Part 4: Supporting tamariki and rangatahi to express their views and speak up when something is wrong

Requirements for keeping tamarikiClosetamariki
Children (plural) aged 0-13 yearsView the full glossary and rangatahiCloserangatahi
Young person aged 14 – 21 years of ageView the full glossary in care safe feature across the NCS RegulationsCloseNCS Regulations
(National Care Standards and Related Matters) Regulations 2018 View the full glossary and include in a statement of rights in Schedule 2 that “You and your support worker will also work together to understand what will help you … feel safe.”

In a recent Oranga Tamariki survey, tamariki and rangatahi were asked about their experiences in care. In response to ‘Do you feel safe where you live now?’, almost all responded ‘Yes, definitely’ (80 percent) or ‘Yes, I think so’ (16 percent).¹²⁰

Most tamariki and rangatahi in care who we heard from in our 2024/25 regional engagements say they feel safe. Additionally, most tamariki and rangatahi in care do not have findings of abuse or neglect.

Nevertheless, 530 tamariki and rangatahi had one or more findings of abuse or neglect while in care. That is around one in 10 tamariki or rangatahi in care.¹²¹

Oranga Tamariki needs to increase its compliance with the NCS Regulations. In doing so, it would deliver a higher standard of care that is likely to reduce harm for tamariki and rangatahi in its care.

For the sixth year in a row, reported abuse and neglect of tamariki and rangatahi in care has increased

A key finding in our 2023/24 Experiences of Care in AotearoaCloseAotearoa
New ZealandView the full glossary report was that more tamariki and rangatahi were found to have been abused in care. In 2024/25, both the number of tamariki and rangatahi abused or neglected and the number of findings of abuse and neglect rose again.

This increase is against a backdrop of an overall reduction of tamariki and rangatahi in care. This may indicate that tamariki and rangatahi in care are more likely to have been abused during this period than any other time in the past five years. It may also indicate that the reporting of abuse has increased to better reflect actual rates of abuse. Oranga Tamariki has reported that “[m]ore consistent formal reporting and identification of harm in care has contributed to an increase in findings”.¹²² Levels of unreported abuse are unknown. Therefore, we cannot be sure that more consistent reporting is the cause of the increase in findings of abuse.

There were 896 findings of abuse or neglect of 530 tamariki and rangatahi in care in 2024/25. This is 10 percent of all tamariki and rangatahi in care.

Oranga Tamariki has four categories of abuse: emotional, physical, sexual and neglect. Oranga Tamariki data shows that the most commonly experienced abuse is physical abuse, followed by emotional abuse, sexual abuse and neglect. This pattern has remained largely consistent since reporting on the NCS Regulations began. However, this year, there were fewer findings of physical abuse than last year (9 percent lower), while findings of emotional abuse, sexual abuse and neglect all increased relative to last year.¹²³

Some tamariki and rangatahi are more likely to be abused or neglected while in care

The over-representation of tamariki and rangatahi Māori in care is also reflected in the numbers being abused. While tamariki and rangatahi Māori make up 69 percent of the care population, they make up 73 percent of those who were found to have been abused in care in 2024/25. This is 386 tamariki and rangatahi Māori who had a finding of abuse or neglect.¹²⁴ This over-representation in the rates of abuse, may be due, in part, from the over-representation of Māori rangatahi in youth justice residences.

Disabled tamariki and rangatahi are also at a higher risk of abuse while in care. Oranga Tamariki estimates that tamariki and rangatahi with diagnosed disabilities made up 30 percent of the care population¹²⁵ and that almost half of the tamariki and rangatahi in care who were abused or neglected are disabled.¹²⁶ The number of disabled tamariki and rangatahi in care who had a finding of abuse increased from 216 to 245 this reporting year – 56 percent of tamariki and rangatahi in residences who had findings of abuse or neglect are disabled.

More than half of all tamariki and rangatahi in care who were abused identified as male. Tamariki and rangatahi who identify as another gender are abused at a higher rate than those who identify as female or male.¹²⁷ While less than 1 percent of the care population identifies as another gender, 16 percent of these tamariki and rangatahi are abused while in care.

Almost half of all tamariki and rangatahi in care who were abused or neglected were aged over 14. The proportion of abuse experienced by rangatahi in the older age group has slowly increased each year since our reporting on the NCS Regulations began. This may be due to the increasing age of tamariki and rangatahi in care overall.¹²⁸ It may also reflect that the highest-risk placement types, residences and group homes focus on providing care for that older age range of rangatahi.

