North Australia Research Unit (NARU)

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Shooting the banker: essays on ATSIC and self-determination
(Australian National University, North Australia Research Unit (NARU), 1996) Sullivan, Patrick
Aboriginal representatives contemplating an open argument with the Aboriginal and Torres Strait Islander Commission(ATSIC) about funding or representation sometimes caution each other:'don't shoot the banker'. There is little doubt that this volume of essays on ATSIC will be taken in some quarters to be doing just that, but they are intended, and should be viewed, in a more constructive light. They are a collective attempt to analyse this complex organisation after six years of its operation, and to open up debate about reform. The writers adopt a variety of perspectives on the role and impact of ATSIC, and they do not agree with each other on all points. The volume as a whole concentrates on the representative role of ATSIC, its presentation of itself as the supreme Aboriginal representative and political body. It does not echo the fairly common, and often misplaced, criticisms of waste and inefficiency of ATSIC as a development program funding organisation. The writers understand the difficulties faced by staff, councillors and Commissioners in meeting the massive problem of Aboriginal material advancement. They would all feel, however, that ATSIC can also make its problems greater by ignoring much of the advice, experience and community knowledge of other Aboriginal organisations and individuals. The essays in this book span the wide area in Aboriginal politics that ATSIC itself covers. HC (Nugget) Coombs opens the volume with a reminder of the history and origin of the present structure, which is a far cry from the recommendations of his report that led to the abolition of its predecessor, the National Aboriginal Conference (NAC). He is particularly critical of ATSIC's electoral system which neglects to include existing community-based representative organisations. Several of the chapters are concerned with problems of ATSIC Regional Councils. In particular, Rowse's examination of the emerging political consciousness of Regional Councillors complements Finlayson and Dales's analysis of the frustrations of Regional Planning from the participants' perspective, and the tensions this produces between the Regional Councils and ATSIC itself. Smith's chapter concerns the problem of dealing with Aboriginal cultural complexity and diversity in a single structure. The chapter places the regional concerns examined by Rowse, and Finlayson and Dale, in the context of ATSIC's national funding and policy strategies. Both my chapter and Dillon's are concerned also with these 'big picture' issues. I examine ATSIC's role as the political representative of a distinct and separate people which, due to Australia's international obligations, has a right of political self-determination in association with the nation state. I find it is not constituted to perform this well, and has its effectiveness further reduced by having the incompatible responsibility of Aboriginal development and welfare funding. Dillon looks for the reasons for confusion and ineffectiveness of ATSIC's many roles in the turbulent history of its foundation, and the complexities of Aboriginal political life. He concludes ATSIC would do better if it did less, backed off from its claim to be supremely representative, and made better use of its unique position within government, rather than distinct from it. The range of these essays shows clearly one immediate problem with assessing ATSIC - it has no single and easily grasped corporate nature. Any statement about ATSIC must suffer from being aimed at only one of the manifestations of this highly complex organisation to the neglect of others. This is as true for an outside observer as for the varied participants. Even a Regional Council Chairperson may from time to time be heard to refer to their Council's 'trouble with ATSIC', as if they were not themselves ATSIC. Thus, there is a danger of allowing critical points levelled at one aspect of the organisation to overshadow or neglect contradictory elements of the same organisation that are moving in alternative directions. In comparison with previous administrative arrangements ATSIC has been an enormous step forward for indigenous control of important aspects of life. Equally, it has over its first six years of operation provided a proving ground for much indigenous expertise and raised, wittingly or not, high expectations. It is the voices of those pushing at the outer limits of ATSIC's capabilities that, by and large, the authors of the essays in this volume are used to hearing. From these essays on diverse regions and areas of ATSIC's operation some common themes emerge. All papers reveal that greater regionalisation of the ATSIC structure and greater integration with Aboriginal communities and their organisations is called for. Regionalisation is now recognised to be a positive step by many people within ATSIC itself, but this needs to go further than simply increasing local control over development plans. Most of the papers, but in particular Rowse's analysis of the opinions of Regional Councillors, and Finlayson and Dale's description of their planning problems, lead to the conclusion that: • Funding needs to be aggregated much more than at present. Blocks of funds for broad purposes should be made rather than the multitude of single project schemes that now abound. Many block grants could be allocated on at least a triennial basis rather than following the present annual bidding cycle. Problems of accountability can be overcome, as they are in other publicly-funded organisations. • Regional Councils should be integrated much more firmly with existing regional and local community organisations. • If this is done, Regional Councils must be better resourced to act as regional representatives. Regional Plans must be seen as part of the political accommodation between whites and Aborigines in a particular region, not just as money grant wish-lists. This requires greater use of Regional Office resources, and a reexamination of the role of the Regional Office itself. Changes of this nature are being increasingly driven by the need for better representation of Aboriginal interests in the regions, particularly as a result of the Native Title Act 1993 and the mediation requirements of the National Native Title Tribunal. More powerful regional bodies, with more security of funding, which gain a wider role for themselves as representatives, rather than simple distributors of funds, would bring into question ATSIC's national role. While firmly defending itself from outside criticism, ATSIC nationally often does not seem to have a clear policy about its role. • Is it the cradle-to-grave care provider it often suggests it ought be? • Is it the Aboriginal parliament its original conservative critics feared it would be? • Or should it simply be a coordinating and consultation body to render more effective development programs administered by other bodies? The confusion of functions, and resultant frustration, revealed in many of the chapters in this book lead to the conclusion that ATSIC should not try to be all of these things it is neither possible nor required. Its representative structure relies too much on rather simple and formal electoral principles at the national Board level, providing no means of ensuring the necessary synthesis and balancing of community voices. To have a 'representative structure' is not the same as to actually be politically representative. Nor does ATSIC's control of Aboriginal material development programs mean that Aborigines are at last running their own affairs. There is more to self-determination than this. In practical terms as well it cannot fund and administer every aspect of Aboriginal development. It does not have the expertise, and if it were to acquire it this would be a wasteful duplication. As presently structured, it is equally far from being able to offer Aborigines self-government, either regionally or nationally. Self government must necessarily develop regionally. Even if the regional developments suggested here do occur, this will not automatically make the elected board, or the bureaucratic office holders, more authentically representative of Aboriginal voices. A broader forum is required for this. One in which Regional Councils and community organisations can directly participate, as my chapter suggests. Mike Dillon also points out, ATSIC would be more effective accepting itself as part of government - a rather privileged and potentially influential part. It should use its power of closeness to government, coupled with its relative independence, to influence more effectively the other Commonwealth program and policy providers. It could then strategically allow the emergence of a more independent forum for the diversity of Aboriginal political views. This may be the role it eventually accepts at the national level- the coordinator of national Aboriginal development policy. With a regional structure more effectively empowered to reflect regional needs it could perform this function well, and contribute its voice as the arm of Aboriginal material development - one powerful voice among many of the legitimate Aboriginal representative organisations throughout the country.
