8TH NUGGET COOMBS MEMORIAL LECTURE 2016
UNHAPPY ANNIVERSARIES: WHAT IS THERE TO CELEBRATE?
JOE MORRISON
ChiefExecutive,NorthernLandCouncil
PresentedatCharlesDarwinUniversity
5October2016
1
Goodeveningladiesandgentlemen.
MyfirsttaskthiseveningistoacknowledgetheTraditionalOwnersofthelandonwhichweare
gathered,theLarrakiapeople.IwouldliketopersonallythankRichardFejoforhiswarmwelcome.
IwouldalsoliketoacknowledgethepresenceofTheRightWorshipfulTheLordMayorofDarwin,
KatrinaFongLim,andtheViceChancellorsoftheco-hostinguniversities–ProfessorBrianSchmidtAM
ofAustralianNationalUniversityandProfessorSimonMaddocksofCharlesDarwinUniversity.
IacknowledgeMickDodsonandPeterYuasseniorIndigenousleadersinattendance.Ithankboth
hostsforinvitingmetogivethisEighthNuggetCoombsMemorialLecture.
Theinvitationisindeedagreathonour.
Iammindfulofthecontributionsofpreviouslecturers,alleminentAustralians.
AndIammindfulofthedistinguishedrecordofpublicserviceofDrNuggetCoombswhomwe
continuetohonour19yearsafterhisdeath,andmorethan110yearsafterhisbirth.
Ineverknewthegreatmanpersonally,butIpayhomagetohisenduringlegacy,bornofagigantic
intellectandcapacitytobringmultidisciplinaryapproachestosolvesomeofthenation’sbiggest
questions,todowiththeplaceofourfirstpeoples.
OneAboriginalleaderwhomIrespectdescribesthismanasthefatherofpublicpolicythathadatits
heartreconcilingthegreatAustraliandream,identityandloveofthebushwiththepeoplethatlived
inandownedthiscountry.
NuggetCoombs’greatleadershipofpost-warreconstructionwasmatchedbyhiscontributionto
IndigenousAffairs,whichwasaboutapostcontactreconstructionofthecountry’srelationshipwith
Indigenouspeople–attheheartofthenotionofafairgo.
Onmyreadingofhistory,hewasapublicservantwhosefrankandfearlessadvicedrovegoodpublic
policy.
ThiseveningIwouldliketohighlightjustafewofthepolicyfailuresthatlitterIndigenousAffairs
today,andpointtosomeopportunities.
Aswell,IwanttosaluteNugget’slegacyasitrelatestohisthinkingaboutremoteemployment.
MyultimatemessageisthatIndigenouspeoplemusttakecontroloftheagendaifwearetocrawlout
oftheassimilationistandpaternalisticmessthatstainsthenationandignorestheuniquenessof
Indigenouspeopleinthiscountry.
Asapublicservant,CoombsstraddledthePrimeMinistershipsofCurtin,Chifley,Menzies,Holt,
Gorton,McMahon,WhitlamandFraser.
2
HewasinhissixtieswhenPrimeMinisterHaroldHolt,inlate1967,coercedhimintoacceptingthe
chairmanshipoftheCouncilforAboriginalAffairs,whichwouldsurviveforthenextdecadeasthe
primarysourceofadvicetogovernmentsaboutIndigenouspolicies.
HoltdiedbeforetheCouncilforAboriginalAffairscouldevenfinditsfeet.
TherecordisthatanyhopesthattheCommonwealthwouldseizethechancetopursueprogressive
Indigenouspolicies,inthewakeofthe1967referendum,disappearedwithHaroldHolt.
TheLiberalPartyPrimeMinisterswhofollowed,GortonandMcMahon,wereindifferenttothe
influenceofCoombsandtheothertwomembersofhisCouncilforAboriginalAffairs,the
anthropologistBillStanner,andthepublicservantBarrieDexterwhoheadedtheofficeofAboriginal
AffairswithinthePrimeMinister’sDepartment.
GortonandMcMahonwereprisonerstotheirCountryPartycoalitioncolleagueswhocommandedthe
administrationofAboriginalaffairs.
Withliked-mindedbureaucrats,especiallywithintheDepartmentoftheInterior,thoseCountryParty
ministersruthlesslystrangledtheeffortsofCoombsandhisCouncilforAboriginalAffairsespeciallyon
thematteroflandrightsintheNorthernTerritory.
ThatCountryPartymindsetinfectedlocalpoliticsintheNorthernTerritory.
IthelpedfesterabidingoppositiontotheNorthernTerritoryAboriginalLandRightsAct,whichwas
passedbytheCommonwealthParliamentinDecember1976.
ThatoppositionendurestothisdayintheranksoftheCountryLiberalPartyintheNorthernTerritory.
TherecentlyoustedCLPgovernmentrepresentedjustanotheriterationoftheracismandignorance
thatcharacterisedthesuccessiveCLPgovernmentsthatruledthisplaceforaquarterofacenturyafter
theTerritorywasgrantedself-government.
TheCommonwealthgrantedself-governmenttotheTerritoryonJulythe1st1978,andCLP
governmentswouldspendtensofmillionsofdollarsinlegalfeestosustaintheirrelentlessand
recklesscampaigntoopposeeveryclaimthattheycouldchallenge.
Theywhippedupbaselessfearsamongthenon-Indigenouspopulationthatbackyardswereunder
threat,andtheclimateoffearbenefittedtheCLPatmanyelections.
Aswemarkthe40thanniversaryofthepassingoftheLandRightsActthisyear,it’sworthasking,how
farhaveweprogressedasapolityoverthattime?
Well,theCLP’snevergivenuphopethattheCommonwealthmightonedaysurrendertheLandRights
ActtotheNorthernTerritory.
OnlylastyeartheTerritory’sAttorneyGeneralyetagainmadeapitchtohavetheact“repatriated”–
notthatit’severbeenintheTerritory’sdomain.
Landrights,hesaid,hadbecome“awallofimprisonment”blockingAboriginalpeoplefrom
participatinginnortherndevelopment.
