Inside the life of the sandwich generation: Caring for parents and teens
"They think 'I'm just looking after my parents' or, you know, 'I'm just caring for a child with special needs' ... [and are not] seeking those supports that are available to them, like respite or counselling, or peer groups that may help," said Annabel Reid, CEO of Carers Australia.
Most carers will care for years before they seek out assistance, meaning they're usually in "quite a bad place when they seek help", Ms Reid said.
The Australian Bureau of Statistics estimates 11.9 per cent of the population were carers in 2024 - including 1.2 million primary carers and 1.9 million carers who were not primary carers - who support a family member or friend who has a disability, mental illness, drug and/or alcohol dependency, chronic condition, terminal illness or who is frail.
Read more at The Senior:
Linley Wilkie, a journalist with ACM (publisher of this masthead), is the eldest child in her family, "and usually [her] parent's first port of call".
"Dad is 83 and Mum is 74. They've been fit, healthy and socially active for most of their lives, however, things took a turn when Dad was diagnosed with melanoma at the end of 2019," she told The Senior.
"The ongoing immunotherapy treatment has been amazing, but it ultimately rocked their world and I feel like my status as 'firstborn' grew to include 'carer' at about this point ... on the flip side, care for my teenage sons is daily, filled with the usual things you'd expect in a busy family."
The Victorian resident lives an hour and 20-minutes drive from her parents, so teaching them "lifehacks" (like how to do online shopping, how to spot a scam email or how to find Cancer Council support services) and outsourcing jobs like cleaning where she can has been helpful.
"When I visit, I'll drive them to the post office, or the bank, and other services they feel more comfortable still undertaking in person," she said.
*I think I'd feel incredibly guilty if I wasn't in a position to look after them at the drop of a hat ... not because they'd impress guilt upon me, but because I was brought up to appreciate the importance of people looking after each other - I feel that deeply when it concerns the person who raised me to be who I am today.
"I genuinely love caring for them! There's a real sense of pride and satisfaction in seeing them regain their health and independence."
Ms Wilkie said she was fortunate to have no financial implications for being "sandwiched between the needs of her ageing parents and growing teenage sons", though she does feel "overstretched" on occasion - a plight of many others in a similar situation.
Ms Wilkie said she tries to manage her wellbeing by taking time out for herself, like catching up with friends or watching a favourite television show.
"Simple things that give me joy and require minimal effort," she said.
"Try not to feel bad for yourself when you're doing the caring while others wait, being able to look after the generations before and after you is part of many modern-day families. Cherish the time you have left with your parents and instil similar values in your children, so that one day, caring for you will come naturally to them (aka the circle of life)!"
The latest research around the "sandwich generation" has revealed on average, caregivers spend around 31.7 hours on average per week doing unpaid care for both older and younger generations, juggled with around 21 hours on average of work each week.
The Australian Seniors: Sandwich Generation Report 2025 also found nine in 10 of those surveyed had experienced caregiving burnout (emotional and physical exhaustion, sleep issues), 65 per cent of those surveyed were concerned about long-term health impacts of caregiving, though a third of carers reported they did engage in self-care strategies (like regular exercise, seeking support and taking breaks).
Join the conversation. Share your thoughts in the comments below, or send a Letter to the Editor by CLICKING HERE.
In some cultures, looking after your elderly parents is part of society norm, in others it's mandated by law (like China and France). In Australia, it can be a personal choice, though many are oblivious to their role and don't identify as a "carer" - meaning wellbeing is often overlooked.
"They think 'I'm just looking after my parents' or, you know, 'I'm just caring for a child with special needs' ... [and are not] seeking those supports that are available to them, like respite or counselling, or peer groups that may help," said Annabel Reid, CEO of Carers Australia.
Most carers will care for years before they seek out assistance, meaning they're usually in "quite a bad place when they seek help", Ms Reid said.
The Australian Bureau of Statistics estimates 11.9 per cent of the population were carers in 2024 - including 1.2 million primary carers and 1.9 million carers who were not primary carers - who support a family member or friend who has a disability, mental illness, drug and/or alcohol dependency, chronic condition, terminal illness or who is frail.
Read more at The Senior:
Linley Wilkie, a journalist with ACM (publisher of this masthead), is the eldest child in her family, "and usually [her] parent's first port of call".