Access status: Open Access ,
Assimilation versus self-determination : no contest
(Australian National University, North Australia Research Unit (NARU), 1996) Dodson, Mick
H.C.(Nugget) Coombs is known as the whitefella's most senior elder. In the Foreword to his book, Aboriginal Autonomy, in 1994 I wrote the following: On the morning just prior to the commencement of the meeting, Nugget Coombs, who had been invited to attend, arrived to wish us well and briefly renew acquaintances with many old Aboriginal and Islander friends. There were warm greetings and well wishing until shortly Nugget departed. A young Aboriginal man of perhaps 16 or 17 years inquired of me as to 'who was that old man?' My response was, 'that old man must be respected; he is the whitefella's most senior elder. The context of these comments was the Eva Valley meeting in 1993, when the Indigenous people met to discuss the proposed legislative response to the High Court's native title decision. That old man wished us well in our deliberations - the High Court recognised our rights to our land under Indigenous law. It was an act of justice that in shaping an entire environment of thought and understanding to which this man made such a substantial contribution, he was there, still fighting, still holding hope, still with us. Why does this man, this whitefella, draw such respect and love from all Indigenous Australians who know his story? We honour him as a 'senior man', an 'elder'; we honour him in our terms - because he has always honoured us in ours. He has always seen who we are and listened to our voices. The greatness of Nugget Coombs lies in the fact that he did this at a time when it was fashionable to simply tell us what to do, to tell us what the whitefella wanted and what the whitefella expected of us. There has been much discussion of late about assimilation and self determination and I intend to add to the discussion. The really essential difference between the two tracks assimilation and self-determination and the difference that Nugget Coombs made to Aboriginal Affairs in Australia is revealed in the following statement by Paul Hasluck: We do not want a submerged caste or any other social pariahs in our community but want a homogeneous society. Assimilation was then, just as it is now, about what whitefellas want. First, what they want for themselves and second, what they want for us. I believe that the real essence of Nugget's contribution is that he cared about us, thought about what we wanted, what we saw as our futures, what is our concept of what is our place in our country. Nugget's achievements are testimony to this fact. His work is proof of the rewards of developing policy within a broader social context. Nugget's understanding of the importance of the principle of self-determination to effect and appropriate policy making in Aboriginal affairs is, I believe, echoed in his work in the arts and at the Reserve Bank. Nugget was responsible, for example, for the establishment of the Aboriginal Arts Board which was set up in 1973. That signalled the beginning of Indigenous control of public funding for the arts. It was also an example of Nugget's keenness to see Australians include 'Aboriginality' within their sense of national heritage-a genuine act of inclusion. Nugget's integrated approach to policy development is also illustrated by his appointment to the chair of the Australian Conservation Foundation. In this position Nugget was informed by his interest in environmental matters and their connection with Indigenous rights. In the current climate of fiscal restraint and the deficit black hole (I sometimes wonder why it has to be black) Nugget Coombs' approach to public policy has much to offer. Today, Nugget's ways could well be seen as radical. Nugget once said that the power of Indigenous elders may not amount to more than a right to be consulted and listened to with respect. I am not saying we should all agree with Nugget's ways-what I am saying is that now, more than ever before, we should listen to what he has to say and take lessons from his understanding.