3
It’satiredoldrefrain,andyou’llhearechoesofitlaterinthislecture.
Butthelatest,mostseriousechowasheardduringtheNTGovernment’sreviewofitsAboriginal
SacredSitesAct,whichwasdeliveredinAprilthisyear.
DoctorBenScambaryisChiefExecutiveoftheAboriginalAreasProtectionAuthority–AAPA–which
administerstheSacredSitesAct.
BengaveanilluminatingaddressattheNorthAustraliaResearchUnitacoupleofmonthsago,where
hedescribedthepoliticalcontextinwhichtheActcametobereviewedbyateamofexternal
consultants.
I’llcomelatertohisrevelations,butfirstIneedtopaintsomebackgroundtothereview.
Hangingoverit-indeedamajorcatalystforit-wastheproposeddevelopmentofOrdStage3,the
pie-in-the-skyplantoextendtheOrdRiverIrrigationAreaintotheNorthernTerritory.
Ord3wasoneoftheprojectsidentifiedinthe‘WhitePaperonDevelopingNorthernAustralia’which
wouldenhancetheregionaleconomy.
Itwoulddevelop14,500hectaresofirrigatedfarmlandintheKeepRiverPlain,theKnoxPlanand
Milligan’slagoon,intheNorthernTerritory.
Itstandstodayasamonumenttofailure:afailureofplanningandafailureoftheNorthernTerritory
governmenttoengageingoodfaithwithAboriginalpeople.
Today,Icantellyou,Ord3isgoingnowhere.
TheCLPgovernmentintheNorthernTerritorywastoocutebyhalfinthewayitproceededwith
headstrongintenttogetOrd3moving.
Theschemewasfirstpuntedinthelate1990sandcausedgreatconsternationamongtraditional
Aboriginalowners.
Theproponentwalkedawayinlate2001,afteranthropologicalresearchbytheNorthernLandCouncil
establishedtheentireKeepRiverPlain(Balangarri)wasasacredsite.
Ord3wasrevivedin2012whenChineseInvestmentCompanytookitover.
AgaintheTraditionalOwnersroseup,andin2013adelegationtravelledtoDarwintoinformtheCLP
governmentoftheirtotalopposition.
Thegovernmentwasundeterred:itappliedtoAAPAforaCertificate,whichtheAuthorityissueswhen
it’ssatisfiedthatworkwon’triskdamagetosacredsites,orifaproponenthasreachedagreement
withAboriginalcustodians.
But,onthedayin2013theAuthority’sboardmettoregistertheKeepRiverPlain,theNorthern
Territorygovernmentwithdrewitsapplication.
Nowwecometothetrickypart:thegovernmentthenbrokeuptheOrd3projectintothreeblocks
andproposedfirsttodevelopaparceltothesouth,whichitcalledOrd3A.
4
Itwouldhaverequiredtheextinguishmentofnativetitleovermorethan4000hectares,ofwhich1800
hectareswereearmarkedforirrigatedagriculture.
Plainly,theGovernment’sintentwastosoftenupthenativetitleholders,eventhoughthe
government’smonetarycompensationpackagewasinadequateintheeyesoftheNativeTitleholders
whowerebeingaskedtohavetheirNativeTitlerightsextinguishedforever.
Nonetheless,theNLChadtheresponsibilityastheNativeTitleRepresentativeBodyundertheNative
TitleAct,toconsultwiththenativetitleholders,andweproceededtodoourjob.
WeactuallysecuredtheirconsenttonegotiateanagreementforOrd3A,althougheveryoneknew
thatasastand-aloneproject,theeconomicswouldneverstandup.
Then,outoftheblue,theGovernment,withoutexplanation,announcedinAprilthisyearthatOrd3A
wasoffthetable,andthatitwouldbeinvitingbidsfromtheprivatesectortodevelopthewholeof
Ord3.
ItwouldbelefttoasuccessfulproponenttonegotiateaLandUseAgreementandAAPAclearances.
Thetimetablewasunrealistic:theCLPgovernmentsaiditwouldexecuteanagreementbytheendof
July.
ThatCLPgovernment,asyouknow,wasspectacularlyoustedinthegeneralelectiononAugustthe
27th,andIunderstandOrd3wentoutthebackdoorwiththem.
Asapostscripttoallthat,letmereferyoutoadamningreportlastmonthbytheWestAustralian
AuditorGeneralaboutOrdStage2.
TheStateoriginallybudgeted$220millionfortheStage2expansion.
TheAuditorGeneralestimatesitwillendupcosting$334million,anincreaseof52percent,andit
wasdeliveredthreeyearslate.
Andalthoughthe27socialinfrastructureprojectsworthanextra$195millioncameinonbudget,
theirdelivery,too,wasthreeyearslate.
Sowhereistheaccountabilityhere?
TheW.A.AuditorGeneralreportsthatthesustainedsocialandeconomicbenefitsunderpinningthe
decisiontoproceedwiththisextraordinaryinvestment–$529millionintotal–havenotbeen
realised.
ThejustificationforthewholeOrd-EastKimberleyDevelopment,asit’sknown,reliedheavilyon
addressingsocio-economicdisadvantage–forthat,readAboriginaldisadvantage.
ButtheAuditorGeneralsaysthere’snoplantotrackandassessanyimprovementofthat
disadvantage,andIcanunderstandwhy:thatwouldbeasourceofcontinuingembarrassment.
Sure,therewerejobsandplentyoftrainingduringtheconstructionofOrdStage2.
But,astheAuditorGeneralreports,thishasnotbeensustained.
5
NuggetCoombs’biographer,ProfessorTimRowse,recordsinhisbook,ObligedtobeDifficult,thatin
August1967,nearly50yearsago,CoombstourednorthernAustraliatoinspectthesitesofmining,
pastoralandagriculturalinvestment.
Atthattime,hewasabouttoresignasGovernoroftheReserveBank,andconstructionwaswell
underwaytocreatethefirststageoftheOrdRiverIrrigationArea.
