A new report shows Aboriginal children continue to be over-represented in all categories of abuse and neglect in the Northern Territory.
The annual report by the Children's Commissioner shows 24 Aboriginal children in every 1000 have "substantiated" cases of harm or neglect.
That is six times the rate for non-Aboriginal children.
The report shows the number of Aboriginal children in out-of-home care increased by 45 per cent in the past two years.
More than half of Aboriginal children in care are with non-Indigenous care givers.
The report says a shortage of registered Aboriginal carers in the Territory is partly responsible.
The report says more than 6,500 notifications were made about children experiencing harm between 2009 and 2010 - nearly 3,000 more than two years ago.
The majority of warnings came from police, health workers and teachers.
But there's been a small increase in the number of "substantiated cases", which could be due to a number of factors, such as warnings being made when there is no actual risk to children.
The report says the Territory's child protection system could also be so overloaded that it cannot substantiate as many cases as it needs to.
It says more than two thirds of Government promises to improve child protection have been met or are on track to be fully achieved by 2012.
But one third of commitments have no been met and are unlikely to be achieved within the same period, it says.
It found while there has been substantial progress in areas such as the judicial system, the Government has not delivered on a commitment to conduct a Territory-wide education program on child sex abuse.
Children's Commissioner Howard Bath says many cases of sex abuse in remote communities involve children preying on other children.
"I think the the public perception they are thinking of adults offending against children," he said.
"But the evidence suggests that a large percentage - and it varies, depending on what statistics you're looking at - actually is juveniles offending against juveniles."