The Oranga Tamariki 2024/25 Safety of Children in Care report ¹²⁹ provides further information about the tamariki and rangatahi who are being abused and neglected.

Half of abuse and neglect in non-family placements occurs in group homes

The number of tamariki and rangatahi found to have been abused or neglected in non-family placements and the number of findings of abuse have continued to increase over the past three years.

Group homes are included in non-family placements, and just over half (51 percent) of the findings of abuse or neglect in non-family placements this year were in group homes. This is a decrease from 63 percent last year.

In its 2024/25 Safety of Children in Care report, Oranga Tamariki states that it needs to “continue to understand the risks that exist in the group home setting to improve safety and oranga for this placement cohort”.¹³⁰ It reports that, as part of a focus on group homes, it is mapping homes, improving access to devices for reporting and escalation and strengthening workforce capability.

In comparison, the number of tamariki and rangatahi found to have been abused or neglected in family placements and the number of findings are largely unchanged since last year.

There continue to be disproportionally high rates of abuse in residences, although findings of physical abuse have reduced

There are two types of residences for tamariki and rangatahi in care: care and protection, and youth justice. They are described in the Care settings section at the start of this report. In 2024/25, less than 10 percent of tamariki and rangatahi in care spent time in residences.

Again this year, findings of abuse or neglect for tamariki and rangatahi are disproportionally high in residences. Tamariki and rangatahi in residences account for 22 percent of all abuse experienced in care. This is compared to 10 percent of harm experienced by tamariki and rangatahi in care overall.

This is not new. A key finding in our 2023/24 Experiences of Care in Aotearoa report was that more tamariki and rangatahi are being abused in care and that there are disproportionately high levels of abuse and neglect in residences.

In 2024/25, Oranga Tamariki data shows that, while the overall number of tamariki and rangatahi in residences who were abused is largely similar to last year, the number of findings of abuse decreased by 14 percent.

The number of tamariki and rangatahi found to have been abused in residences is similar to last year

The number of findings of abuse in residences has reduced since last year

Tamariki and rangatahi who return home or remain home are also at an increased risk of abuse. This is covered in Part 5 of this report.

Tamariki and rangatahi in residences or return or remain home placements are more likely to experience abuse and neglect

Oranga Tamariki reports ¹³² that:

• 90 percent of abuse in residences is physical, with most caused by other tamariki or rangatahi in the residences and 12 percent caused by residence kaimahi
• the number of physical abuse findings in residences has decreased, although the number of tamariki and rangatahi found to have been abused has remained about the same
• findings of abuse alleged to have been caused by staff in residences has decreased
• physical abuse by staff usually occurs in the context of staff using excessive force when responding to verbal or physical behaviour of rangatahi
• the number of findings of abuse caused by staff in residences has fluctuated over the past five years.

Tamariki and rangatahi in residences continue to tell us about abuse

When we engage with tamariki and rangatahi in care, we do not ask them directly about their experiences of abuse or neglect. Nonetheless, some tamariki and rangatahi disclose this information to us. When tamariki and rangatahi disclose specific information to us, we follow our Child Protection Policy and make reports of concern to Oranga Tamariki. In this reporting year, we made four reports of concern to Oranga Tamariki, the same number as last year.

In our 2024/25 regional engagements, we visited four of the five youth justice residences. We found that the underlying culture, including poorly trained staff and unstructured programmes, contributes to an environment where abuse occurs.

Most of the abuse we heard about in our regional engagements happened in youth justice residences.

We heard from one rangatahi about a serious incident when they were hospitalised by the injuries they received from another rangatahi in a youth justice residence. The injuries this rangatahi sustained will impact them for life.

The following quotes are from rangatahi who were in, or who had spent time in, youth justice residences in this reporting year. For clarity, these quotes are from separate engagements and different rangatahi. The quotes relate to individual experiences in the youth justice residences we visited in the 2024/25 reporting year.