Aboriginalpeoplewerebeingdisplacedeverywhereandtheirsacredsitesnotdirectlydestroyedby
constructionworkswouldlaterbesubmergedbythewatersofthenewlycreatedLakeArgyle.
RowserecordsthatCoombsreturnedfromhissurveywonderinghowAboriginalpeoplewouldsurvive
theincipientboominthenorth.
Coombstoldhiscolleagueshecouldnotrejoiceinnortherndevelopmentuntilheknewhow
Aboriginalpeoplewouldfindanhonourableplacewithinthecomingprosperity.
Hismisgivingwaswellheld.
ItraveltoKununurraofteninmyjob,andIcantellyouit’sthesamesadoldstoryforAboriginal
people:abjectpovertyandmisery.
ThisiswhatCoombswasdeeplyconcernedwith.
GodknowshowCoombs,aneconomistbytraining,wouldhavereceivedthatbleakassessmentofOrd
Stage2bytheWAAuditorGeneral.
ThisiswhyheestablishedtheNorthAustralianResearchUnit–toprovidetheresearchcapabilityso
thatinformedpublicpolicydecisionscouldbemade,basedontheeconomic,social,culturaland
politicalrealitiesoftheregion.
IfOrdStage2hasbeenascandalousinvestmentofgovernmentmonies,Ord3hasbeenacruelcurse.
Ithascausedmuchdistressfornativetitleholderswhohavebeentreatedasmerepawns.
AnditspromotionbytheTerritory’sCLPgovernmentalmostdestroyedtheAboriginalAreas
ProtectionAuthority.
BenScambary,inhispaperatNARU,describeshowAAPA’sassessmentoftheKeepRiverPlainasa
sacredsitewasquestionedbytheGilesgovernment.
Thesitewascharacterisedasadreamingtrackinsteadofasacredsite,withtheimplicationthatAAPA
wasactingbeyondtheSacredSitesAct.
ThenotionthattheboardofAAPAcouldstifleamajordevelopmentinitiativeoftheGovernmentwas
met,BenScambarysays,withoutragethat,quote,“permeated,permutatedandseepedthrough
NorthernTerritorygovernmentagencies”.
TheChiefMinisterhimself,AdamGiles,evenwentsofarastosuggestthatsomesacredsiteswere,in
effect,notreal,beingusedbyAAPAasawayofdelayingprojects,ofteninoppositiontowhatthe
TraditionalOwnerswanted.
6
Worse,heaccusedcustodiansofinventingsacredsitestomaximisefinancialbenefittothemfrom
developments.
IknowBenScambary,andworkalongsidehimandhisagencyclosely.
Icompletelyaccepthisdescriptionofthisbehaviour,havingencountereditmyself.
Further,itconvincesmethattheCLP,atitsheart,isasignorantandracisttodayasitwas40yearsago
whenitferociouslyopposedtheintroductionoflandrightslegislation.
TherealdirtyworktosubverttheworkofAAPAthroughtheOrd3sagawasdonebytheChiefofStaff
totheMinisterforCommunityServices,whohadresponsibilityfortheSacredSitesActanditsagency,
AAPA.
ThatChiefofStaff,aCLPmember,wagedwaragainstAAPA.
BenScambaryhascharacterisedhisbehaviouras“acampaignofharassmentandintimidation”that
includedpersonalthreats,unlawfuldirections,negativeaspersionsagainstAAPAboardmembersand
accusationsthattheAuthoritywasanti-development.
ThecampaignbythatChiefofStaffabatedonlyafterhewaschargedwithcorruption–chargesthat
areyettobedealtwithbythecourts.
ThesortofprejudicedemonstratedbytheattacksontheintegrityofAAPAdoesnotbelongjusttothe
electedarmoftheCLPanditsformerarmyofpartyhackadvisors.
ItliesalsointheheartofthebureaucracyhereintheNorthernTerritory.
ScambaryidentifiedatraditionalcultureofbureaucraticoppositiontoIndigenouslandadministration
frameworksthathasitsfoundationsintheearliestconflictsovertheAboriginalLandRightsAct,the
SacredSitesActandtheNativeTitleAct.
NuggetCoombsin1976reflectedonthepersistenceofsuchattitudes,whenhereviewedhiswork
duringthepreviousdecadeaschairoftheCouncilforAboriginalAffairs.
Hequestionedwhetherthedominantwhitesocietymightlackthespiritualqualitiestorecognisethe
realityandvirtueofAboriginalidentity,andtherightofAboriginalpeopletoassertit.
Untilthearrogance,theprejudice,thefearthatstilllargelydeterminesourattitudetowards
Aboriginesgiveswaytohumility,generosityandhumanwarmth,therecanbelittlegroundsforhope
ofaquickresolution,Coombssaidinalecturefortyyearsago.
Hecontinued:“IfthereisatasteofashesonthelipsofwhiteAustraliancivilisation,itisbecausewhile
wehavemasteredacontinentandsubordinatedaproudpeople,wehaveremainedinspiritaliensand
strangerstoitandthem.”
BenScambary’swithstandingthebarbarianswhowantedtoundotheSacredSitesActrevealedan
entrenchedcultureofoppositionbypoliticiansandbureaucratstoAboriginalrightsandinterests.
Andthatoppositioncontinuestocolourthenortherndevelopmentagenda.
7
InmanyspeechesoverthepastfewyearsIhavelamentedtheexclusionofIndigenousinterestsinthe
publicpolicydiscussionsaboutdevelopingthenorth.
Wecontinuetonothaveaproperplaceattheplanningtable,eventhoughweallknowhowcritical
planningis.
WehavebeenmerebystandersasthelikesofAndrewForrestarguethatAboriginallandtenureisan
impedimenttoadvancement.
ForrestwasrecruitedbyanadoringPrimeMinistertoreportonIndigenoustrainingandemployment
programs.
HemanagedtoturnthatexerciseintoanopportunitytotackleAboriginallandrightsintheNorthern
Territoryandcriticiselandcouncils,theNorthernLandCouncilinparticular.