Access status: Open Access ,
The Northern Territory's intergovernment relations
(Australian National University, North Australia Research Unit (NARU), 1990) Warhurst, John
There is a tendency in academic studies and in the media for inordinate attention to be paid to the competitive and conflictual face of government and politics in federal systems. This is so for a number of reasons. Conflict is played up by representatives of governments because it is easy to blame 'the other side'. State leaders play the game of 'Canberra bashing' because their local media appreciate it, and because it rallies their constituents behind them. Conflict becomes the public face of federalism, too, because disagreement and argument are more newsworthy. This is true of most reporting of politics. The public image of relations between the Northern Territory and the Commonwealth government is certainly no exception to this general rule. In fact, it has often been said that these relations are even more conflictual than is usually the case in Australian federalism, because of the long history of 'benign neglect' and 'colonial' domination of the Northern Territory by the Commonwealth of Australia, and because of the fact that since self-government was given to the Northern Territory in 1978, the Commonwealth government has held back for itself a number of significant responsibilities. A recent discussion of Northern Territory government and politics sums up the standard view: The relations between the Commonwealth and the state governments can normally best be described as a stable condition of mutual suspicion. But relations between the Territory and the Commonwealth go beyond even that. The Northern Territory government exhibits a hostile suspicion towards Canberra that appears to verge on paranoia but in reality reflects the longer term economic and political difficulties faced by the Territory. 'Canberra' assumes an importance in Territory politics that is unique among Australian states, 'Canberra' is the fulcrum of Territory politics. This is so for both constitutional and economic reasons (Gerritsen and Jaensch 1986, 152). This study sets out to paint a fuller picture of the place of the Northern Territory in the Australian federal system. In so doing it seeks to redress the balance somewhat by concentrating not on the public face of federalism which is played out in parliament, in press releases and in election campaigns and which subsequently dominates media reports, but on the private face which is daily life for public servants and politicians. This is the world of intergovernmental relations in which representatives of the Commonwealth, states and territories work alongside one another and are in frequent contact with one another making and implementing public policies across the whole spectrum of government activities. Most of these representatives are public servants; some are ministers. Public servants as a whole do not have a high profile so much of this activity is out of the public eye, unrecorded and hence unreported. Government is a collective term for a large number of individuals: a team of ministers supported by thousands of public servants and other government employees organised into departments and agencies. Intergovernment relations means, therefore, any contact or joint activity between any part of two or more governments. In the Northern Territory's case it may be an informal meeting between the Chief Minister and the Prime Minister (Paul Everingham recalls a fleeting conversation which he had with the Prime Minister between two passing cars in Darwin); it may be a telephone call between a Northern Territory public servant based in Darwin and a Commonwealth public servant based in Canberra; it may be two such officers located in Alice Springs or one of the smaller Northern Territory towns or communities cooperating in a joint program. Some of the relations are formalised: a meeting of the Premiers Conference and Loan Council in Canberra; a workshop for technical experts anywhere in Australia; a Northern Territory Treasury submission to the Commonwealth Grants Commission or to the Industries Assistance Commission. The possibilities are endless. Intergovernmental relations encompass a web of activities, which the professional literature disarmingly calls interaction. This study is about all of these relations. The four major chapters are about the most important elements in the Northern Territory's intergovernmental relations: (i) intergovernmental meetings of many types between ministers and/or officers; (ii)the role in intergovernmental relations of the Northern Territory's central agencies: the Chief Minister's department and the Treasury; (iii) relations which take place in the Northern Territory between a part of the Northern Territory government and a part of the Commonwealth government which is located in the Northern Territory; (iv) the part played in intergovernmental relations by Northern Territory Government representatives in Canberra, including Federal parliamentarians and lobbyists. The aim of this study is to describe as many aspects of the relationship as possible and to generalise about them. As there is not one relationship but very many, generalisation is difficult and potentially dangerous. However, rather than focus on one or two departments, institutions or policy fields the study aims to explore the diversity and variety in the relationships. Where a choice has had to be made, depth has been sacrificed for breadth. Participants whom I have interviewed will all know much more about their particular field than I do, but I hope to have gained a perspective of the whole which very few, if any, participants possess.
Access status: Open Access ,
The team at the top: ministers in the Northern Territory
(Australian National University, North Australia Research unit (NARU), 1982) Weller, Patrick; Sanders, Will
With this study the North Australia Research Unit introduces a new series of monographs designed for the publication of research on Northern Australian topics. The monographs replace an earlier series, the North Australia Research Bulletin which is to be discontinued when number 8 is published during 1982. Other monographs in the new series which are at an advanced stage of preparation include Steven Thiele's study of the Aboriginal-owned cattle station, Yugul, in the Northern Territory, a report on the National Aboriginal Conference election in the Northern Territory in 1981, and a selection of papers dealing with service delivery to Aboriginal outstations from the Research Unit's 1981 conference. The Unit, located in Darwin, is a part of the Research School of Pacific Studies of the Australian National University. It provides services for visitors and maintains its own research program. Patrick Weller, senior lecturer in political science at the Australian National University, visited the Unit in 1981 when he and Will Sanders, one of the Unit's staff, carried out the interviews on which this monograph is based. As field director of the Unit I would like to join with them in acknowledging the cooperation of Northern Territory ministers and departmental heads, all of whom gave generously of their time. To all of them we owe thanks and particularly to the Chief Minister, Paul Everingham. Our thanks go too to Debbie Hill who set the text on the computer.