"Dad is 83 and Mum is 74. They've been fit, healthy and socially active for most of their lives, however, things took a turn when Dad was diagnosed with melanoma at the end of 2019," she told The Senior.
"The ongoing immunotherapy treatment has been amazing, but it ultimately rocked their world and I feel like my status as 'firstborn' grew to include 'carer' at about this point ... on the flip side, care for my teenage sons is daily, filled with the usual things you'd expect in a busy family."
The Victorian resident lives an hour and 20-minutes drive from her parents, so teaching them "lifehacks" (like how to do online shopping, how to spot a scam email or how to find Cancer Council support services) and outsourcing jobs like cleaning where she can has been helpful.
"When I visit, I'll drive them to the post office, or the bank, and other services they feel more comfortable still undertaking in person," she said.
*I think I'd feel incredibly guilty if I wasn't in a position to look after them at the drop of a hat ... not because they'd impress guilt upon me, but because I was brought up to appreciate the importance of people looking after each other - I feel that deeply when it concerns the person who raised me to be who I am today.
"I genuinely love caring for them! There's a real sense of pride and satisfaction in seeing them regain their health and independence."
Ms Wilkie said she was fortunate to have no financial implications for being "sandwiched between the needs of her ageing parents and growing teenage sons", though she does feel "overstretched" on occasion - a plight of many others in a similar situation.
Ms Wilkie said she tries to manage her wellbeing by taking time out for herself, like catching up with friends or watching a favourite television show.
"Simple things that give me joy and require minimal effort," she said.
"Try not to feel bad for yourself when you're doing the caring while others wait, being able to look after the generations before and after you is part of many modern-day families. Cherish the time you have left with your parents and instil similar values in your children, so that one day, caring for you will come naturally to them (aka the circle of life)!"
The latest research around the "sandwich generation" has revealed on average, caregivers spend around 31.7 hours on average per week doing unpaid care for both older and younger generations, juggled with around 21 hours on average of work each week.
The Australian Seniors: Sandwich Generation Report 2025 also found nine in 10 of those surveyed had experienced caregiving burnout (emotional and physical exhaustion, sleep issues), 65 per cent of those surveyed were concerned about long-term health impacts of caregiving, though a third of carers reported they did engage in self-care strategies (like regular exercise, seeking support and taking breaks).
Join the conversation. Share your thoughts in the comments below, or send a Letter to the Editor by CLICKING HERE.
In some cultures, looking after your elderly parents is part of society norm, in others it's mandated by law (like China and France). In Australia, it can be a personal choice, though many are oblivious to their role and don't identify as a "carer" - meaning wellbeing is often overlooked.
"They think 'I'm just looking after my parents' or, you know, 'I'm just caring for a child with special needs' ... [and are not] seeking those supports that are available to them, like respite or counselling, or peer groups that may help," said Annabel Reid, CEO of Carers Australia.
Most carers will care for years before they seek out assistance, meaning they're usually in "quite a bad place when they seek help", Ms Reid said.
The Australian Bureau of Statistics estimates 11.9 per cent of the population were carers in 2024 - including 1.2 million primary carers and 1.9 million carers who were not primary carers - who support a family member or friend who has a disability, mental illness, drug and/or alcohol dependency, chronic condition, terminal illness or who is frail.
Read more at The Senior:
Linley Wilkie, a journalist with ACM (publisher of this masthead), is the eldest child in her family, "and usually [her] parent's first port of call".
"Dad is 83 and Mum is 74. They've been fit, healthy and socially active for most of their lives, however, things took a turn when Dad was diagnosed with melanoma at the end of 2019," she told The Senior.
"The ongoing immunotherapy treatment has been amazing, but it ultimately rocked their world and I feel like my status as 'firstborn' grew to include 'carer' at about this point ... on the flip side, care for my teenage sons is daily, filled with the usual things you'd expect in a busy family."
The Victorian resident lives an hour and 20-minutes drive from her parents, so teaching them "lifehacks" (like how to do online shopping, how to spot a scam email or how to find Cancer Council support services) and outsourcing jobs like cleaning where she can has been helpful.
"When I visit, I'll drive them to the post office, or the bank, and other services they feel more comfortable still undertaking in person," she said.