“I’m not really safe in here. Just the staff are a bit odd, [they] all want us to fight, instigating fights [between rangatahi], [give us the] ‘green light’. Make the boys fight whoever they don’t like [for contraband].” RANGATAHI

“Some [boys] gets bullied, and some don’t …They don’t [talk to someone about it]. Because they know that they are going to get a hiding. [Their bullies being] snitched on makes things worser for them.” RANGATAHI

“During restraints, [residence staff] would give you a whack, they would restrain you and do the thing that police would do. If someone gets cheeky with the staff – while they are moving [you] to secure.” RANGATAHI

Oranga Tamariki still has some way to go to keep tamariki and rangatahi in residences safe

As we reported last year, multiple recent reports, including from Oranga Tamariki itself, highlight the safety issues in residences. This is especially in youth justice residences. ManaCloseMana
Prestige, authority, control, power, influence, status, spiritual power, charismaView the full glossary Mokopuna | Children’s Commissioner, in its monitoring, has also identified serious safety issues in some residences.¹³³

Unlike other care settings, while tamariki and rangatahi are in residences, Oranga Tamariki is directly responsible for their day-to-day safety, care and protection. This is an opportunity to keep these tamariki and rangatahi safe. However, considering the rates of abuse and from what we heard from tamariki, rangatahi and kaimahi throughout the reporting period, there is some way to go.

After we visited four of the five youth justice residences, we informed Oranga Tamariki that we had heard from rangatahi, kaimahi and whānau that secure care is being misused and having a negative impact on rangatahi wellbeing. This is an area for Oranga Tamariki to look into further.

“It’s pretty horrible [in secure]. I’ve been put in there for my safety, as I’m a self-harmer. That doesn’t help when you have no one to talk to and no windows.” RANGATAHI

“Nothing [would make secure better]. It’s just horrible. I don’t think there’s anything that could fix it. We’ve put grievances in and nothing ever changes.” RANGATAHI

"[For] safety, it’s for kids who are afraid to go into the open unit, it’s for a short time.” ORANGA TAMARIKI KAIMAHI

“The only other place they send her is to secure to keep her safe.” WHĀNAUCloseWHĀNAU
Whānau refers to people who are biologically linked or share whakapapa. For the Monitor’s monitoring purposes, whānau includes parents, whānau members living with tamariki at the point they have come into care View the full glossary

In its response to our 2023/24 Experiences of Care in Aotearoa report, Oranga Tamariki told us that it was making residences safer through:

• individualised and targeted action plans for each facility with a focus on reducing harm and improving the environments
• focusing on improving practice for frontline kaimahi through skills training and professional development
• enhancing its legislation as part of the Reducing Youth Offending Programme of work
• completing the roster pilot at Te Puna Wai residence, which is piloting a new, fit-forpurpose roster
• lifting capability through targeted recruitment of frontline staff
• enhancing leadership and culture in residences with a focus on personal accountability
• developing quality assurance of improvement safety and practice at residences.

Additionally, Oranga Tamariki has a focus on reducing peer-to-peer fighting in residences.

We will continue to follow up this work and look for evidence of its impacts in our regional engagements. We expect to see it reflected in the four-monthly progress update from Oranga Tamariki in June 2026. We will also work with Mana Mokopuna | Children’s Commissioner to follow up these changes in its future visits to residences.

Return or remain home placements are another area where abuse and neglect of tamariki and rangatahi needs focus from Oranga Tamariki. This is covered in Part 5 of this report.

Oranga Tamariki does not consistently comply with the NCS Regulations in its response to allegations of abuse and neglect

Regulation 69 requires Oranga Tamariki (and other custodial agencies) to respond to allegations of abuse and neglect. Allegations can be raised by anyone, including the tamariki and rangatahi themselves. Allegations of abuse and neglect for tamariki and rangatahi in care are recorded as a report of concern.

Oranga Tamariki assesses its practice in responding to allegations of abuse or neglect in care with 12 practice measures that cover:

• the promptness of the response 
• the correctness of information recording
• informing tamariki or rangatahi of the outcome of the response
• actions taken with parties to the allegation, including reviewing the caregiver plan.¹³⁴

Oranga Tamariki is reviewing more caregiver plans after findings of abuse and neglect

The improvement in compliance with requirements for tamariki and rangatahi plans to be reviewed and supports to be put in place is positive. Oranga Tamariki also continued to perform consistently well in relation to recording findings and reviewing tamariki and rangatahi plans. Similar to last year, 90 percent of findings are recorded correctly and 91 percent of tamariki and rangatahi plans are reviewed.

Timeliness of some aspects continued to decline from last year

Only one-third of tamariki are informed of the outcome of an allegation of abuse or neglect

In our 2023/24 Experiences of Care in Aotearoa report, we pointed out that tamariki and rangatahi were being informed of the outcome of investigations at a lower rate than what was already a low base. The rate has decreased further again for this reporting period. It is essential that, when tamariki and rangatahi speak up, they know what actions are taken as a result.

