The failure to commit to the new centre comes at a time when the territory's adult jail, the Alexander Maconochie Centre, is close to capacity with 497 inmates, about 35 per cent of whom were remanded, not convicted prisoners.

When the prison was opened a decade ago, it was built to hold only 300 prisoners, and despite an expansion to accommodate 500 detainees which was completed about two years ago, the prison has been at capacity or beyond it regularly in the years since.

Justice Minister Shane Rattenbury on Thursday tabled an 85-page report of the implementation plan of the recommendations of Phillip Moss's independent review of the treatment of Steven Freeman and his death in the prison in May 2016.

Mr Freeman's death was also investigated by the coroner and the Health Services Commissioner, but the inquest made no specific findings connecting his death with what many in the community regarded as sub-standard treatment of him while in the prison.

The inquest also did not examine the serious assault on Mr Freeman inside the prison in April 2015, as it was formally considered out of the scope of an inquest and although Mr Moss's inquiry did, questions remain about the matter.

The report by Russell Taylor covers the activities a steering committee overseeing the government's implementation of Mr Moss's nine formal recommendations since that report was released in November 2016.

It reveals that two years on, the territory government has largely implemented seven of the recommendations, but has failed to implement the recommendation to build a separate remand centre, and is yet to fully integrate Winnunga Nimityjah Health Service into the prison.

The report also details Mr Taylor's concerns about the fast-rising rate of Indigenous incarceration in the territory, which soared 17 per cent from March 2017 to March 2018 - the fastest growth of any jurisdiction in that period.

Mr Taylor also cited the fact that Indigenous detainees were 16 per cent of the ACT prisoner population in June 2014, but were now 21 per cent of the prison population.

"I urge the ACT government to act now and implement new programs, invest in housing programs and try new and innovative programs to reduce the rate of incarceration of Aboriginal and Torres Strait Islander peoples," he wrote

"I am aware that these programs require significant financial investment, however these costs must be considered against the continuing cost of incarcerating Aboriginal and Torres Strait Islander people in increasing numbers in the AMC."

Mr Rattenbury said while some believed a separate remand centre was needed to be built, he was not sure that was the right way to go, and was assessing a range of options including more supported accommodation and bail houses.

He said he had received a feasibility study - which has not been publicly released - and he was considering it, as well as Mr Taylor's report and other input and he was hoping to have a Cabinet submission ready before the end of the year on what would be done.

The report also looked more widely at the issues contributing to the ACT's high Indigenous incarceration rate, and what could be done to address it, and the high remanded detainee rate, including a need for more bail housing, an Indigenous-specific hostel and a need for supported housing for paroled and released prisoners.

Winnunga Nimmityjah chief executive Julie Tongs said that just because the committee had formally signed off on the implementation, there was still much to be done and government and the community could not take its finger off the pulse.

She also said there remained a serious need for a mental health and drug and alcohol residential facility, given Dhulwa had little capacity for only the highest needs detainees, and the Ngunnawal bush healing farm was not residential.

Ms Tongs also cited a need for other Indigenous-specific services such a domestic violence service, as many Indigenous Canberrans were afraid to engage other services for fear of losing their children to child protection.

But she said there had been progress to date, and Winnunga now had a place inside the prison AMC, and she hoped the service's model of care would be fully in place later this year.

Ms Tongs also said the community needed to remember why there was the Moss review and a coronial inquest, and it was because of Mr Freeman's death and the contribution of his mother, Narelle King, and their family.

"There will be, I hope, better care and supports offered to indigenous inmates than that afforded to him, and I believe his legacy is, and will continue to be, changes and improvements across the system," she said.

"It's been a long journey and there'll never be any closure for Narelle King and her family, but in the years to come I hope she will appreciate what she's done and how her son's death in custody changed the system."