*I think I'd feel incredibly guilty if I wasn't in a position to look after them at the drop of a hat ... not because they'd impress guilt upon me, but because I was brought up to appreciate the importance of people looking after each other - I feel that deeply when it concerns the person who raised me to be who I am today.
"I genuinely love caring for them! There's a real sense of pride and satisfaction in seeing them regain their health and independence."
Ms Wilkie said she was fortunate to have no financial implications for being "sandwiched between the needs of her ageing parents and growing teenage sons", though she does feel "overstretched" on occasion - a plight of many others in a similar situation.
Ms Wilkie said she tries to manage her wellbeing by taking time out for herself, like catching up with friends or watching a favourite television show.
"Simple things that give me joy and require minimal effort," she said.
"Try not to feel bad for yourself when you're doing the caring while others wait, being able to look after the generations before and after you is part of many modern-day families. Cherish the time you have left with your parents and instil similar values in your children, so that one day, caring for you will come naturally to them (aka the circle of life)!"
The latest research around the "sandwich generation" has revealed on average, caregivers spend around 31.7 hours on average per week doing unpaid care for both older and younger generations, juggled with around 21 hours on average of work each week.
The Australian Seniors: Sandwich Generation Report 2025 also found nine in 10 of those surveyed had experienced caregiving burnout (emotional and physical exhaustion, sleep issues), 65 per cent of those surveyed were concerned about long-term health impacts of caregiving, though a third of carers reported they did engage in self-care strategies (like regular exercise, seeking support and taking breaks).
Join the conversation. Share your thoughts in the comments below, or send a Letter to the Editor by CLICKING HERE.
In some cultures, looking after your elderly parents is part of society norm, in others it's mandated by law (like China and France). In Australia, it can be a personal choice, though many are oblivious to their role and don't identify as a "carer" - meaning wellbeing is often overlooked.
"They think 'I'm just looking after my parents' or, you know, 'I'm just caring for a child with special needs' ... [and are not] seeking those supports that are available to them, like respite or counselling, or peer groups that may help," said Annabel Reid, CEO of Carers Australia.
Most carers will care for years before they seek out assistance, meaning they're usually in "quite a bad place when they seek help", Ms Reid said.
The Australian Bureau of Statistics estimates 11.9 per cent of the population were carers in 2024 - including 1.2 million primary carers and 1.9 million carers who were not primary carers - who support a family member or friend who has a disability, mental illness, drug and/or alcohol dependency, chronic condition, terminal illness or who is frail.
Read more at The Senior:
Linley Wilkie, a journalist with ACM (publisher of this masthead), is the eldest child in her family, "and usually [her] parent's first port of call".
"Dad is 83 and Mum is 74. They've been fit, healthy and socially active for most of their lives, however, things took a turn when Dad was diagnosed with melanoma at the end of 2019," she told The Senior.
"The ongoing immunotherapy treatment has been amazing, but it ultimately rocked their world and I feel like my status as 'firstborn' grew to include 'carer' at about this point ... on the flip side, care for my teenage sons is daily, filled with the usual things you'd expect in a busy family."
The Victorian resident lives an hour and 20-minutes drive from her parents, so teaching them "lifehacks" (like how to do online shopping, how to spot a scam email or how to find Cancer Council support services) and outsourcing jobs like cleaning where she can has been helpful.
"When I visit, I'll drive them to the post office, or the bank, and other services they feel more comfortable still undertaking in person," she said.
*I think I'd feel incredibly guilty if I wasn't in a position to look after them at the drop of a hat ... not because they'd impress guilt upon me, but because I was brought up to appreciate the importance of people looking after each other - I feel that deeply when it concerns the person who raised me to be who I am today.
"I genuinely love caring for them! There's a real sense of pride and satisfaction in seeing them regain their health and independence."
Ms Wilkie said she was fortunate to have no financial implications for being "sandwiched between the needs of her ageing parents and growing teenage sons", though she does feel "overstretched" on occasion - a plight of many others in a similar situation.
Ms Wilkie said she tries to manage her wellbeing by taking time out for herself, like catching up with friends or watching a favourite television show.
"Simple things that give me joy and require minimal effort," she said.
"Try not to feel bad for yourself when you're doing the caring while others wait, being able to look after the generations before and after you is part of many modern-day families. Cherish the time you have left with your parents and instil similar values in your children, so that one day, caring for you will come naturally to them (aka the circle of life)!"