As highlighted in our 2023/24 Experiences of Care in Aotearoa report, not being informed can result in loss of trust in those who are there to protect them and make tamariki and rangatahi reluctant to raise safety concerns in the future.

Most tamariki, rangatahi and whānau now know how to make a complaint or raise a grievance

A key finding in our 2022/23 Experiences of Care in Aotearoa report was that tamariki and rangatahi do not always know their rights or how to make a complaint. Oranga Tamariki responded to this finding with actions aimed at “improving the ease of making complaints and/or allegations of harm”.¹³⁵ In August 2024, the Minister for Children also identified “Strengthening complaint management and responsiveness” as one of the four key priorities for Oranga Tamariki.

In its response to our 2023/24 Experiences of Care in Aotearoa report, Oranga Tamariki told us that, over the past few years, steps have been taken to improve awareness of how to make a complaint.

Positively, in this reporting period, most tamariki, rangatahi, parents, whānau and caregivers we heard from said they understood the process for making a complaint or raising a grievance. Most of the tamariki and rangatahi who spoke about complaints and grievances said that they know, or were told, that they have the right to complain or that they know how to make a complaint.

This is an improvement from what we have heard in previous years. Complaints management remains a focus for Oranga Tamariki. We will continue to monitor this area and will report next year on what we find in our 2025/26 regional engagements in Waikato, Lower South and Hawke’s Bay, East Coast and Wairarapa.

The number of complaints and grievances continues to increase every year

Oranga Tamariki has two distinct processes depending on where tamariki and rangatahi in care are placed:¹³⁶

• Complaints process: There is a formal complaints process related to tamariki and rangatahi in care in the community, with whānau caregivers and non-whānau caregivers and in group homes.
• Grievance process: There is a grievance procedure, required by the Oranga Tamariki (Residential Care) Regulations 1996,¹³⁷ related to tamariki and rangatahi in residences.

Effective processes for making complaints and raising grievances are important in all care settings to keep everyone safe, especially tamariki and rangatahi.

When the number of complaints and grievances increases, it may not mean conditions have worsened. It can be a sign that a process is being used more because it is better understood, has changed or has become more effective. It may also be a sign that exercising the basic right to complain is being encouraged. However, increased complaints can also signal that something is not working as well as it should and that safety concerns and risks for tamariki and rangatahi are increasing.

Regular and close monitoring by Oranga Tamariki and agencies in oversight roles such as ourselves, Mana Mokopuna | Children’s Commissioner and the Ombudsman provides important context for data and information about the number and types of complaints and grievances and for changes to them.

We heard from tamariki and rangatahi who had made complaints that their social workers can make a difference. Some felt supported by their social worker with a “sense of safety”. Some felt unsupported and unheard and sought advice from others such as VOYCE – Whakarongo Mai (VOYCE).

When tamariki talked to us about making a complaint or raising a grievance, they told us it took too long to resolve. We also heard about the support some rangatahi received to make a complaint.

“I do [know my rights], cos of the people around me, they surround me, and they help me.” RANGATAHI

“One of the boys complained about his social worker but he didn’t want to do the complaint in case he got in trouble. We sat down and unpacked it and wrote it down – I said let’s get it sorted. We had a liaison social worker, and she was really interactive. She would ask how the boys are, and I can say, ‘Oh he’s not happy with the social worker’, and she could take it and sort it out. It made it easier for the kids.” IWICloseIWI
TribeView the full glossary SOCIAL SERVICE PROVIDER KAIMAHI

“Depending on the nature of the complaint, we share what process they might need, we never really do anything for [them] but walk beside. Involve them as much as we can, depending on [the rangatahi] development stage, so it’s their voice. There are circumstances where they might be much younger or have disabilities. The important part is that they are informed.” VOYCE KAIMAHI

Complaints continue to increase

The number of complaints to Oranga Tamariki has steadily increased over the past three years, rising by 8 percent this year.

More than 1,300 complaints were received by Oranga Tamariki in 2024/25

When Oranga Tamariki receives a complaint, it records the number of issues within the complaint. This remained steady across the two reporting periods at an average of 1.8 issues per complaint. In line with the increase in complaints, the overall number of issues raised also increased by 7 percent, with 2,465 issues raised in this reporting period.