Access status: Open Access ,
The NAC election in the Northern Territory 1981
(Australian National University, North Australia Research unit (NARU), 1982) Loveday, Peter; Jaensch, Dean
In the course of our study of the Northern Territory election in 1980 we learned that the NAC election, tentatively scheduled for late 1980, would probably be put off for some time and it then became possible for us to make arrangements to study it too, building on the experience gained and the work done in the Territory election study. The NAC Executive in Canberra gave us permission to observe it officially, subject to the agreement of the Australian Electoral Office which was to carry out the election and that too was willingly given - and with it the fullest cooperation. To all of the people involved we give our thanks. The study of any election is a team effort of necessity and the work reported here is no exception. The principal authors take responsibility for the text but they are glad to acknowledge the help of others, notably Deborah Wade-Marshall, Josi Crashaw, Sue McLean, Valda Juckums, Ron Slee, Will Sanders, Rolf Gerritsen, Jon Altman and Ian McLeod, all of whom helped gather the data on which the account is based. Others cooperated in a variety of ways, for example in providing information and advice and to them too thanks are due - especially the candidates themselves, people connected with the NAC and other Aboriginal organisations and the Aboriginal polling officials. People in the Electoral Office and the Department of Aboriginal Affairs to whom our thanks are due include Debbie Vickery, Brian Howard, Ray Hegarty, Keith Pearson, Jeremy Long, John Quelch and Kaspar Sheppers. For help in preparing the text we also thank Debbie Hill, Gillian O'Loghlin, Elaine Sommer and Gail Hewitt.
Access status: Open Access ,
The challenge of Northern regions
(Australian National University, North Australia Research unit (NARU), 1991) Jull, Peter; Roberts, Sally
The challenge of northern regions is becoming clearer every day. They have less to do with physical conquest of nature than with subtle social and political choices. The final response of our 'developed' and 'advanced' industrial nations remains uncertain, however. What is most remarkable may be the fact that despite different national traditions and geography, the challenges and responses are similar among the Organisation for Economic Cooperation and Development (OECD) countries surveyed here. The papers in this volume are each part-report and part-interpretation. Each is written by a specialist with many years of field study and reflection behind his or her comments. Each author was asked to think about current political and socio-economic issues in the north - the north of Australia, the north of North America and northernmost Europe. On 12 July 1990, all the authors spoke to their papers in a one-day forum where each could question the others. The northern public was invited to join us. The results stimulated the participants as well as many in the audience from whom we have had follow-up requests for more discussion, more information, etc. No more important role vis-a-vis the basic issues in northern life could be played by the North Australia Research Unit (NARU), Darwin.
Access status: Open Access ,
Territorians or mobile Australians? a profile of the urban electorate
(Australian National University, North Australia research Unit (NARU), 1983) Jaensch, Dean; Loveday, Peter
At the end of the first world war the Northern Territory contained less than 4,000 whites and a larger, but uncounted, population of Aborigines. The non-Aboriginal population remained small throughout the 1920s and 1930s, and at the time of the 1947 Census it had not quite reached 11,000. Rapid growth came in the 1960s, and vas marked by successive Censuses: 44,500 in 1961 (Aboriginals were counted for the first time), 56,500 in 1966, 85,700 in 1971, 98,200 in 1976, and 122,800 in 1981. If this steady growth continues, the Territory's population will have begun to match that of the slowly-qrowing Tasmania some time in the middle of the coming century. Long before then it will have become a considerable force in national politics. For the Territory is politically distinctive. One in every four Territorians is an Aborigine, a proportion vastly greater than in any Australian State. only a small proportion of the white population was born in the Territory, and most of its immigrants are very recent indeed. The Territory's citizens have political concerns which the citizens of the States were last preoccupied with a century ago: the building of railways and of roads, isolation, the lack of educational facilities for their children, the provision of water-supplies, and the other imperatives of a frontier society in an often harsh environment. Such a society is worth studying tor its own sake. But in addition it provides a fascinating contrast with more settled societies, which have been the source of most of the 'findings' of the social sciences. A rapidly growing society made up of a diversity of immigrants can offer its citizens few of the community structures and support systems that abound in older, established societies. If a person's political stance comes to some extent from his social milieu, what happens when people leave these milieux and go to a town where no political tradition of any consequence exists and where colleagues and neighbours have made similar departures? How much of anyone's political outlook is portable, how much relates to a particular environment? The authors of this well-designed study show that much is indeed portable. The Territory's party system is clearly a member of the family of Australian party systems, with the ALP facing a fusion of the Liberal and National Country Parties, here labelled the Country Liberal Party. And party allegiances formed elsewhere can be transferred to Territory politics with a minimum of refurbishing. But - and it is an important saver - there is no inevitability about the transfer. The smaller size of the constituencies, the intimacy of life in what are small towns, the practical roads-and-bridges focus of much politicking, the lack of a powerful union movement, the high level of government employment - all these factors operate to subdue the socio- economic ambience in which Australian political life customarily takes place. New arrivals are able either to reconsider their politics or to operate politically in different ways at the Federal level and at the Territory level. To study these processes in any detail requires the chief instrument of the modern social scientist, the sample survey, as well as the patience and dedication necessary if survey research techniques are to be used at all. The Northern Territory survey that is at the heart of this book was designed both to bring Territorians under scrutiny and also to allow comparisons with Australians in the rest of the nation. It has served its purpose well, and the authors and editors have been able to produce a book that provides new insights on the political behaviour of all Australians, not simply those adventurous citizens that have chosen to live and work in the Northern Territory.