The latest research around the "sandwich generation" has revealed on average, caregivers spend around 31.7 hours on average per week doing unpaid care for both older and younger generations, juggled with around 21 hours on average of work each week.
The Australian Seniors: Sandwich Generation Report 2025 also found nine in 10 of those surveyed had experienced caregiving burnout (emotional and physical exhaustion, sleep issues), 65 per cent of those surveyed were concerned about long-term health impacts of caregiving, though a third of carers reported they did engage in self-care strategies (like regular exercise, seeking support and taking breaks).
Join the conversation. Share your thoughts in the comments below, or send a Letter to the Editor by CLICKING HERE.
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But the report said emergency funding systems needed to be set up to support, rather than hinder, collaboration. This was seen as particularly important as climate change drives an increase in the intensity, frequency and scale of disasters. Dr Lisa de Kleyn, lead researcher from La Trobe's Climate Change Adaptation Lab, said the collaborative effort by Campaspe Shire, Central Goldfields Shire, City of Greater Bendigo, Loddon Shire and Mount Alexander Shire councils helped ease pressure by addressing resource gaps, worker burnout, complex community needs and the growing strain of responding to frequent disasters. "Many councils were managing both flood response and recovery simultaneously, while their own emergency staff were directly impacted by floodwaters," Dr de Kleyn said. "This model of collaboration, deep local knowledge and mutual trust enabled the councils to deliver a level of care and coordination no single council could achieve alone." 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However, a common theme from the AHRUI study, which will no doubt resonate with councils, is that they need support and funding to lead local disaster risk management. Research for the study 'Inquiry into housing policy and disaster: better coordinating actions, responses and data' was conducted by researchers from University of NSW, RMIT University and Curtin University. Lead author of the research, Professor David Sanderson, from the University of New South Wales. said local governments should add a fourth "R" for "resilience", in addition to their traditional "rates, roads and rubbish' remit. 'This resilience remit is about improving local ownership of decisions to manage how disaster affects local communities,' said Professor Sanderson. 'The key role of local government is not only when disaster hits - it's also about preventing and mitigating disasters before they occur, and managing the long recovery process after. After all, they are best placed to achieve this, given the right support.' But the study finds that to fulfil this role, they need better support from the State and Commonwealth governments. "Local governments already do the best they can to support their communities to prepare for, prevent and respond to disasters. However, this role is hindered by a lack of resources, lack of investment and a lack of political authority," Professor Sanderson said.. 'The role is also hindered by a lack of reliable data.' Professor Sanderson said preparing for disasters is not seen as core business for many local governments. However, he said having a suite of plans in place before such an event makes it much easier for local governments to allocate and direct resources when the event occurs. "It starts with having accurate data of where disasters might happen and what their impact could be," he said. "From this data local governments can identify planning zones where housing should and shouldn't be built, or what levels of building protection are needed if building is allowed in those at-risk areas." The study found that forward planning also meant local governments know where and what type of any temporary accommodation should be built. It means construction can start very quickly to house displaced residents if necessary. Professor Sanderson said when the immediate threat from fire, flood, windstorm or other disaster has passed, local governments can find themselves overloaded, particularly if there aren't policies in place that have been prioritised before the disaster. The study found some key policies governments need to consider include: Professor Sanderson said state, territory and federal governments can invest in better prepared communities and better recovery by building local government political authority and capacity in all aspects of disaster management. They can also improve other important aspects of disaster management, such as leading coordinated decisions on data management and leading research and evaluation of disaster responses that can support local governments in their planning, preparation and policymaking. Professor Sanderson said having trusted data sources is essential to implementing accurate policies. "Our research shows that having accurate and up-to-date data about disaster hazards is crucial for making effective decisions and managing risks,' says Professor Sanderson. "However, there is a problem with a lack of data standards, availability and quality.' "There is also a lack of trust in the available data, which can make important decisions fraught, such as where new development is allowed." The Victorian research showed the regions were better able to address local needs during emergencies when they combined resources and worked together. But the report said emergency funding systems needed to be set up to support, rather than hinder, collaboration. This was seen as particularly important as climate change drives an increase in the intensity, frequency and scale of disasters. Dr Lisa de Kleyn, lead researcher from La Trobe's Climate Change Adaptation Lab, said the collaborative effort by Campaspe Shire, Central Goldfields Shire, City