Over 80 percent of complaints are made by whānau members

Whānau members include parents, grandparents, other whānau members and whānau caregivers. This group makes the majority of complaints, with parents making more than half.

In our 2024/25 regional engagements, we heard from parents and whānau members who had made complaints about a lack of communication from Oranga Tamariki. They said they were not informed that their complaint had been received or about the steps being taken to investigate and resolve their complaint. Most of the whānau members we heard from had made complaints that involved an issue with a social worker.

The majority of complaints received by Oranga Tamariki include issues of fair treatment, where treatment is seen as unfair or unjust. Communication is the next most prevalent issue, with almost 50 percent of complaints including communication issues. This is where there is poor or unclear communication and people are not kept informed or involved. The rates of types of complaints to Oranga Tamariki were similar to last year.

Complaints made to Oranga Tamariki grouped by who made the complaint

Tamariki and rangatahi in care continue to make few complaints

In this reporting year, 1 percent of recorded complaints to Oranga Tamariki were made by tamariki and rangatahi themselves. We heard mixed views about the reason for the low rate.

“[I] just talk to [practice leader] about [my concerns] … she does everything she can for us.” CHILD

“I’m not too sure [if rangatahi knew about the right to make a complaint] because mum went in with rangatahi, and they were told that, if you want to carry on with the complaint [about use of force by police], you would need to go to Youth Court for that, but if you do this [alternative initiative], you can wipe the offence off your record.” WHĀNAU

“They [tamariki and rangatahi] go to their social worker usually [to make a complaint], and if it’s serious, we talk to our team leads about it. They know how to complain if they want to.” ORANGA TAMARIKI KAIMAHI

In this reporting year, 15 tamariki and rangatahi in care made complaints to Oranga Tamariki, up from nine last year. In our 2023/24 Experiences of Care in Aotearoa report, we said this number seemed low, and we continue to consider it low.

Complaints can help identify areas where change is needed and inform what those changes are, provided they are recorded and addressed. The very low number of complaints recorded from tamariki and rangatahi is a lost opportunity for them to feed into an overall improvement process.

The complaints process in group homes is not always clear

The process for complaints across group homes and family homes is the least clear of the placement types. It was not always clear in family and group homes where responsibility lay for hearing or actioning complaints.

Most kaimahi from group homes and family homes we heard from said there were internal processes for managing complaints and that tamariki and rangatahi raise concerns and complaints with the group home leadership. Most kaimahi from group homes said they discuss the complaints process with tamariki and rangatahi. Some kaimahi in group homes said social workers or VOYCE are the “first port of call” for tamariki and rangatahi and that it is the responsibility of social workers to relay concerns to group home kaimahi.

More complaints were closed than last year but more than half took longer than 35 days

This reporting period, 86 percent (1,158 complaints) were closed by year’s end (30 June 2025) compared to 75 percent the previous year. This is alongside an increase in the number of complaints. Of the 187 complaints that were still open, almost 70 percent had been open longer than the 35-day timeframe set in Oranga Tamariki policy, with 20 percent open for more than 100 days.

There was no change from last year in the average time to close a complaint (around 50 working days), and more than half of complaints made to Oranga Tamariki were closed outside the 35-day timeframe.

The number of complaints to the Ombudsman is similar to last year

Tamariki and rangatahi in care or custody can complain directly to the Ombudsman. Those acting on their behalf, like parents or caregivers, can escalate complaints to the Ombudsman if they feel that the response from Oranga Tamariki (or another agency approved under section 396 of the Oranga Tamariki Act) has been unsatisfactory.

During this reporting period, 24 tamariki and rangatahi made a complaint to the Ombudsman. In 2021/22, there were 180 complaints about Oranga Tamariki made to the Ombudsman, which more than doubled to 404 in 2023/24. This year, there was a similar number to last year, with 407 complaints made about Oranga Tamariki to the Ombudsman. There were also five complaints about other care and custody agencies, the same number as last year.

The Ombudsman received 407 complaints about Oranga Tamariki

Tamariki and rangatahi in residences are raising an increasing number of grievances

This year, there was a slight increase in the number of grievances compared to last year. The number of grievances has risen year on year despite a decrease in the number of tamariki and rangatahi spending time in residences.¹⁴¹

Although numbers have increased for the past three reporting years, the number of grievances is still not as high as it was in 2021/22 at 484 grievances (compared to 402 in 2024/25).

