling Policy Directorate, incorporating the Secretariat, had moved to Queensland Treasury from the Department of Families by this time. A third module for middle primary school students (middle to upper primary school), to support the achievement of outcomes from the Studies of Society and Environment syllabus commenced. Once again a teacher was seconded for its development, but difficulties occurred with the advancement of the project. Eventually, a full-time permanent position was secured within Queensland Treasury for the development of prevention and early intervention gambling-related strategies for young people, including further development of responsible gambling curriculum materials. It is significant that this Queensland Treasury position was dedicated to education, as it is located outside the designated education bodies. Following the appointment, the Studies of Society and Environment module was completed under a consultancy agreement with a classroom teacher, who trialled the material in development with the students in her class. The module and enhanced School Stuff website were once again released at the same time as the state-wide suite of Studies and Environment sourcebook modules in 2002. Queensland Government overarching documents that supported the development of these responsible gambling education policy initiatives include the Policy Direction for Gambling in Queensland (April 2000) and the Queensland Responsible Gambling Strategy (February 2002). During the development of the responsible gambling curriculum materials, and given that responsible gambling curriculum could be considered controversial in some communities, it was recognised by policy officers that consultation with key groups was critical, particularly consulting early and throughout the process as outlined in the Queensland Government's principles for effective consultation (Office of Cabinet, Qld,1993). Beyond consultation with education groups, such as the three state-wide education employing authorities, Queensland teachers unions and parent associations; it is significant that the members of the Responsible Gambling Advisory Committee provided ongoing advice during the development of the materials, as they provided advice beyond that of the education stakeholders. The Responsible Gambling Advisory Committee provides advice to the Queensland Government on minimising the negative impacts of gambling and fully supports early intervention and prevention education strategies for young people in this regard. Advice provided by gambling industry and community sector peak organisations included specific information about gambling contexts and the effects of problem gambling. The Advisory Committee promotes the development of ongoing partnerships between the industry, community and government sectors, as well as providing a forum for the exchange of information and views relating to responsible gambling. Bridgman and Davis (2000) locate advisory committee's of this nature as a 'partnership' on a consultation continuum and further recognise that over time advisory committees can become 'policy communities'. The policy communities' concept, originating from the advocacy coalition framework (Sabatier and Jenkins-Smith, 1993) promotes a model different to the eight stage heuristic which sequences the policy development cycle (identification of issues, policy analysis, selection of policy instruments, consultation, coordination, decision-making, implementation, then evaluation). With the partnership model, views from the industry sectors and community sectors are not relegated just to the consultation phase in policy development. The advantages of the partnership or 'policy community' concept, particularly regarding support for early intervention and prevention education strategies for young people include:

• provision of an exchange of views to explain approaches and objectives
• opportunities to understand each others interests and concerns and match policy to needs
• opportunities for policy makers to benefit from improved information and develop accord on central points.

Members of the Advisory Committee and the officers from the Queensland School Curriculum Council collaborated with officers in Queensland Treasury in this way, to develop the responsible gambling curriculum materials. Costs to this approach included a slowing down of the decision-making process and substantial resourcing required to conduct the processes. Three curriculum modules and three School Stuff interactive website suites of activities were produced in 4 years. With the involvement of the large number of interests and informing them about all the issues involved; plus building in opportunities for responding to initiatives, officers endeavoured to keep processes highly structured and time specific. Flexibility was also required in dealing with the issues that were raised, both in negotiating changes requested from the education authority and managing input from members of the Advisory Committee. A range of benefits emerged from the partnership approach, however. The most important of these was the resulting high level of sponsorship from the gambling industry, community and government sectors in carrying forward curriculum initiatives specifically designed to address gambling-related problems and hence support students in achieving positive social behaviours.

While the curriculum format and content was obviously very significant and integral to the overall approach, the process of introducing responsible gambling to schools is substantially more than just developing the curriculum and ensuring schools have access to resources.

A professional development scheme took place once all three modules had been released. Schools in four separate Queensland regions were invited to explore the issues associated with gambling in relation to young people. The locations were selected according to geographical distance - Southern Queensland, Central Coast Queensland, Northern Queensland and Central Queensland. Within these areas schools were contacted through fax and email flyers and phone calls. Schools were asked to:

• attend the initial one day seminar at the end of Term 3 (September)
• explore the issues and the curriculum modules
• implement the relevant module during the first four weeks of Term 4 (October)
• Write a 2 page report on the process, and
• Present findings at a final presentation dinner to the other participants in each location.