Access status: Open Access ,
Taking Stock: Aboriginal autonomy through enterprise
(Australian National University, North Australia Research Unit (NARU), 1993) Wells, Samantha Jane
The Arnhem Land Progress Association (ALPA) has operated stores for up to twenty years in many Arnhem Land communities. It started by buying ration stores formerly operated by the Methodist Overseas Mission. These were mainly small, poorly stocked counter stores, generally operated on an intermittent basis by the mission staff and their families. The organisation at both the local level and at the central administrative level has gone through many changes during its twenty years in operation including its formal separation from the Church, the building up and expansion of the retail store infrastructure in each ALPA member community, and various changes in direction and philosophy under the leadership of the different ALPA Group Managers (now called Executive Directors). In an era when the operation of retail stores in remote communities has proved extremely risky (see Young 1984), ALPA has succeeded in providing the communities with efficient, well stocked, modem retail stores with many ancillary services. Since its inception ALPA has seen itself as an alternative development agency catering for Aboriginal communities both in Arnhem Land and in the Kimberley region of Western Australia. Not content with providing an essential retail service, ALPA has viewed the stores and the profits generated by the stores as a means of providing training, scholarships and other educational opportunities for Aboriginal people, allocating starter loans for family and clan businesses, and underwriting community projects in the settlements in which it operates. ALPA has provided store training services to other organisations such as Anangu Winkiku Stores (AWS) in Alice Springs and non-ALPA Aboriginal communities across the north of Australia. Throughout its history the Association has remained fiercely proud of its economic independence of government. Although ALPA has successfully operated stores in Aboriginal communities for over twenty years, there are many unresolved issues facing the organisation today. Many of these issues are not directly concerned with ALPA the organisation, although there are some which pertain directly to the nature and style of operation of this particular organisation. Problems have arisen because of the difficulties associated with service delivery to remote Aboriginal communities and the conflict between the 'money side' as opposed to the 'community side' of the organisation providing these services. Sometimes the problems are really part of the politics in settlements or the typical grumblings made by most store customers in any community, Aboriginal or non Aboriginal. And sometimes the problems are part of the wider questions about the national and Territory economy, the politics of Aboriginal autonomy, Aboriginal land rights, the apparent patemalisms which dominate many non-Aboriginal dealings with Aboriginal people and so on. As well as being proud of what the organisation has achieved and wanting this documented as a celebration of its twenty years in operation, ALPA was concerned about resolving the issues and questions affecting the stores and the Association today. For this reason the Association sought an evaluation of its work hoping that the exercise would give some pointers on how best to deal with these issues while simultaneously achieving its constitutional objective of 'the social and economic development of Aboriginal people'. After negotiations with NARU, ALPA agreed to fund a large part of a research project with the following objectives: • to produce a well documented history of ALPA, its activities and achievements over the last twenty years; • to evaluate the objectives, goals and aspirations of ALPA, the relevance of those objectives, and how they have changed over time; • to evaluate the effectiveness, efficiency and impacts of ALPA programs; • to make comparisons with similar associations both in northern Australia and overseas; • to make recommendations and suggest strategies for change. These objectives were to be met by writing a history and a general historical evaluation of ALPA, preparing a draft evaluation of the Association for the Directors of ALPA, and preparing a comparative report of similar organisations. The research team assembled to work on the project comprised David Lea (Executive Director, NARU), Samantha Wells (Research Assistant, NARU), Greg Crough (Senior Research Fellow, NARU), Christine Christophersen (Research Assistant, NARU), Elspeth Young (Associate Professor, Australian Defence Force Academy, Canberra) and Ritchie Howitt (Lecturer, Macquarie University). Data for the project were collected from eclectic sources. Some, especially in the early stages, were obtained from background reading on outback stores, indigenous enterprises and culture contact in general, particularly those readings concerned with reconciling western thought and business practice with Aboriginal thought and modes of production. This was followed by an in-depth study of the files of ALPA, archival material and of other organisations both in Australia and North America. Much of the information collected for the project was derived from structured and unstructured inteiViews with individuals and groups in homes, offices and communities; formal and informal discussions; meetings with communities, organisations and groups; and observation of events. For reasons of confidentiality, many names of people spoken to, especially in the communities, have been withheld. Rough drafts of confidential reports were presented to ALPA's Board of Directors in July 1992. ALPA subsequently withdrew from the project leaving NARU to complete it. It is likely that NARU will publish Young's Support Organisations/or Aboriginal Stores: the Arnhem Land Progress Association and its counterparts in Central Australia and the North American Arctic, and Crough and Christophersen's Some Perspectives on the Arnhem Land Progress Association in the near future. This historical account of the Amhem Land Progress Association reflects the organisation's pride in its survival, operations and growth over the last twenty years. It also reflects ALPA's concern about where it is going and where it should go. It is to the credit of the Association that it was eager to learn from the past and to share its experiences in what is a difficult and sensitive field. It is therefore appropriate that I should first thank the Directors, management and staff of ALPA who supported this project and assisted me in many ways, in particular Stuart McMillan, George Rawnsley, Henry Harper, Lori Katarski, Donald Nulupani and David Djalangi. I would also like to thank the various ALPA representatives who read the final draft of the history manuscript and submitted comments in order to prevent or reconcile any discrepancies before publishing