604
Volume 22(2)
Forum - Legal Perspectives on Reconciliation
T H E IM P O R T A N C E O F F O R M A L R E C O N C IL IA T IO N
E V E L Y N SCOTT*
In th e s e c o n d h a l f o f 1 9 9 9 , th e C o u n c il fo r A b o r ig in a l R e c o n c ilia t io n w ill
e m b a r k o n o n e o f th e m o s t c o m p r e h e n s iv e r o u n d s o f p u b lic c o n s u lta tio n e v e r
u n d e r ta k e n in th is c o u n tr y .
D r a ft
D ocum ent
fo r
O n t h e t a b l e i s t h e C o u n c i l ’s c a r e f u l l y c o n s i d e r e d
R e c o n c ilia tio n ,
c o n s is tin g
of
a
D e c la r a tio n
fo r
R e c o n c ilia tio n , a s w e ll a s a s e t o f N a tio n a l S tr a te g ie s to A d v a n c e R e c o n c ilia tio n
w h ic h p r o v id e g u id a n c e fo r fu tu r e a c tio n in a c c o r d a n c e w it h th e p r in c ip le s a n d
in ju n c tio n s c o n t a in e d in th e D e c la r a tio n .
T h e c o n s u lta tio n s w ill s e e k to e n g a g e
a ll
ta sk
se c to r s
o f A u s tr a lia n
s o c ie ty
in
th e
o f p r o d u c in g
a
fin a l D o c u m e n t
c a p a b le o f w h o le h e a r te d e n d o r s e m e n t b y th e p e o p le a n d th e g o v e r n m e n ts o f th e
n a tio n .
T h e C o u n c il b e lie v e s th a t th is p r o c e s s m u s t b e c o m p le t e d in tim e fo r th e
D ocum ent
to
becom e
a
p o w er fu l
sy m b o l
of
A u s t r a l i a ’s
c o m m itm e n t
r e c o n c ilia t io n a s w e e n te r th e s e c o n d c e n tu r y o f th e F e d e r a tio n .
to
It s h o u l d b e a
m a jo r h ig h lig h t o f th e c e n te n a r y o f F e d e r a tio n c e le b r a tio n s , b e c a u s e o f its a b ilit y
to
u n ite
a n d u p lift th e
n a tio n
and
to
c o n fir m
A u s t r a l i a ’s m a t u r e
sta tu s
as
a
c iv ilis e d d e m o c r a c y .
I. T H E D O C U M E N T IN C O N T E X T
An
agreed
docum ent
of
r e c o n c ilia tio n
w o u ld
not
A u s tr a lia 's s e a r c h fo r g e n u in e r e c o n c ilia t io n b e t w e e n
I n d ig e n o u s p e o p le s .
have
a c h ie v e d
tr u e
rep resen t
th e
end
of
its I n d ig e n o u s a n d n o n -
T o o m a n y th in g s r e m a in to b e d o n e b e f o r e w e c a n s a y w e
and
la s tin g
r e c o n c ilia tio n .
The
C o u n c il b e lie v e s
d e b a te
s h o u ld c o n t in u e a b o u t o th e r i s s u e s n o t d ir e c t ly d e a lt w it h in th e D o c u m e n t , s u c h
as
in c r e a se d
I n d ig e n o u s
r e p r e s e n ta tio n
in
A u s tr a lia n
p a r lia m e n ts ,
s e lf-
d e te r m in a tio n , a n d r e c o g n it io n a n d r e s p e c t fo r I n d ig e n o u s p e o p le s in a p r e a m b le
to th e A u s tr a lia n C o n s titu tio n .
B u t, a s a c r u c ia l s te p o n th e j o u r n e y t o w a r d s
r e c o n c ilia tio n , th e D o c u m e n t o f R e c o n c ilia tio n w ill b e c o m e a b e a c o n , a t o n c e
p r o c la im in g
a
n a tio n a l
c o m m itm e n t
A u s tr a lia n s a n d th e ir g o v e r n m e n ts .
and
lig h tin g
th e
p a th
ahead
fo r
a ll
T h is d o c u m e n t w ill r e p r e se n t a c o n c lu s io n
Chairperson, Council for Aboriginal Reconciliation.