of Greater Bendigo, Loddon Shire and Mount Alexander Shire councils helped ease pressure by addressing resource gaps, worker burnout, complex community needs and the growing strain of responding to frequent disasters. "Many councils were managing both flood response and recovery simultaneously, while their own emergency staff were directly impacted by floodwaters," Dr de Kleyn said. "This model of collaboration, deep local knowledge and mutual trust enabled the councils to deliver a level of care and coordination no single council could achieve alone." Previous Disaster Deadline: Who Will Save Us? articles. As the Hunter and Mid North Coast battle with yet another series of floods, two major studies have called for an increased role for local government in dealing with natural disaster response and recovery. The Australian Housing and Urban Research Institute has suggested local government should add a fourth "R" - "Resilience" for their dealing with disasters - to their traditional remit of rates, roads and rubbish. A second study by La Trobe University "Strengthening Collaboration in Emergency Management" provides a case study on five Victorian councils' responses which it says redefined how regional organisations can work together to save property and lives. Australian Community Media has questioned councils in the Hunter and Mid North Coast about their roles in disaster management and recovery and will be bringing their responses in a separate article in our Disaster Deadline - Who Will Save Us? series. However, a common theme from the AHRUI study, which will no doubt resonate with councils, is that they need support and funding to lead local disaster risk management. Research for the study 'Inquiry into housing policy and disaster: better coordinating actions, responses and data' was conducted by researchers from University of NSW, RMIT University and Curtin University. Lead author of the research, Professor David Sanderson, from the University of New South Wales. said local governments should add a fourth "R" for "resilience", in addition to their traditional "rates, roads and rubbish' remit. 'This resilience remit is about improving local ownership of decisions to manage how disaster affects local communities,' said Professor Sanderson. 'The key role of local government is not only when disaster hits - it's also about preventing and mitigating disasters before they occur, and managing the long recovery process after. After all, they are best placed to achieve this, given the right support.' But the study finds that to fulfil this role, they need better support from the State and Commonwealth governments. "Local governments already do the best they can to support their communities to prepare for, prevent and respond to disasters. However, this role is hindered by a lack of resources, lack of investment and a lack of political authority," Professor Sanderson said.. 'The role is also hindered by a lack of reliable data.' Professor Sanderson said preparing for disasters is not seen as core business for many local governments. However, he said having a suite of plans in place before such an event makes it much easier for local governments to allocate and direct resources when the event occurs. "It starts with having accurate data of where disasters might happen and what their impact could be," he said. "From this data local governments can identify planning zones where housing should and shouldn't be built, or what levels of building protection are needed if building is allowed in those at-risk areas." The study found that forward planning also meant local governments know where and what type of any temporary accommodation should be built. It means construction can start very quickly to house displaced residents if necessary. Professor Sanderson said when the immediate threat from fire, flood, windstorm or other disaster has passed, local governments can find themselves overloaded, particularly if there aren't policies in place that have been prioritised before the disaster. The study found some key policies governments need to consider include: Professor Sanderson said state, territory and federal governments can invest in better prepared communities and better recovery by building local government political authority and capacity in all aspects of disaster management. They can also improve other important aspects of disaster management, such as leading coordinated decisions on data management and leading research and evaluation of disaster responses that can support local governments in their planning, preparation and policymaking. Professor Sanderson said having trusted data sources is essential to implementing accurate policies. "Our research shows that having accurate and up-to-date data about disaster hazards is crucial for making effective decisions and managing risks,' says Professor Sanderson. "However, there is a problem with a lack of data standards, availability and quality.' "There is also a lack of trust in the available data, which can make important decisions fraught, such as where new development is allowed." The Victorian research showed the regions were better able to address local needs during emergencies when they combined resources and worked together. But the report said emergency funding systems needed to be set up to support, rather than hinder, collaboration. This was seen as particularly important as climate change drives an increase in the intensity, frequency and scale of disasters. Dr Lisa de Kleyn, lead researcher from La Trobe's Climate Change Adaptation Lab, said the collaborative effort by Campaspe Shire, Central Goldfields Shire, City of Greater Bendigo, Loddon Shire and Mount Alexander Shire councils helped ease pressure by addressing resource gaps, worker burnout, complex community needs and the growing strain of responding to frequent disasters. "Many councils were managing both flood response and recovery simultaneously, while their