the work. The store managers and their spouses in various Aboriginal communities provided me with much time, hospitality and knowledge. This was greatly appreciated as was the tolerance of the storeworlcers as I nosed in and out of aisles or interrupted tea breaks for a chat. It is impossible to mention all the people who shared insights with me about their communities, lives, the stores and the Association but I would like to acknowledge this and for being given permission to experience first hand a remarlcable land, people and culture. Other people (see Appendix 2) in towns around Australia also deserve mention for agreeing to be interviewed and making these interviews as pleasant and rewarding as possible. Stephen Evans was able to provide much insight and infonnation into the worlcings of ALPA for which I am exceedingly grateful. The North Australia Research Unit provided a congenial 'home' while I was working on this book. I am extremely appreciative of the research team's support, criticisms and discussions throughout the project. Especially David Lea who read and reread drafts providing constructive criticism, helpful suggestions and fmding resting places for many wandering apostrophes. Other NARU staff and visitors to the Unit provided much assistance throughout the project, in particular Ann Webb (copy editing and production), Sally Roberts and Colleen Pyne (library research), Meriel Weir (computing), Nicki Hanssen, Janet Sincock, Jann King and Toni Bauman. NARU provided not just institutional help but financial assistance, technical help and hours of stimulating debate. The Northern Territory Archives Service, the State Library and the Uniting Church provided much assistance and made the research task a little easier. My family, friends, housemates and associates all deserve mention for coping with the stress of what, at times, became a particularly difficult project. Thanks also to 'Green Ant' who designed the cover. Finally my special thanks to Adrian Deville who served as editor, inspirationalist and friend the whole way through. Note: NARU observes a number of publishing conventions in its publications. These are set out in a style booklet which is readily available. However, because many quotations are used throughout this book, it should be pointed out that material in quotations is never changed unless a series of full-stops indicates that something is omitted or square brackets indicate something has been inserted within them. Thus, within the quotations, there are frequent infelicities of style, grammar and spellings. Abbreviations are often different from those used in the text for example there are various spellings of 'Yolngu' and Amhem Land is sometimes presented as one word. These quotations are used because they are relevant or important to the text I feel that the context will make any conflicts or ambiguities between text and quotations clear.
Access status: Open Access ,
Point of order! the legistlative assembly of the Northern Territory 1974-1994
(Legistlative Assembly of the Northern Territory, 1994) Jaensch, Dean; Wade-Marshall, Deborah
In 1992 I was pleased to conumss10n Dr Dean Jaensch and Deborah Wade Marshall to compile a history of the Legislative Assembly of the Northern Territory to celebrate its first 20 years and for the work to be published on the occasion of the 20th anniversary of the Legislative Assembly in November 1994. This period, 1974-1994, marks a time of important development of the Northern Territory as a body politic. The story unfolded in this volume is essentially one of progress which spans the inception of representative democracy achieved with the first fully-elected Assembly in 1974, the measure of responsible government gained at the time of self-government in 1978 to the commencement of the Seventh Assembly and the completion of the new Parliament House building. This important period of constitutional development has laid the foundation for the future Statehood for the Northern Territory. I believe that there would be no-one better qualified to write a history of the Northern Territory Parliament than Dr Jaensch. He has a long history as a commentator on Territory politics and electoral issues and is a distinguished researcher, editor and author on politics and political history. Dr Jaensch's work is complemented by Deborah Wade-Marshall's contribution. Deborah is a long-term Territorian with a sound background in research and she carried out her research and co-writing work on this book from the Parliamentary Library. The main purpose of this project is to attract the interest of Territorians in the work and role of the Legislative Assembly in its first 20 years. The finished work is a narrative and analytical study which will inform the present and future voters about how the Northern Territory Parliament operates and its central place in the constitutional development of the Northern Territory. This work is not only a comprehensive compendium of the history of the Assembly, its Members and the precincts, but an accurate assessment of the role the Assembly has in the context of the Territory and the Australian political environment. It also contains a wealth of statistical and biographical detail and will be a valuable research tool for students. As a measure of the development of the Legislative Assembly since 1974, my personal recollection is of the primitive accommodation and limited support facilities which Members tolerated in the early days when even basic photocopying facilities were unknown and all back bench Members shared a single office with two telephones. Those privations are now remedied by the completion of the new Parliament House building which will serve parliamentary democracy in the Territory 'for the next 100 years. No doubt, Members, their staff and constituents will take extreme pride in the development of the Parliament during these 20 years. When reflecting on the past 20 years of the operation of the Assembly, we must not forget the efforts of the former Members of both the Legislative Council and the Legislative Assembly and the important roles they played in the political and constitutional development of the Territory. This work provides a natural completion to the Short History of the Legislative Council which was written by Fred Walker, Clerk of the Legislative Assembly from 1974 to 1977. The written history of Parliament in the Northern Territory now spans the 'shirt sleeves Parliament' held in a war-time shed to the newest Parliamentary building in the Commonwealth and chronicles a developing Territory rapidly taking its rightful place among the States. As my term as Speaker of the Legislative Assembly is drawing to a close, I am able to reflect happily on my involvement with the Assembly during the past 20 years and, in particular, during my time as Speaker, I shall fondly remember my association with Dean Jaensch and Deborah Wade-Marshall during the period they worked on this book.