1999
UNSW Law Journal
605
o n ly in the se n se that it w ill en d the d ec a d e -lo n g form al p r o c e ss o f re c o n c ilia tio n
that P arliam ent ask ed the C o u n cil for A b o rig in a l R e c o n c ilia tio n to su p erv ise. In
the P ream b le to the Council for Aboriginal Reconciliation Act 1991 (C th) ( “the
A c t”), P arliam ent n o te d that there had n ev er b een a form al p r o c e ss o f
re c o n c ilia tio n in A u stralia d esp ite the d isp o sse ssio n and d isp ersa l o f m an y
A b o rig in a l and T orres Strait Islander p e o p le from their traditional lan d s after
m a n y th ou san d s o f years o f o ccu p a n cy . P arliam ent u n a n im o u sly agreed that it
w a s ‘m o st d e sir a b le ’ that su ch re c o n c ilia tio n b e a c h iev ed b y the ce n ten a ry o f
F ed eration , and created the C o u n cil for A b o rig in a l R e c o n c ilia tio n to p ro m o te the
p ro ce ss. S e c tio n 6 (1 ) o f the A c t liste d the fu n ctio n s o f th e C o u n cil, in c lu d in g
tw o su b -cla u se s m o st relev a n t to th is d isc u ssio n . T h e y w ere:
(g) to consult Aborigines and Torres Strait Islanders and the wider Australian
Cominunity on whether reconciliation would be advanced by a formal document or
formal documents of reconciliation; and
(h) after that consultation, to report to the Minister on the views of Aborigines and
Torres Strait Islanders and of the wider Australian community as to whether such a
document or documents would benefit the Australian community as a whole, and if
the Council considers that there would be such a benefit, to make recommendations
to the Minister on the nature and content of, and manner of giving effect to, such a
document or documents.
S in ce the A c t w a s p a ssed , the C o u n cil h as m et its m andate a cro ss a v ery broad
front. It h as p rom oted th e g o a ls o f r e c o n c ilia tio n at all le v e ls o f go v ern m en t, in
th e other in stitu tio n s o f so c ie ty , and in lo c a l co m m u n ities all o v er the country.
M u ch p rogress h as b e e n m ad e tow ard s g en u in e r e co n cilia tio n . T h e C o u n cil
b e lie v e s that to d a y there is a real m o v e m en t tow ards r e c o n c ilia tio n a m o n g
ordinary A u stralian p e o p le . It b e lie v e s that a sim ilar m o m en tu m h a s eith er
em erg ed , or is em erg in g , at the in stitu tion al le v e l (a m o n g state and lo c a l
g o v ern m en ts, ed u ca tio n sy stem s, ch u rch es, u n ion and em p lo y er b o d ie s and k e y
co m m u n ity o rg a n isa tio n s) and at the in d ivid u al en terp rise le v e l in th e private
sector. T h e se are v er y p o sitiv e d ev elo p m en ts, and the n atio n a l en d o rsem en t o f a
D e cla ra tio n for R e c o n c ilia tio n w o u ld act as a m ajor ’slin gsh ot', p r o p e llin g th o se
d e v elo p m en ts into the tw en ty -first century w ith r e n e w ed force.
T e c h n ic a lly , C o u n cil h as p rob ab ly alread y m et the d o cu m en t co n su lta tio n
req u irem en ts o f s 6 (1 ). It h as d isc u sse d all a sp ects o f the d o cu m en t issu e
e x te n s iv e ly w ith A T S IC , w ith other In d igen o u s o rg a n isa tio n s, w ith w id er
co m m u n ity b o d ie s and, o f cou rse, w ith the A u stralian p e o p le in p reparation for
the A u stralian R e c o n c ilia tio n C o n v en tio n in 1 9 9 7 .