ItgallsmethataWestAustralianbillionaireminer,who’sbroughttroubleonhimselfbythewayhis
companyhasnegotiatednativetitleagreementswiththeYindjibarndipeopleinthePilbara,getsthe
imprimaturoftheCommonwealthgovernmenttolecturethecountryaboutlandtenurebeingan
impedimenttohomeownershiponAboriginalland.
Anyway,where’stheinterestinhomeownershipinremoteAboriginalcommunities?
Where’sthemarketincommunities,whicharehometosomeofthemostimpoverishedpeopleinthe
land?
Fortherecord,letmetellyouthis:theNorthernLandCouncilhasreceivedandprocessedonlyone
applicationforaprivatehousingleaseacrossitswholejurisdiction.
Thatwasfora99-yearleaseatanoutstationcalledBaniyalainnorth-eastArnhemLand.
And,youknowwhat?
Theleasecan’tbeexecuted,andnotbecauseofanyfaultonthepartoftheNLC.
TheNLC’sFullCouncilreadilyagreedtothegrantoftheleaseinMay2014.
TheholduplieswiththeNorthernTerritorygovernmentbecauseofthedictatesofitsPlanningAct.
Underthatlaw,aleasewithatermofmorethan12yearsisconsideredtobeasubdivision,whichin
turnrequiresaplanofsurveytobecompleted,andapprovaloftheDevelopmentConsentAuthority.
InremoteareasoftheNorthernTerritory,theserequirementsaddconsiderableadministrative
burden,costanduncertainty.
That’stheregimebequeathedbytheformerChiefMinisterwhomanagedtoconvincePrimeMinister
TonyAbbottbackinOctober2014tohaveanurgentinvestigationundertheumbrellaofCOAGinto
Indigenouslandadministrationandlanduse.
TheinvestigationwasbornbehindcloseddoorswithoutanypriorconsultationwithIndigenous
people,whowouldhavenoinputintothetermsofreference.
8
Indigenouspeopleandorganisationsfearedtheworst–thattheinvestigationwouldresultinfurther
erosionoflandrightsandnativetitlelegislationthroughmoreefficient“processing”oflanduse
proposalsforthirdpartyinterests.
Finally,swayedbythoseapprehensions,theCommonwealthappointedanExpertIndigenousWorking
GrouptoworkwiththebureaucratsassignedtotheCOAGinvestigation.
TheChiefMinister’sattempttogothroughthebackdoorofCOAGtoattackthelandcouncilswas
checkedbythesafeinputoftheIndigenousWorkingGroup.
Theirstatementattachedtothefinalinvestigationisstillworthquoting.
TheyarguedthatanyapproachonIndigenouslandandwatersthatdoesnotproperlyrecogniseand
respecttraditionalownershipofthatlandwillonlyleadtoillfeeling,projectuncertaintyanddelays.
Suchanapproach,theysaid,hastheeffectofdiminishinghardfoughtgainsandwell-established
principlesaroundthehumanrightsoftraditionalowners.
Suchanapproach,theycontinued,alsohastheeffectofentrenchingthecurrentcycleofwelfare
dependencyandpovertybycreatingacultureofdependencyongovernment.
Icouldnothaveputitbettermyself.
AndIwouldliketopayhomagetothelateBrianWyattforhisprofoundcontributiontotheWorking
Group.
So,inmyshorttermasCEOoftheNorthernLandCouncil–I’vebeeninthejobforjustunderthree
years–we’vehadtoendurethreecalculatedattemptsbytheCommonwealthtochipawayatour
hard-fought-forrights:
FirsttheAndrewForrestreviewofAugust2014.
Then,amonthlater,thereportoftheAustralianParliament’sJointSelectCommitteeonNorthern
Australia,calledPivotNorth,andthesubsequentWhitePaperonDevelopingNorthernAustralia,
deliveredinJune2015andcalledOurNorth,OurFuture.
Onthatone,I’dask,whosenorthandwhosefuture?
AndfinallytherewastheCOAGinvestigationdeliveredinDecemberlastyear.
That’sjusttheCommonwealth’smeddling.
Don’tforgettheNorthernTerritory’smeddlingtoo,withitsreviewoftheSacredSitesActwhichI
referredtoearlier.
ForanorganisationliketheNorthernLandCouncil,underfundedandunder-resourcedasweare,
respondingtothoseincursionshasbeenneedlesslydistractingandacauseofconstantanxietyforour
constituents.
9
Theincessantimpostofreviews,inquiriesandinvestigationssapstheveryessenceofAboriginal
identitybecausebureaucratsandpoliticiansrefusetoreconciletheirrelationshipwithAustralia’sfirst
people–justwhatDrCoombswasattemptingtosettleinthewakeofthe1967referendum.
Mostimportantlythough,andit’sarefrainfromsomeofourcouncilmembers:inthefourdecades
sincetheLandRightsActwasenacted,weAboriginalpeopleintheNorthernTerritoryhavespentso
muchtimegainingandthendefendingourrightsthatwehavenotsecuredourfuture.
That’swhyweattheNLCwantAboriginalpeoplethemselvestohavegreateropportunitytodevelop
theirlandsandwatersinaccordwiththeiraspirationsandvalues.
Onlyafewweeksago,intherunuptothecelebrationofthe50thanniversaryoftheWaveHillWalkoff,theNorthernandCentrallandcouncilscametogetherforanhistoricmeetingatKalkarindjiwhere
northerndevelopmentwashighontheagenda.
ThejointFullCouncilscriticisedtheWhitePaperonDevelopingNorthernAustraliaforitslackof
supportforIndigenous-leddevelopments,andforfailingtorecognisetheaspirationsofAboriginal
peopletodrivethemselvesthedevelopmentoftheirlandsandwaters.
Because,weareintrinsicallyentwinedinthefutureofthenorthandwanttoplayasignificantrolein
thatfuture.