own emergency staff were directly impacted by floodwaters," Dr de Kleyn said. "This model of collaboration, deep local knowledge and mutual trust enabled the councils to deliver a level of care and coordination no single council could achieve alone." Previous Disaster Deadline: Who Will Save Us? articles. As the Hunter and Mid North Coast battle with yet another series of floods, two major studies have called for an increased role for local government in dealing with natural disaster response and recovery. The Australian Housing and Urban Research Institute has suggested local government should add a fourth "R" - "Resilience" for their dealing with disasters - to their traditional remit of rates, roads and rubbish. A second study by La Trobe University "Strengthening Collaboration in Emergency Management" provides a case study on five Victorian councils' responses which it says redefined how regional organisations can work together to save property and lives. Australian Community Media has questioned councils in the Hunter and Mid North Coast about their roles in disaster management and recovery and will be bringing their responses in a separate article in our Disaster Deadline - Who Will Save Us? series. However, a common theme from the AHRUI study, which will no doubt resonate with councils, is that they need support and funding to lead local disaster risk management. Research for the study 'Inquiry into housing policy and disaster: better coordinating actions, responses and data' was conducted by researchers from University of NSW, RMIT University and Curtin University. Lead author of the research, Professor David Sanderson, from the University of New South Wales. said local governments should add a fourth "R" for "resilience", in addition to their traditional "rates, roads and rubbish' remit. 'This resilience remit is about improving local ownership of decisions to manage how disaster affects local communities,' said Professor Sanderson. 'The key role of local government is not only when disaster hits - it's also about preventing and mitigating disasters before they occur, and managing the long recovery process after. After all, they are best placed to achieve this, given the right support.' But the study finds that to fulfil this role, they need better support from the State and Commonwealth governments. "Local governments already do the best they can to support their communities to prepare for, prevent and respond to disasters. However, this role is hindered by a lack of resources, lack of investment and a lack of political authority," Professor Sanderson said.. 'The role is also hindered by a lack of reliable data.' Professor Sanderson said preparing for disasters is not seen as core business for many local governments. However, he said having a suite of plans in place before such an event makes it much easier for local governments to allocate and direct resources when the event occurs. "It starts with having accurate data of where disasters might happen and what their impact could be," he said. "From this data local governments can identify planning zones where housing should and shouldn't be built, or what levels of building protection are needed if building is allowed in those at-risk areas." The study found that forward planning also meant local governments know where and what type of any temporary accommodation should be built. It means construction can start very quickly to house displaced residents if necessary. Professor Sanderson said when the immediate threat from fire, flood, windstorm or other disaster has passed, local governments can find themselves overloaded, particularly if there aren't policies in place that have been prioritised before the disaster. The study found some key policies governments need to consider include: Professor Sanderson said state, territory and federal governments can invest in better prepared communities and better recovery by building local government political authority and capacity in all aspects of disaster management. They can also improve other important aspects of disaster management, such as leading coordinated decisions on data management and leading research and evaluation of disaster responses that can support local governments in their planning, preparation and policymaking. Professor Sanderson said having trusted data sources is essential to implementing accurate policies. "Our research shows that having accurate and up-to-date data about disaster hazards is crucial for making effective decisions and managing risks,' says Professor Sanderson. "However, there is a problem with a lack of data standards, availability and quality.' "There is also a lack of trust in the available data, which can make important decisions fraught, such as where new development is allowed." The Victorian research showed the regions were better able to address local needs during emergencies when they combined resources and worked together. But the report said emergency funding systems needed to be set up to support, rather than hinder, collaboration. This was seen as particularly important as climate change drives an increase in the intensity, frequency and scale of disasters. Dr Lisa de Kleyn, lead researcher from La Trobe's Climate Change Adaptation Lab, said the collaborative effort by Campaspe Shire, Central Goldfields Shire, City of Greater Bendigo, Loddon Shire and Mount Alexander Shire councils helped ease pressure by addressing resource gaps, worker burnout, complex community needs and the growing strain of responding to frequent disasters. "Many councils were managing both flood response and recovery simultaneously, while their own emergency staff were directly impacted by floodwaters," Dr de Kleyn said. "This model of collaboration, deep local knowledge and mutual trust enabled the councils to deliver a level of care and coordination no single council could achieve alone." 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