Tamariki and rangatahi raised 402 grievances in 2024/25

In our 2024/25 regional engagements, we heard from some rangatahi in residences about why they don’t raise grievances.

“Most [rangatahi] don’t do that [raise a grievance]. Number one, no need to, and two, it’s a snitch form, and three, it’s a snitch form.” RANGATAHI

“No point [telling anyone]. The case leaders, the TLOs, they won’t do anything. For all we know, they could be telling [the other staff] to give us another knock.” RANGATAHI

We heard from rangatahi in residences who had raised grievances that the process takes too long, and kaimahi from residences and VOYCE backed this up.

“Grievance procedures: they are not getting investigated on time – that grievance is important for that [young person] … it might feel small for us … but that process for them it’s huge.” ORANGA TAMARIKI KAIMAHI

“The Grievance Panel is delayed by six weeks on average. There is a young person who put in a grievance last November. She said she was going to assault a staff member if it didn’t get heard, which it didn’t. Then she assaulted the staff member.” VOYCE KAIMAHI

We heard that kaimahi in residences did not always protect the privacy and confidentiality of rangatahi raising a grievance, putting them in more danger from other rangatahi due to the “snitch culture”. One example given was of kaimahi radioing one another and openly saying the name of the rangatahi raising a grievance. In other examples, we heard that kaimahi informed rangatahi of what was said about them, leading to bullying and targeted rangatahi-torangatahi violence. We also heard from kaimahi that rangatahi are still scared to “talk up”.

“The environment [in this care and protection residence], we don’t have it, the psychological safety, people are scared to talk up. I see it through grievances. There isn’t the psychological safety, in my opinion, I don’t think people are feeling safe to speak up to say ‘I’m feeling [this way about what’s happening here]’ … People are gonna be scared they’ll be blamed for mistakes.” ORANGA TAMARIKI KAIMAHI

More grievances are coming from care and protection residences

There has been a large increase in the number of grievances from care and protection residences and a reduction from youth justice residences

The proportion of grievances received is now more evenly split between care and protection and youth justice residences

The overall increase in grievances in 2024/25 is due to a 67 percent increase in the number of grievances from care and protection residences. In contrast, the number of grievances from youth justice residences decreased 28 percent from the last reporting period.

Data from Oranga Tamariki shows that the number of grievances from care and protection residences is now higher than the number from youth justice residences. This is a marked change from past reporting periods, where we have reported higher numbers and proportions of grievances in youth justice residences compared to care and protection residences.

The number of tamariki and rangatahi who spend time in care and protection residences has stayed largely the same since last year and is much lower than those in youth justice residences.¹⁴⁴

The change at youth justice residences may be due to Rangatahi Youth Councils. All youth justice residences have Rangatahi Youth Councils, and in our 2024/25 regional engagements, we heard how they gave rangatahi a voice about their care.

“[We] ask about the grievances and the food [at Youth Council]. Residence management is part of it. [Residence manager] is always there … we all love [residence manager], she is cool as. [It does feel like] they don’t care when [we raise things and] it takes a long time to kick in.” RANGATAHI

We heard from kaimahi in two youth justice residences that Rangatahi Youth Councils provide an opportunity for rangatahi to raise concerns directly with leadership. One residence leader told us that the decrease in grievances at their residence was because of the Rangatahi Youth Council.

“I would say [rangatahi] can and they do [have the ability to voice their concerns]. The Youth Council is now back on board. This causes a dip [in grievance reports] as young people can raise things with the council. The other thing is they are vocal when urgent [issues are raised] and [rangatahi] use advocates as well, it’s pretty constant.” ORANGA TAMARIKI KAIMAHI

The majority of grievances from care and protection residences came from one residence

Of the three care and protection residences that Oranga Tamariki operates,¹⁴⁵ Epuni residence had the majority (71 percent) of grievances in this reporting year. Epuni is a bigger home than the others, and this may contribute to the higher numbers of grievances in this residence. More than half (59 percent) of the grievances for Epuni residence were considered justified by Oranga Tamariki.

In February 2025, we went to the Epuni residence as part of our regional engagements in Greater Wellington. Based on what we heard at the time, we raised concerns about the care of the tamariki and rangatahi at this residence.