They were offered Teacher Relief payments for their involvement however the overall response by teachers and principals was hesitant. For some it was the time of the school year or that curriculum planning had been prepared a year in advance and could not be modified to include the module. For others it was the time and commitment factor required. For many, gambling did not appear relevant nor was it perceived as an issue to be taken beyond exploring chance and data in mathematics or touching on it briefly in life skills sessions.

However, fifteen schools, that met in Townsville, Bundaberg and Brisbane and that came from rural, urban and remote locations, participated and provided a wealth of feedback. They all commented on their awakening awareness regarding gambling in society and the impacts on young people. In order to maximise a potential whole school approach educators and school administrators (principal or deputy) were asked to participate in the project. This provided additional support for the teacher implementing the module and also allowed for building greater school community awareness.

The initial seminar, held in each location, sought to provide an overview of gambling issues and engage participants in an inquiry-based approach. The structure of the seminar was mapped on the inquiry the model from the modules so that firstly, participants might appreciate more fully each of the learning phases and secondly, as the pedagogical approach endeavours to do, the process sought to enable participants to more effectively engage with the issues. The model used in the modules, TELSTAR, is presented below in relation to the initial seminar for educators:

• Tuning in

Breaking down the barriers, understanding contexts for addictions, contextualising and localising experiences.

Understanding definitions of gambling, reviewing the media articles from a critical literacy and an emotive perspective as a community citizen and as an educator. Playing a game to examine risks and losses and emotions when gambling.

• Looking and Sorting

Video of reformed problem gambler and community input from Gambling Help and discussion.

• Testing

Gambolians arrive to earth (activity - primary school unit) - teams brainstorm positive, negative and interesting effects of gambling and report back on whether they would allow gambling on their 'planet' and with regulations (if any).

• Acting

Exploring the curriculum with others participating from primary and secondary schools to plan and scope own form of implementation based on the modules.

• Reflecting

Evaluations of what they had learned and what they felt they would be able to take back to their school environments.

The spin off effect was quite significant in that parents became very aware of their children's studies, with few complaints, and in two instances in Townsville the local media reported on the gambling curriculum and visited schools participating. University pre-service teachers were also involved and were able to report back to their peers through a formal presentation about the module.

During the implementation a critical friend assigned to the project kept regular contact with the teachers to provide additional support where necessary. Participants then regrouped in the different locations and presentations of their work were made.

While technical issues were apparent in some areas including time to implement within the constraints of the project timeline and accessing the website, it is clear that exploring responsible gambling with this group of participants in their school environments made an impact. Their feedback covered a range of issues with a particular emphasis on the effectiveness of the structure of the modules and the overall learning gained by teachers and students:

The core learning outcomes were relevant to the assessment tasks and provided opportunities for students to achieve their own ability level. Core content from the syllabus related to the dimensions of health, risk management and interpersonal skills were all explored to some degree throughout the module ....Activities, strategies and frameworks from this module can be adapted to other modules of work.

Student views were also presented by the teachers through video and displays of their work. While they tended to initially take extreme views to gambling - it was either good or bad, by the end of the unit many students had apparently found a middle road. Although interestingly students in primary were far more open to negotiating this pathway and the teenagers (aged 13-15) were more likely to maintain a strong black and white view of gambling issues.

As had been advocated from the outset, aspects of the module were adjusted, adapted or critiqued by educators as they implemented according to the needs of their students. However, overall, their feedback suggested there was a need for these issues to be discussed and the modules provided an effective means for doing so. Participants believed students' knowledge increased and there was a general enthusiasm to learn and seriousness in manner when exploring the issues and consequences.

From the perspectives of former teachers and now policy officers the experience of developing and implementing the modules with teachers and school administrators has involved acknowledging roles in different spaces. While we were once teachers, and still perceive ourselves as educators, we are differenced and conceptualised within the hierarchy of government. Therefore to encourage and motivate teachers and school administrators to take on the social issues associated with gambling has been interesting. Furthermore acknowledging and making visible the policies and practices that exist in all environments and hearing the views of children and young people and their teachers and administrators has informed future directions for redefining approaches towards responsible gambling education strategies.

Gambling is an activity that has saturated the everyday and has impacted on the realities of children and young people. The question remains as to how we might ensure education strategies are effective and assist in reducing the prevalence of problem gambling among young people as they enter adulthood. It is clear that such strategies need to be developmentally appropriate to young people and should be founded on relevant and reliable research. Moreover, as with other problem behaviours engaging with young people to discuss and explore these issues needs to be approached carefully and with cultural sensitivity and with an awareness of community needs. Inciting teachers to be involved when curriculum demands are overflowing is not an easy task. However if gambling is to be addressed as a social issue rather than simply when exploring Year 7 chance and data in mathematics, then like drugs and alcohol, responsible gambling it needs to be integrated through discussions and curriculum relating to resilience building and responsible risk taking.