Andthere’stheobvious:weownand/orhavelegallyrecognisedrightsovermorethan90percentof
northernAustralia.
OurmeetingatKalkarindjicalledongovernmentstoestablishacomprehensivestrategytodeliver
economic,ecological,socialandculturalbenefitstoIndigenouspeopleinnorthernAustralia.
Butwecannotliveinhopethatgovernmentswilldeliver.
Lastmonth,themanagementteamsoftheNorthernandCentrallandcouncilscametogetherinAlice
SpringstomapoutaneconomicdevelopmentstrategythatmeetsthediverseneedsofAboriginal
peopleinourregions.
ThegoalistoestablishAboriginal-ownedandcontrolledcommercialeconomies,usingpartsofthe
AboriginalfreeholdestateacrosstheNorthernTerritory.
Theaimistoenabletrueself-determination:havingtheknowledgetomakedecisionsandthepower
toenacttheminaccordwiththeaspirationsandwishesoflandowners.
Whatweareseekingtocreateisapilotcapitalfundthatwoulddevelop,inthefirstinstance,farming
enterprisesonsixselectedsitesofAboriginallandacrosstheNorthernTerritory.
Weseekinitialgovernmentinvestmenttoleverageprivateinvestment.
Securityisthekeyissueforinvestors.
ThebestsecuritythatTraditionalOwnersintheNorthernTerritorycanprovideareleasesunder
section19oftheAboriginalLandRightsAct.
10
Thefinancialsectorhasconfirmedforusthatleasesundersection19canbeusedassecurity.
Commercialisingasection19leaseturnsAboriginallandownersintolandlords.
Itenablesthemtousetheirlandtogenerateincomewithoutlosingcontroloverit.Thisisa
fundamentalsteptowardsself-determinationandself-responsibility.
Therealisationwilldependinitiallyongoodwillandup-frontinvestmentbygovernments.
TheAboriginalsBenefitAccountwouldbeanidealsource.
Giventhesingularfailureofpastpolicies,wesaythatourmodelisworthatestdrive.
TheoutcomewillplaceAboriginalpeopleinthedrivingseatwherewerightlybelong.
RightnowattheNLC,we’regoingfurther,bylayingthefoundationstoestablishaCommunity
DevelopmentUnit,whichhaslocalcontrolandresponsibilityatitscore.
OurprogresshasbeenslowerthanattheCentralLandCouncil,whichhasbeenverysuccessfulinthe
businessofcommunitydevelopmentformorethanadecade.
TheCLCmodel,whichweseektoreplicate,hasasetofprinciplesandprocessesthatbuildselfreliance,strengthencommunitiesandpromotegoodgovernancethroughtheparticipationoflocal
peopleindesigningandimplementingtheirowndevelopmentprojects.
ThecommunitydevelopmentmodelhelpstodirectAboriginalpeoples’ownroyaltyincomestreamsto
projectsthatbothmaintaintheirAboriginalidentity,language,cultureandconnectiontocountryand
strengthentheircapacitytoparticipateinmainstreamAustraliathroughimprovinghealth,education
andemployment.
It’sproventobeinnovativeandextremelysuccessful,andweattheNLCarenowbeginningajourney
downthesamepath.
Itwon’tbeeasy.
Evenwithinourownorganisationthere’vebeenquestionsaboutwhetherthesortsofprojectswhich
communitydevelopmentseekstopromoteshouldreallybetheobligationofgovernments.
Inotherwords,arewelettinggovernmentsoffthehookbyencouragingroyaltyholderstospendtheir
ownmoneyonamenitiesandprogramstobenefittheirowncommunities?
Whetherthat’sthecaseornot,weknowthatit’snotworthwaitingaroundforgovernmentsto
deliver,especiallyinaclimateofreducedfundingintheIndigenousAffairsportfolioandpolicyby
remotecontrol.
Remember,hundredsofmillionsofdollarswerecutfromIndigenousbudgetsinthe2014/15budget
oftheAbbottgovernment.
Andwiththatcameanewadministration,theIndigenousAdvancementStrategy,theIAS,which
channelledmorethan150programspreviouslydeliveredbyarangeofdepartmentsintofivefunding
streams.
11
Theensuingshambleswascompoundedbymachineryofgovernmentchanges,wherebythe
managementofIndigenousaffairswasfoldedintotheDepartmentofPrimeMinisterandCabinet.
ThemovementofIndigenousAffairsintoPM&Chascausedgreatupheaval,asLauraTinglenotedlast
yearinherQuarterlyEssay,“PoliticalAmnesia–HowWeForgottoGovern”.
Tinglewritesaboutalackofexperienceinthebureaucracy,exacerbatedbythewaronIndigenous
self-determinationlaunchedbyPrimeMinisterJohnHowardin1996.
HowardwoulddestroyallvestigesoftheCoombslegacythroughhisattacksonIndigenous
organisations,Indigenousrightsandrevivingoldpoliciesofassimilationandpaternalism.
Hewenttowaronthehistoryofconflictandsettlementofthisnationbyfosteringthehistorywars
andhispromotionofthelikesofKeithWindshuttle.
Fortherecord,thingsdidn’timproveforAboriginalpeopleintheNorthernTerritoryunderPrime
MinistersRuddandGillard.
ButtheconcurrentmoveofIndigenousAffairsintoPM&CandtheintroductionoftheIASlaidthe
groundforaperfectstorm.
Chaosandconfusionhasreigned.
AdamningSenateCommitteeinquiryintotheintroductionoftheIASfoundfundamentalfailures,and
questionedtheevidencebaseforitsdesign.
Theinquiry’sreport,releasedinMarchthisyear,identifiedalackofconsultationandrushedprocesses
withpoortransparency.
TheIAShasallthehallmarksoftheHowardGovernment’sinfamousIntervention:topdown,illconsideredpoliciesworkedoutontherun,withoutconsultation,andimplementedwithcallous
disregardfortheirimpactonIndigenouspeople.
Thesamecouldbesaidaboutthecurrentgovernment’sremotejobsscheme,theCommunity
DevelopmentProgram,CDP.