“There’s not much good to say about this place. I definitely think kids like me and [rangatahi] shouldn’t be here. This is a mini [youth justice residence]. Putting kids with mental health in here is putting them down a different pathway. Staff are inconsistent. Secure is horrible.” RANGATAHI

“I feared for my safety when I first arrived. I got rushed [beaten up] by other young people in the Epuni residence. I wanted to change units, but it didn’t happen.” RANGATAHI

Epuni has had several managers over the last few years as well as several different leaders at the national level alongside a recent organisational restructure. This has impacted how well the residence functions. During our visit, the residence manager was in an acting position and has now been appointed permanently.

Oranga Tamariki also told us changes were being implemented, including reducing the number of tamariki and rangatahi in the residence for a period of time, to help the residence to address concerns and lift practice.

We recognise that establishing new initiatives and approaches takes time and also acknowledge the intent for change being driven by the residence manager at Epuni.

Kaimahi-related grievances are increasing in care and protection residences

Oranga Tamariki data shows there were varying rates of grievances from the other operational care and protection residences. The large increase of grievances at care and protection residences is due in part to an increase in kaimahi-related grievances since last year, which tripled since 2022/23. In this reporting year, over half (53 percent) of kaimahirelated grievances at care and protection residences were considered justified by Oranga Tamariki.

One youth justice residence had 62 percent of grievances

Of the five youth justice residences that Oranga Tamariki operates, Te Puna Wai residence had the majority (62 percent) of grievances. More than half (61 percent) of the grievances for this residence were considered justified by Oranga Tamariki. Oranga Tamariki data indicated there were varying rates of both grievances and the proportion of them found to be justified across the five youth justice residences.

Kaimahi-related grievances are decreasing in youth justice residences

Overall, the number of grievances at youth justice residences has decreased. The decrease is mostly due to a 40 percent reduction in general grievances (those not related to people, including kaimahi or other rangatahi) and a 28 percent reduction in kaimahi-related grievances since last year. Kaimahi- related grievances at youth justice residences have returned to the level seen in 2022/23. Although the number of kaimahi-related grievances has decreased, the proportion of kaimahi-related grievances found to be justified increased by 11 percent.

Grievances from youth justice residences are less likely to be closed within the 14-day timeframe. Around two-thirds are closed outside of this timeframe compared to half of the grievances for care and protection residences.

Improvements are being made to grievance processes in residences

Oranga Tamariki told us that, in early 2025, it piloted changes to the grievance process at Korowai Manaaki youth justice residence. The pilot, in partnership with VOYCE, aimed to improve delivery and rangatahi experience of the grievance process.

The pilot:

• developed resources for rangatahi about their rights, how to raise issues (including grievances) and how to access advocacy support
• increased the range of ways rangatahi can raise issues – through kaimahi, VOYCE, advocates, community meetings and the Rangatahi Youth Council
• made advocacy support in the grievance process ‘opt off’ rather than ‘opt on’ so rangatahi are always offered the support of an advocate.

This approach is being implemented in all residences with a completion date of January 2026.

Recent legislation changes for residences will be implemented.

From October 2025, several changes have been made to legislation¹⁴⁶ to improve the safety and wellbeing of tamariki and rangatahi in care, including those who are in residences. One change immediately removed the ability to strip search tamariki and rangatahi in residences.

Further changes that will come into force at a later date¹⁴⁷ include:

• allowing universal searches on entry to youth justice residences
• requiring search plans to be made with tamariki and rangatahi in all residences
• clarifying the length of time that tamariki and rangatahi may be placed in secure care within a residence before court approval must be sought.

We will be monitoring grievances at residences and will seek an update from Oranga Tamariki

This reporting year, changes to previous trends for grievances at residences include:

• a large increase (67 percent) in grievances from care and protection residences
• a decrease (28 percent) in grievances from youth justice residences
• grievances from care and protection residences now outnumber those from youth justice residences and make up a higher proportion of total grievances
• changes in data for kaimahi-related grievances at both types of residences.

These changes are occurring with very little change to the numbers of tamariki and rangatahi who have spent time in the two types of residences since last year.

We expect to see an update from Oranga Tamariki about grievances, including:

• any insights into the changes above
• any further planned process changes at residences
• whether the pilot to improve delivery and experiences of the grievance process across residences was fully implemented.

This update can be provided by Oranga Tamariki in its response to this report or alongside its fourmonth progress update about reducing harm and abuse of tamariki and rangatahi in residences.

We will be monitoring these changes and working alongside our oversight partners Mana Mokopuna | Children’s Commissioner and the Ombudsman to understand what the changes are signalling. It could be that changes have led to reporting processes being used more or that there are changes to safety for tamariki and rangatahi in residences. We will be visiting residences again in the 2026/27 reporting year.