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Natural parents: North Australia-Philipines relations
(Australian National University, North Australia Research Unit (NARU), 1998) May, Ronald James
Relations between the Philippines and northern Australia date back to the early years of European settlement. Filipinos made a significant contribution to the development of north Australia throughout the nineteenth century, while a small number of Australians were involved in commerce in the Philippines. In north Australia, where some Filipinos intermarried with Aboriginal people and European settlers, this heritage is reflected in the incidence of Filipino names in present-day northern communities. In more recent years the Northern Territory, and to a lesser extent northern communities in Western Australia and Queensland, have come to see their futures inextricably linked to developments in the countries to their immediate north, particularly Indonesia and the Philippines, and have sought increasingly to strengthen social, cultural and sporting, as well as commercial, ties. For Australians, some commonalities of language, predominant religion, Western cultural experience, and democratic traditions have contributed to making the Philippines especially attractive as a place to visit and to do business with; for Filipinos, Australia has been seen since the 1970s as a desirable destination for migration and, increasingly, as a source of education and training. Over the past decade, trade between Australia and the Philippines has grown substantially, if from a low base, and the Philippines has become the fourth largest recipient of Australian. development assistance. For north Australia, trade with the Philippines is still small, and dominated by live cattle exports to the Philippines. This is in large part due to the small market and relatively low level of manufacturing activity which north Australia represents, but the infrequency and high cost of shipping and lack of direct air links are also major inhibiting factors. Nevertheless, the possibilities for expanded trade and investment flows, particularly through the provision of services and through joint ventures in small and medium-sized enterprises, appear to be considerable. With the issue of expanded commercial relations primarily in mind, and with a delegation from the Northern Territory about to visit the Philippines in conjunction with Australia's 'All the Best from Australia' presentation in Manila, a workshop on 'North Australia-Philippines Relations' was held at the Australian National University's North Australia Research Unit on 25 September 1998, in association with the Northern Territory University's Centre for Southeast Asian Studies and the NT International Business Council. The workshop followed an earlier conference on 'Government-Business Relations Between Eastern Indonesia and the Northern Territory'. This volume is an outcome of the September 1998 workshop. An opening chapter by Philippines Minister and Consul General in Australia, Edwin Bael, provides an overview of relations between Australia and the Philippines, with particular reference to north Australia and the southern Philippine island of Mindanao (regions which share an interest in the development of the Brunei/ Indonesia! Malaysia/Philippines-East ASEAN Growth Area (BIMP-EAGA). Subsequent chapters by Dennis Shoesmith, R.J. May, and William Brummitt and Frances Perkins (the latter from the Department of Foreign Mfairs and Trade's East Asia Analytical Unit) review, respectively, the historical context of north Australia-Philippines relations and the political and economic contexts of the Philippines. Relations between the Northern Territory and the Philippines are surveyed in the chapter by Ian Watts, from the NT Department of Asian Relations, Trade and Industry (DART!). Darwin-resident businessman Pascual Tantengco then presents the viewpoint of a Filipino businessman operating in north Australia, while papers by Michael Kilgariff (of the NT International Business Council), William Cordingley, Steve Ellison, Chris Healey and Kym Handberg discuss various aspects of north Australian business and academic relations with the Philippines, including the live cattle trade, which has maintained its importance in the Australia-Philippines relationship notwithstanding the effects of the Asian financial crisis (which have severely affected the trade between Australia and Indonesia). Further chapters survey the role and functions of the Australia-Philippines Business Council, the principal features of trade relations between Australia and the Philipines, and the main components of Australia's development assistance programme in the Philippines. Finally, The Philippines Honorary Consul General for the Northern Territory, Robert Matthewson, provides an overview of the workshop proceedings and suggests some possible lines of future development. Collectively, the various papers give some indication of the extent and dynamics of north Australia-Philippines relations and point to the possibilities of a much more detailed study of the relationship. In organizing the workshop and bringing this volume to publication, I am indebted to my longstanding Filipinist NTU colleague, Dennis Shoesmith, and to the encouragement and support received from NARU director Christine Fletcher and NARU staff Janet Sincock, Melissa Sue and Paula Fennel; DARTI officers Ian Watts, Patrick Markwick-Smith, John McCue and Steve Sanderson; director of DFAT's Northern Territory office, Keith Gardiner(who presented the Brurmnitt and Perkins paper in the absence of the author) and Ross Ainsworth, of the Northern Territory Livestock Exporters Association, who was unable to attend the workshop due to commitments in the Philippines. Bill Cordingley, of Meat and Livestock Australia, though not present at the workshop, provided a paper at very short notice, and Aurora Quinn, of the Office of Ethnic Affairs, Department of the Chief Minister, Darwin, kindly agreed to the reproduction of sections of her 'Background on Philippines-born Territorians'. In Canberra, Claire Smith and Allison Ley carried the burden of converting a collection of written and recorded presentations into a publication, with characteristic efficiency.
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Mobile polling and the Aboriginal vote: The federal election
(North Australia Research Unit, Australian National University, 1985) Loveday, Peter; Jaensch, Dean
The study reported in this volume was conducted with the permissions and support of the Australian Electoral Commission and it is published as a report to the Commission. Similar reports on mobile polling in the 1980 and 1983 Northern territory elections - under Territory legislation - have been published in Dean Jaensch and P Loveday, eds, Under One Flag, The 1980 Northern Territory Election (George Allen and Unwin and NARU, 1981) and in P. Loveday and Dean Jaench, eds, A Landslide Election, The NT1983 (NARU, 1984). The arrangement with the Electoral Commission gave NARU observes official status with the polling teams. Detailed preparations for accompanying the polling teams were worked out with Divisional Returning Officers or their deputies in Queensland, the Northern Territory and Western Australia. We wish to acknowledge the unstinting cooperation of David Muffett, Terry Emerson, Brian Howard and Danny Wallace and the general support given by Andrej Cirulis. The careful work of the observers should also be acknowledged: Deborah Wade-Marshall, Raelene Cummings, Rolf Gerritsen, Ciaran O'Faircheallaigh, will Sanders, Wayne Mollah and Scott Cane. And the work of support staff in NARU who prepared the manuscript - Elaine Sommer, Denise Goodfellow and Robyn Darben - is also acknowledged with thanks. The author was also one of the observers and, with help from Deborah Wade-Marshall, coordinator of the observer team.