A t that co n v e n tio n ,
particip an ts u rged the C o u n cil to p rod u ce a n atio n a l d o cu m en t or d o cu m en ts in
tim e for the cen ten ary o f F ed eration . A t around the sam e tim e, the C o u n cil
r e c e iv e d the resu lts o f a n ation al o p in io n su rvey w h ic h fou n d , inter alia , that
m ore than three-quarters o f A u stralian p e o p le ap proved the id ea o f a n a tio n a l
d ocu m en t. T h e C o u n cil, o b v io u sly , h as co n clu d e d that a n a tio n a l d o cu m en t
w o u ld in d ee d a d van ce re co n cilia tio n .
It is n o w ex ten d in g its c o n su lta tiv e
fu n ctio n to en su re that the m a x im u m num ber o f p e o p le h a v e an op p ortu n ity to
con trib u te to the fin al form and co n ten t o f the d ocu m en t.
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II. THE DECLARATION FOR RECONCILIATION
Speaking with one voice, we the people of Australia, of many origins as we are,
make a commitment to go on together recognising the gift of one another's presence.
We value the unique status of Aboriginal and Torres Strait Islander peoples as the
original owners and custodians of traditional lands and waters.
We respect and recognise continuing customary laws, beliefs and traditions.
And through the land and its first peoples, we may taste this spirituality and rejoice
in its grandeur.
We acknowledge this land was colonised without the consent of the original
inhabitants.
Our nation must have the courage to own the truth, to heal the wounds of its past so
that we can move on together at peace with ourselves.
And so we take this step: as one part of the nation expresses its sorrow and
profoundly regrets the injustices of the past, so the other part accepts the apology
and forgives.
Our new journey then begins. We must learn our shared history, walk together and
grow together to enrich our understanding.
We desire a future where all Australians enjoy equal rights and share opportunities
and responsibilities according to their aspirations.
And so, we pledge ourselves to stop injustice, address disadvantage and respect the
right of Aboriginal and Torres Strait Islander peoples to determine their own
destinies.
Therefore, we stand proud as a united Australia that respects this land of ours,
values the Aboriginal and Torres Strait Islander heritage, and provides justice and
equity for all.
T h e C ou n cil's draft D ecla ra tio n for R e c o n c ilia tio n co v e rs, in ju s t 11 short
paragraphs, the iss u e s that th e C o u n cil b e lie v e s are esse n tia l to a ro b u st and
m ea n in g fu l statem en t o f th is nation's p o sitio n . It w a s fe lt that the p e o p le sh o u ld
b e g iv e n an op p o rtu n ity to co m m en t on the p ro p o sa ls b efo r e the C o u n cil m a k es
its form al reco m m en d a tio n s to govern m en t.
T here are so m e p o in ts in the
N a tio n a l D e c la ra tio n that are lik e ly to stim u late so m e liv e ly d eb ate in the p u b lic
arena; and the C o u n cil w ill w e lc o m e su ch deb ate as lo n g as it rem ains
co n stru ctiv e and ap p reciates the h istoric sig n ific a n c e o f w h a t is p ro p o sed . T h e
C o u n cil a lso b e lie v e s that paragraphs 9 and 10 o f the D e c la ra tio n for
R e c o n c ilia tio n are v er y im portant statem en ts o f co m m itm en t to the restoration o f
b a sic righ ts to A u stralia's In d ig en o u s p e o p le s. T h e C o u n cil h o p e s and e x p e c ts
that in an y d eb ate o n the draft, it w ill b e a g iv e n that A b o rig in a l and T orres Strait
Island er p e o p le s d o n o t e n jo y the fu ll m easure o f the b a sic righ ts o f c itiz e n sh ip ,
le t a lo n e th eir righ ts as the origin al cu sto d ia n s o f the country. Paragraphs 9 and
10 are a lso the p rin cip al fo u n d ation o f the sec o n d part o f the D e cla ra tio n for
R e c o n c ilia tio n , the N a tio n a l S trategies.