120 See (p. 112) of reference at footnote 109.
121 The reporting period for Oranga Tamariki data on findings of harm is the 12 months to 31 March 2025. Our reporting period is 1 July 2024 – 30 June 2025.
122 See (p. 131) of reference at footnote 109.
123 See (pp. 132–133) of reference at footnote 109.
124 See (p. 133) of reference at footnote 109.
125 See footnote 34.
126 Please note, impairments need to be formally diagnosed to be included in this data. “Disabled people are people who have longterm physical, cognitive, intellectual, neurological, or sensory impairments including neurodiverse conditions such as Fetal Alcohol Spectrum Disorder (FASD), Autism Spectrum Disorder (ASD) and Attention Deficit Hyperactivity Disorder (ADHD), which, in interaction with various barriers, may hinder their full and effective participation in society on an equal basis with others.” orangatamariki.govt.nz/about-us/our-work/supporting-oranga-for-disabled-people/disability-definition
127 Oranga Tamariki data uses three categories for gender: female, male, other gender.
128 Data about the age of tamarikiClosetamariki
Children (plural) aged 0-13 yearsView the full glossary and rangatahiCloserangatahi
Young person aged 14 – 21 years of ageView the full glossary in care is at the start of this report in the section About tamariki and rangatahi in care.
129 See (pp. 133–134) of reference at footnote 109.
130 See (p. 144) of reference at footnote 109.
131 See (p. 137) of reference at footnote 109. Tamariki and rangatahi can spend time in more than one placement within a year, and individuals may have experienced abuse in more than one placement during the year. Additionally, for this data, the placement type refers to where the individual was living when harm occurred.
132 See (p. 146) of reference at footnote 109.
133 ManaCloseMana
Prestige, authority, control, power, influence, status, spiritual power, charismaView the full glossary Mokopuna. (2024). Epuni Care and Protection Residence: OPCAT Monitoring report. manamokopuna.org.nz/documents/816/Epuni_Report_FINAL_wBxQsOK.pdf
134 This is required even when the caregiver has not caused the harm.
135 Oranga Tamariki response to Aroturuki Tamariki 2023/24 Experiences of Care in AotearoaCloseAotearoa
New ZealandView the full glossary report, February 2025 (p. 4). aroturuki.govt.nz/assets/Reports/EOCR2324/OT-Response-to-EoCA-2023-24.pdf
136 Descriptions of the settings are found in the Care settings section at the start of this report.
137 Grievance procedures are outlined as a Schedule in the Oranga Tamariki (Residential Care) Regulations 1996: legislation.govt.nz/regulation/public/1996/0354/latest/DLM226492.html?search=sw_096be8ed81fc38b2_finding_25_se&p=1
138 This was reported as 1,194 in 2023/24 Experiences of Care. Oranga Tamariki has revised this based on data fixes this year.
139 This was reported as 1,251 in our 2023/24 Experiences of Care in Aotearoa report. Oranga Tamariki has revised this based on data fixes this year.
140 This covers children and young people involved with Oranga Tamariki (1%), support person (1%), adult previously child in care (1%), adult previously child and young person involved with OT (1%) and victim youth justice (<1%).
141 Approximately 500 tamariki and rangatahi spent time in care and protection or youth justice residences over the reporting period, with the majority spending time in youth justice residences. See the Care settings section at the start of this report for further information about tamariki and rangatahi in residences.
142 This was reported as 328 in our 2023/24 Experiences of Care in Aotearoa report due to a discrepancy of data between sources.
143 This was reported as 396 in our 2023/24 Experiences of Care in Aotearoa report with a disclaimer that there was a discrepancy of 20 grievances between the response document from Oranga Tamariki and the raw count that breaks down the nature and outcome of grievances raised. We realised this was an error and have corrected the raw count in the table. There is still a slight discrepancy between data between sources.
144 This is covered in the Care settings section at the start of this report.
145 As covered in the Care settings section of this report, not all care and protection residences are operated by Oranga Tamariki, not all were operational in the reporting year and not all have the same capacity and availability. For this reporting period, Oranga Tamariki provided data on grievances for three of the five care and protection residences.
146 Crimes Act 1961, Children’s Act 2014, Public Records Act 2005 and Oranga Tamariki Act 1989.
147 The further changes will come into force no later than 24 October 2026 but can be brought into force earlier by Order in Council.