Onlythisweekit’sbeenrevealedthat“skyrocketing”ratesoffinancialpenaltiesarehavingharshand
discriminatoryimpactsonjobseekersinremoteIndigenouscommunities.
Familiesandchildrenareunfairlypenalised;insomecommunitystores,foodsaleshavedroppedsince
theintroductionoftheCDPinJulylastyear.
TheacronymCDPhasbeencunninglycraftedtosoundeerilylikeCDEP,theCommunityDevelopment
EmploymentProjectsschemecreatedontheadviceofNuggetCoombsbackinthemid-1970s.
Coombs’visionforCDEPwasbeautifullysimple,asDrWillSandersdescribedinhisNuggetCoombs
MemorialLecturein2012:ratherthanpayunemploymentbenefitstolotsofAboriginalpeoplein
remoteareas,itwouldbemoreconstructiveforthemtobeemployedpart-timebylocalIndigenous
organisationstoundertakesociallyusefultasks.
12
Fromthissimpleidea,Sanderssaid,wasbornoneofthemostsignificantand,intime,oneofthe
largestIndigenous-specificprogramsAustraliahasseen.
CDEPunderwentvarioustransformationsafteritsintroductionbytheFraserGovernmentin1977,but
itsdeathwaseventuallyhastenedbytheNorthernTerritoryInterventionin2007.
CDEP’sobituarywaswrittenbytheLaborpartyin2013whentheyreplaceditwiththedisastrous
RJCP,theRemoteJobsandCommunityProgram.
Butbeforethatdramaticchangecameabout,itshouldbeunderstoodthatoutofNugget’sCDEPgrew
theRangerprogramsintheTopEnd,andI’mproudtohavehadaroleintheirdevelopment.
Thefirstformalgatheringtotalkaboutpostlandrightsmanagementanddevelopmentofthe
IndigenousestatetookplaceatNimirilliontheBlythRiverin1999.
About80peopleattendedthatmeeting,hostedbythethenpowerfulBawinangaAboriginal
CorporationthathasarangerprogramforoutstationscalledDjelk.
BAC’sDjelkRangersandthesuccessfulDhimurruAboriginalCorporationinnortheastArnhemLand
werebeaconsandwould,IbelievemakeNuggetproud.
Why?
BecauseCDEPprovidedthevehicleforbuildingremotecapacityandgovernance.
TherangergroupsthatgrewoutofthatarenowsupportedbytheAustralianGovernment.
Atlastcount,therearemorethan2,600Indigenousrangersemployedaroundthecountrytolook
afterthecountry,astheirancestorshavealwaysdone.
TheNLC,asoneoftheoriginatinginstitutionsforthisinitiative,employsmorethan100Rangersand
wesimplycannotmeetthedemandfornewgroupstobeestablished.
Ifitwasn’tforCDEPandtheflexibilityitprovidedtolocalorganisationsandpeople,themost
successfulemploymentopportunityforIndigenouspeoplewouldneverhavegotofftheground.
AndAustraliawouldnotbeabletomeetitsinternationalobligationsformanagementofimportant
ecosystems,norengageIndigenouspeopletodosuch.
Thiswaspublicpolicycreatedinthebush,forthebush.
IbelievethatNuggetopenedthedoorforIndigenouspeopletoleadtheagenda,informedbybest
practiceresearch.
ThishashappenedthroughtheestablishmentoftheNorthAustralianIndigenousLandandSea
ManagementAlliance,orNAILSMA,thathasbeenengagedinresearchandpolicydevelopmentfrom
thegroundupsincethatmeetingatNimirrili.
NAILSAisasmallinstitutionthatIusedtohead,anditwaschairedbyprominentAboriginalleader
PeterYu.
13
OrganisationslikeNAILSMAarecriticalifwearetorealisethepotentialofnorthernAustraliaandits
capacitytoengageandenhancethelivesoftheregion’smostimpoverishedpeople.
Wesimplycannotgoforthwithouttheknowledgeandconsiderationofthesocialandcultural
aspirationsoftheregion’slargestlandowninggroup.
Today,Governmentpoliciescontinuetofailspectacularly,andthatfailureprofoundlyaffectsthe
everydaylivesofourconstituents.
ThestateofhousinginAboriginalcommunitiesisscandalous.
HomelessnessintheNorthernTerritoryisestimatedtobe17timeshigherthananywhereelsein
Australia,affectingoneinfourAboriginalpeople.
Ican’trecallseeingsomanypeoplelivingroughinmyhometownofKatherinewhenIwasgrowingup
inthe80s.
ThepreviousNTGovernmentidentifiedaneedformorethantwothousandnewhousestomeet
currentdemandsinAboriginalcommunities.
Onotherfronts,COAG’sClosingtheGaptargetscontinuetobeelusive.
Thetargetforclosingthegapinlifeexpectancyisnotontrack.
Westillfinishup10yearsyoungerthanthenon-Indigenouspopulation.
Schoolattendanceratesremainstatic.
TheFederalGovernmentcontinuestothrowtensofmillionsofdollarsayearatitsremoteschool
attendancestrategy,tolittleeffect.
InremoteAustralia,theattendancerateofIndigenouschildrenisonly67.4percent-19.1
percentagepointslowerthantheattendanceofIndigenouschildrenaturbanschools.
Nowonderwe’repayingthepriceofstate-sanctioneddysfunctionasAboriginalimprisonmentratesin
theNorthernTerritorysetworldrecords.
AndstilltheFederalGovernmentrefusestohaveCOAGsetanewtargettoclosethegapinAboriginal
imprisonment.
AndnowwehavetheRoyalCommissionintochildprotectionandyouthdetentionsystems,afterFour
CornerslaidbarethehorrorsoftheNorthernTerritory’syouthjusticesystem.
ThisRoyalCommissionwillhaveachievednothingifitdoesnotcomeupwithrealandachievable
measurestoreducethenumbersofyoungAboriginalpeoplebeinglockedup.