1999
UNSW Law Journal
607
III. THE NATIONAL STRATEGIES TO ADVANCE
RECONCILIATION
T h e draft N a tio n a l S trategies p ro v id e g u id elin es for future a ctio n in four k ey
areas. A s th e in trod u ction to the S trategies states, the d e v e lo p e d S tra teg ies w ill
"map ou t th e step s w e m u st take as w e w ork to g eth er tow ard s a r e c o n c ile d
nation". "By su p p ortin g th ese strategies," the d ocu m en t co n tin u e s, "govern m en ts,
b u sin e sse s, org a n isa tio n s and in d iv id u a ls from b o th A b o rig in a l and T orres Strait
Islander p e o p le s and the w id er co m m u n ity can m ak e p ractical co m m itm e n ts to
r e c o n c ilia tio n ” . P artnerships b e tw e e n all sectors o f our co m m u n ity are the b est
w a y to en su re that the D ecla ra tio n for R e c o n c ilia tio n b e c o m e s a re a lity in
p eo p le's liv e s. S p a ce d o e s n ot p erm it a fu ll d isc u ssio n o f the S tra teg ies here, but
b rie fly th ey are:
1.
A N a tio n a l S trategy for E co n o m ic In d ep en d en ce, to fa cilita te greater
e c o n o m ic in d ep en d en ce and se lf-relia n ce in the liv e s o f A b o rig in a l and
T orres Strait Islander p e o p le s.
2.
A N a tio n a l Strategy to A d d ress A b o rig in a l and T orres Strait Islander
D isa d v a n ta g e, w h ic h b u ild s on the first strategy and see k s to a c h iev e
better o u tco m es, from b oth govern m en t and n o n -g o v ern m e n t se r v ic e s,
in the fie ld s o f h ealth , ed u cation , em p lo y m en t, h o u sin g , la w and ju stic e .
3.
A N a tio n a l Strategy to P rom ote R e c o g n itio n o f A b o rig in a l and T orres
Strait Islander R igh ts, w h ic h w ill fo c u s o n th e righ ts o f In d ig en o u s
p e o p le s b oth as c itiz e n s su ch as p articip ation in d e c isio n -m a k in g ,
eq u a lity o f so c ia l and ec o n o m ic co n d itio n s etc and as the o rig in a l
cu sto d ia n s o f A u stralia w ith a co n tin u in g cultural h eritage, in c lu d in g a
u n iq u e rela tio n sh ip w ith the land and w aters o f A u stralia.
4.
A N a tio n a l S trategy to S u stain the R e c o n c ilia tio n P ro c ess, w h ic h w ill
se e k to m ain tain the strength o f the e x istin g p e o p le ’s m o v e m e n t for
r e c o n c ilia tio n , en co u ra g e in stitu tion s and groups to e sta b lish
appropriate p ro to c o ls and sy m b o ls o f re co n cilia tio n , and se e k
re c o g n itio n o f th e D ecla ra tio n for R e c o n c ilia tio n in th e C o n stitu tio n s o f
the C o m m o n w ea lth , S tates and T erritories.
IV. THE NEXT STEPS
T h e C o u n c il h as e sta b lish e d a rigorou s m e ch a n ism to en su re that all fe ed b a c k
from the p u b lic co n su lta tio n s on the draft d ocu m en t is record ed and a n a ly se d in
order to in fo rm the C ou n cil's w ork on a fin al draft. T h e C o u n cil w ill la u n ch its
fin a l p ro p o sa ls ab out a d o cu m en t at a m ajor p u b lic e v e n t to b e h eld in S y d n e y in
M a y 2 0 0 0 , w h ic h is ju st four m on th s b efo re the O ly m p ic G a m es and so m e se v e n
m on th s b efo r e the actual cen ten ary o f F ed eration on 1 January 2 0 0 1 , w h ic h is
a lso the date o n w h ic h the C o u n cil it s e lf c e a se s to ex ist. In the w e e k s and
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Volume 22(2)
m on th s after the ev en t, the C o u n cil w ill co n tin u e to se e k the support and
co m m itm en t o f all A u stralian s and their rep resen tative b o d ie s to th e p rin c ip les
and strategies set ou t in its fin al d ocu m en t p ro p o sa ls. T h e C o u n cil m a y esta b lish
registers w h ic h w ill en a b le in d iv id u a ls, groups and o rg a n isa tio n s to fo rm a lly
record th eir support and com m itm en t.