From our experience in developing the responsible gambling modules and follow-up evaluation of implementation, we advise that the following factors to be taken into account when introducing social issues, such as gambling, into schools:

• the level and type of promotion so that educators recognise the need to know more about the subject and develop a desire to implement.
• professional development schemes that engage teachers at a deep level of learning, involve active-inquiry, and provide a number of incentives for teacher participation.
• finding a way to involve educators in understanding critical social theory as a means for investigating and developing pedagogies that acknowledge the developmental stages of the learners and differing understandings and interpretations of the issues at both classroom teaching and learning level and in the broader society.

Queensland Treasury is continuing to develop responsible gambling curriculum materials at primary, secondary and tertiary levels, and feedback from the recent professional development scheme is informing the development of responsible gambling education guidelines.

Further information can be obtained at: www.responsiblegambling.qld.gov.au

Bridgman, P, and Davis, G. (2000). The Australian policy handbook. (2^nd ed.) Crows Nest

NSW: Allen and Unwin.

Davis, G. (1996). Consultation, public participation, and the integration of multiple interests

into policy making. Report prepared for the Organisation for Economic Cooperation

and Development, Paris.

Dickson, L., Derevensky, J., & Gupta, R. (2002). The prevention of gambling problems in  youth:  A  conceptual  framework. Journal of Gambling Studies,18(2), pp.97-159.

Drug Strategy (2001) Drug Strategy Newsletter Issue 3 March 2001[on-line]

Available: www.drugstrategy.central.sa.edu.au/newsletters/newsletter_03a.html

Govoni,  R.,  Rupcich,  N.  &  Frisch,  G.R.  (1996). Gambling behaviour of adolescent

gamblers. Journal of Gambling Studies, 12(3), pp. 305-318.

Gupta,  R,   &  Derevensky,  J.  (1998). Adolescent gambling behaviour: A prevalence study

Hardoon,   K.,   Derevensky, J.  (2001). Social  influences  involved  in children's   gambling

behaviour.   Journal of  Gambling  Studies  17(3), pp.191-214.

Howard,  S  &  Johnson,  B.  (1999)  Resilience, definitional issues. Paper presented at the Australian Association of Research in Education Annual Conference, Melbourne,

December.

Jacobs, D. (2000). Juvenile gambling in North America: An analysis of long term trends and

future. Journal of Gambling Studies 16(2/3) pp.119-152.

Ladouceur,  R.,  Dube,  D, Bujold, A. (1994). Gambling among primary school students,

Journal of Gambling Studies, 10(4), pp.363-370.

Moore, S  & Ohtsuka, K (2001). Youth Gambling in Melbourne's West: Changes

between 1996  and  1998 for Anglo-European background and Asian background

school-based youth. International Gambling Studies, 1, pp.87-101.

Moore,  S  &  Ohtsuka,  K (1997). Gambling activities of young Australians: Developing 

a model  of  behaviour  Journal of Gambling Studies, 13(3) pp. 207-236.

Queensland Office of the Cabinet. (1993). Consultation: A resource document for the

Queensland public sector. Brisbane: Queensland Government.

Queensland Treasury. (2000). Policy Direction for Gambling in Queensland. Brisbane:

Queensland Government.

Queensland Treasury. (2002). The Queensland Responsible Gambling Strategy. Brisbane:

Queensland Government.

Relationships Australia Queensland/Break-Even  (2001).  Response  to  the November 2001

Responsible Gambling Advisory  Committee  (2001).  Queensland Responsible Gambling

Code of Practice: Trial and Review. Queensland Government.

Rutter,  M. (1990).  Psychosocial resilience and protective mechanisms. In, J. 

Sabatier, P. A. and Jenkins-Smith, H.C. (1993) Policy change and learning: An advocacy

coalition approach. Boulder, Colorado: Westview Press.

Shene, D. (1999). Resilience: A vision of hope. AADAC, Developments, 18(7). Available:

http://corp.aadac.com/programsservices/developments/vol18_issue7.asp

Tunstall, J. (1999). Developing strategic alliances. Keynote address to the National Association for Gambling Studies 9^th National Conference. Kew, Australia: National

Association for Gambling Studies.

Victorian Government Report (1999). The Impacts of Gambling on Adolescents and

Volberg, R  &  Lamar  Moore, W (1999). Gambling and problem gambling among

Adolescents in  Washington State: A Replication Study, 1993 to 1999 Report to the

Washington State Lottery.

We wish to acknowledge and thank Nicola Honeyfield for her contribution to the literature review and Joy Schultz as critical friend in the professional development and module evaluation project.