Ihaveseriousreservationsaboutthat,giventheimpossiblyshortreportingtimetheCommonwealth
andTerritorygovernmentshaveimposedonthisRoyalCommission.
TheCommissionhassetasideonly25daysforformalhearings.
14
ThatwouldmakeitthespeediestRoyalCommission’sonrecentrecord,andIimplorethetwo
governmentstoagreetoamorerealisticreportingtime.
AtrecentlandcouncilmeetingsIhaveheardthesorrowandangerofourmembers,outragedatthe
treatmentoftheiryouthindetention.
ButtherearehighhopesforthisRoyalCommission,anditwouldbeabetrayalofthosehopesifits
workwasseentobeonce-over-lightly,orasafeel-goodcommunitytalkfest.
Atthisstageofthislectureitmightbetimetolightenupalittleandremindyouthattherehavebeen
acoupleofupliftingmomentsthis40thanniversaryyearoftheTerritory’sAboriginalLandRightsAct.
Thefirstwasinmid-JuneatYarralin,asmallAboriginalcommunityintheVictoriaRiverDistrict.
TheNgarinmanpeoplesettledatYarralinin1973,18monthsaftertheyhadwalkedoffVictoriaRiver
DownsStation,thenownedbytheHookerCorporation,theSydney-basedrealestatecompany.
LiketheownersofVRDstationbeforehim,Hookerhadbeendisgraceful.
LiketheGurindji,theNgarinmanpeoplewerefedupwiththeirpayandconditionsonVRD,andin
April1972theyjoinedtheGurindjiwho’dwalkedoffWaveHillStationin1966.
AftertheynegotiatedtheirreturntoanewcommunityatYarralin,theywereamongthefirsttolodge
aclaimwiththeInterimAboriginalLandCommissionerinSeptember1975,morethanayearbefore
theLandRightsActbecameareality.
TheInterimLandCommissionerrecommendedtheirYarralinclaimtotheCommonwealth,butittook
morethan40yearsbeforetheyreceivedthetitletotheirlands.
Today,themostsubstantialbuildinginYarralinisanewpolicestation,butthestateofthehousing
stockisadisgrace.
Havinggottitletotheirlandafterfourdecadesofwranglingwithpoliticiansandbureaucrats,the
AboriginalpeopleatYarralinarenowhavingtowrestlewiththeofferofa99yeartownshipleaseto
theCommonwealthinordertogetmuch-needednewhousing.
TownshipleaseswereacreatureoftheHowardgovernment’samendmentstotheLandRightsActin
May2006,asmentionedbythelastspeakerofthislectureMarionScrymgour.
TheamendmentsweremeanttofacilitateahigherlevelofeconomicdevelopmentonAboriginalland.
TheAboriginalandTorresStraitIslanderSocialJusticeCommissionerwasontoitstraightaway.
Hereportedthatthe99-yearleasingprovisionhadthepracticaleffectofalienatingIndigenous
communalland.
99years,henoted,wasatleastfourgenerations.
Andwiththepotentialtocreateback-to-backleases,therewasahighprobabilitythattheleases
wouldcontinueinperpetuity.
15
Then,inMay2007theHowardgovernmentestablishedanofficeofExecutiveDirectorofTownship
Leasing,amonthbeforethedeclarationoftheemergencyInterventionintheNorthernTerritory.
TheExecutiveDirectorofTownshipLeading,EDTL,hasmanagedtosecureheadleasesover
communitiesinthetwosmalloff-shorelandcouncils,TiwiandAnindilyakwa.
ButtheAnindilyakwaLandCouncil,whichcoverstheGrooteArchipelagointheGulfofCarpentaria,
arehavingsecondthoughts.
ChairmanTonyWurramarrbalamentsthathissurrendertoaleaseheldbytheEDTLhastakenaway
communityselfcontrol.
Andthat’sbeenourargumentattheNorthernLandCouncil.
TheCommonwealthhasbeensniffingaroundcommunitiesinourregion,tryinghardtosellits
townshipleasingregime,butsofarwithoutsuccess.
AtGunbalanyainwestArnhemLand,theCommonwealthgotasfarassigninganAgreementin
Principle,untiltheTraditionalOwners,fedupwiththehumbug,toldthemtogoaway.
But,notbeforetheNorthernLandCouncilhadhiredalinguistwhotalkedthemthroughthepagesand
pagesoftheEnglishlanguagedocumentwhichconstitutedtheAgreementinPrinciple.
ThatexercisequicklyconvincedusthattheTraditionalOwnershadnorealideaofwhatwasbeingsold
tothem.
ThelinguistlaterreportedtousthathefounditdifficulttoreconcilehowtheTraditionalOwnersat
GunbalanyacouldhavesignedtheAgreementinPrinciple,withtherequiredprincipleoffree,prior
andinformedconsent.
NowtheCommonwealth’sknockingonthedoorofYarralin,whichhasjustgotitslandbackaftera
waitof40years.
HowYarralin,withapopulationaroundthreehundredthatfitstheCommonwealth’smodelfor
townshipleasing,giventhatitenvisagedsecuringleasesoverlargercommunities,isbeyondme.
It’sameasure,Isuppose,oftheCommonwealth’sdesperationtoestablishafootprintwithintheNLC
region.
Thewholebusinessoftownshipleasinghasbeenalong-runningcauseoftensionbetweenthe
CommonwealthandtheNorthernLandCouncil.
OurargumenttotheCommonwealthhasbeen:ifyou’resodesperatetogetalease,whynotdoit
undersection19oftheLandRightsAct,theusualvehicleforleasingAboriginallandwherebythe
TraditionalOwnersthemselves,throughaLandTrust,holdthelease.
Latelastyear,theIndigenousAffairsMinister,SenatorNigelScullion,acknowledgedourconcerns.
HeamendedtheLandRightsActsothatTraditionalOwnersthemselvescanindeedholdthehead
leaseoveratownship.
16
ThatwaytheTraditionalOwnerscandecidewhogetsasub-lease,ratherthansome“whiteshirt”
CommonwealthofficerbasedinCanberra.
Iusedtheterm“whiteshirt”deliberately,becauseit’sbroughtgriefuponusinthepastinthecontext
oftownshipleasing..
It’susedhumorouslybyAboriginalpeopletorefertopublicservantswhoareforeverflyinginand
flyingoutofAboriginalcommunities.
Weusedthetermwhiteshirtsforapostertoeducatecommunitiesabouttheimplicationsof
townshipleasing,anditbroughtuponusthewrathofboththeIndigenousAffairsMinisterandhis
ExecutiveDirectorofTownshipLeasing.
SenatorScullionwasveryformal.
Hetookgraveexceptiontoourpromulgationoftheposter,andheremindedusofourobligations
underthePublicGovernance,PerformanceandAccountabilityAct.
HewroteandwarnedusattheNLCoftheneedtodischargeourdutiesingoodfaithandforaproper
purpose.
Further,hesuggestedthat,giventhefiscalenvironment,weshouldreflectontheuseofgovernment
fundingforwhathesaidwasaninappropriatecampaign.
Allthatgrowlingoveraninnocuousposter!
SuchislifethesedaysforanindependentstatutoryauthorityoftheCommonwealth!
Butbacktothatotherupliftingmomentofthisanniversaryyear,whichfollowedaweekafterthe
handbackceremonyatYarralininJune.
ThetraditionalownersofCoxPeninsulaandnearbyislandsfinallyhadtheirKenbilandclaimrealised
whenPrimeMinisterTurnbullhandedoverthetitledeedsonJunethe21st.
Ithadtaken37yearsaftertheNorthernLandCouncillodgedtheKenbiclaimwiththeAboriginalLand
Commissioner.
KenbiwasthedoozyofalllandclaimsintheNorthernTerritory.
Letmeremindyouthat,earlyon,theCLPgovernmentledbythethenChiefMinisterPaulEveringham
deliberatelypoisonedthewellofpublicopinionagainsttheclaim.
And,eventhoughthatgovernmenthadknownfullwellthattheNorthernLandCouncilwasintending
tolodgetheKenbiclaim,oneofitsfirstacts,inDecember1978,wastopromulgatetownplanning
regulationsaimedatchokingtheclaimbeforeithitthedeskoftheAboriginalLandCommissioner.
TheregulationsgrosslyexpandedtheboundariesoftheCityofDarwintoincorporateCoxPeninsula.
AndbecauselandswithintownscouldneverbeclaimedundertheNorthernTerritoryLandRightsAct,
theCLPGovernmentofPaulEveringhamthoughtithadcleverlythwartedtheKenbiclaim.
17
Thegovernment’stacticswereeventuallyundonebytheHighCourt,whichdirectedtheLand
Commissionertoconsiderwhethertheregulationshadbeenmadefortheulteriorandimproper
purposesofdefeatingtheclaim–andeventuallytheLandCommissionerfoundjustthat.
Evenso,inthesubsequenthearing,thegovernmentrefusedtheLandcommissioner’sorderto
produceallrelevantdocumentsaboutitsplanningdecision.
Again,theHighCourtruledagainstthegovernment.
TheKenbiclaimwasfinallyrecommendedinDecember2000,andbythenfiveLandCommissioners
haddealtwithit.
Anditstilltookmorethan15yearsofcomplexnegotiationsafterthatbeforetheclaimwasfinally
settledinAprilthisyear.
Thewaythesettlementwasnegotiated,DarwincanstillexpandonCoxPeninsula,butAboriginal
peoplethemselveswillbeinchargeofanyfuturedevelopment.
ButtherealtragedyofboththeKenbiandYarralinclaimshasbeenthattheytookfartoolongtobe
realised.
ToomanyAboriginalpeoplediedwaitingtogettheirlandback.
IdetectagrowingandpalpablefrustrationamongAboriginalpeopleintheNorthernTerritorythat
theirhumanrightsandaspirationsareignoredbygovernments,whileatthesametimetheyare
expectedtoaccommodatethispushforeconomicdevelopmentinthenorth.
AtthepasttwoNorthernTerritorygeneralelections,AboriginalvotershaverejectedfirsttheLabor
Partyin2012,andthentheCLP,again,inAugustthisyear.
ItremainstobeseenhowfairdinkumthisnewTerritoryLaborgovernmentwillbe.
TheAboriginalvotecannolongerbetakenforgranted.
Neitherpartyhasyetdemonstratedafitnesstogovernforall.
NuggetCoombs,40yearsago,hintedatdarkconsequencesoffailedIndigenouspolicy.
WemustlearnfromthelessonsthatNugget’slegacyremindsusabout,includingtheroleofCDEP.
TherangerprogramsthatgrewoutofCDEPmanagesomeofthemostimportantbiodiversityrich
ecosystemsleftontheplanet,onbehalfofallhumanity.
AndwemustsupporttheknowledgeandlanguagethatIndigenouspeoplehavegainedinlivingand
managingtheselandscapesforover50,000years.
TheRangerprogramsupholdtherelationshipbetweencountry,peopleandtheirlawsandcustoms.
AndwemustenliventheroleofNuggetCoombs’NorthAustralianResearchUnitandpolishthe
‘Indigenous’lensthatheopenedforus.
18
Mostimportantly,policymustbedevelopedbyAboriginalpeoplewhohavethemosttoloseinthe
currentpolicyparadigm.
IwanttofinishthislecturewithaquotefromalecturebyNuggetCoombstotheUniversityof
WesternAustraliain1976.
Hesaid:“Whatmay,however,beforustodetermine”–thatis,non-Indigenouspeople–“iswhether
Aboriginalachievementiswoninacontextoffriendshipandrespect,orwhetheritmustbefoughtfor,
asinsomanylands,inbitternessandviolence.”
LetusferventlypraythatthewisdomofCoombscansomehowberevivedandcanprevailinthe
achievementofbetterpublicpolicythanwe’veseeninrecentdecades.
Thankyou.
19