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An evaluation of store enterprises in Aboriginal communities
(Australian National University, North Australia Research Unit, 1993) Young, Elspeth; Grough, Greg; Christopherson, Christine
Contemporary retail stores in remote aboriginal communities share a number of key characteristics. First, and most importantly, they provide a vitally important service, unlike any other because it is used by every resident and because without it people would not have access to basic sustenance. Secondly, they operate under difficult conditions. The physical isolation and sparseness of settlement affect their basic operations, disrupting supply lines and hindering them from cutting costs through strategies such as bulk buying and storage. As a result their goods are expensive and often of low quality, the range of merchandise is limited, and frequent and lengthy delays in meeting the needs of their customers are common. With high proportions of people of aboriginal origin among their staff and customers, their particular cultural perceptions and social and economic characteristics strongly influence the way in which the stores operate. Such considerations affect, amongst other things, the types of goods demanded, the behaviour and expectations of customers, staff attitudes to work, levels of staff expertise and understanding of the complexities of financial operations. Problems stemming from poor management and financial incompetence or misdealings are all too common, as are those related to the level of control which aboriginal people can exert over this service. Finally, although these retail stores primarily offer a service, they are also potential money-spinners, enterprises which can bring in much needed cash to resource-poor communities. This can, as I have documented elsewhere (Young 1982, 1984), cause conflicts of interest, the resolution of which may ultimately disadvantage the aboriginal customers.
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Tourism and gold in Kakadu
(Australian National University, North Australia Research Unit, 1991) Knapman, Bruce; Stanley, Owen; Lea, John
This monograph is a revised version of two reports presented in late 1990 to the Commonwealth Government’s Resource Assessment Commission Inquiry into the Kakadu Conservation Zone, and includes a literature review undertaken by the authors for the same inquiry (Knapman et al 1990; Stanley & Knapman 1990). <...> Kakadu National Park is recognised nationally and internationally as a place possessing outstanding natural and cultural values. Largely because of this, it is one of Australia's major tourist magnets. Rapidly increasing numbers of visitors from overseas, interstate and within the Northern Territory (NT) have come to the Park since the declaration of Stage 1 in 1979. From an economics perspective, it provides onsite services to these people, while simultaneously providing offsite benefits to non-visitors who gain satisfaction from knowing that the environmental and cultural resources of the Park are protected. The latter group may exhibit willingness to pay for the right to use Kakadu at a later date (so-called option value), or they may have no intention of visiting but be willing to pay just to know that Kak:adu is preserved (so-called existence value). The total economic value of the Park, then, consists of actual use value derived from visiting plus option value plus existence value (Pearce et a/1989). A cost-benefit analysis of the Park as a national environmental resource would seek to estimate these values. Additionally, use of Kakadu by visitors generates secondary or regional economic impacts. Expenditures by tourists and tourism-associated expenditure within the private and public sectors become gains to the regional suppliers of the relevant goods and services, so that another major aspect of the economic significance of the Park is its contribution to the economic development of the Northern Territory. It is this aspect which is addressed here. Chapter 2 presents quantitative estimates of the regional economic impact of Kakadu National Park generated by the use of newly acquired expenditure data and a model of the NT economy known as ORANI-NT. The chapter goes on to examine past, present and prospective tourism and recreation use of the 1986 Stage 3 extension of the Park, focusing on the regional economic impact of alternative development plans, and utilising qualitative data gained from interviews with operators in the tourist industry as well as other interested parties. An outline of the broader debate concerning tourism and recreation use in Kakadu is found in an up-to-date literature review in Appendix 1. Kakadu's natural resources also include non-renewable stocks of minerals. Uranium has been mined at Ranger since 1980; and there is an on-going controversy over, and a Commonwealth inquiry into, a proposal to mine gold, platinum and palladium at Coronation Hill in the so-called Conservation Zone, a 47.5 km2 area of Crown land within Stage 3 but presently excluded from the Park (RAC 1990). A cost-benefit analysis of the Coronation Hill project would be the standard means for establishing its worth from a national perspective: if every social benefit and social cost associated with the project were identified and appropriately evaluated, and if there were an excess of benefits over costs, then the project would make society as a whole better off in the sense that it would be possible to increase every individual's welfare. <...>
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Kava in the North: a study of Kava in Arnhem Land Aboriginal communities
(Australian National University, North Australia Research Unit, 1985) Alexander, Kerryn
A refreshing astringent drink which produces nothing more than a tingling sensation in the mucous membranes of the mouth and a short-lived numbness of the tongue (Holmes, 1979a, 107). Kava has medicinal qualities of not a little power. Drunk to excess it acts like opium, and the habit formed cannot easily be broken. The habitual drinker may be recognised by his fishy-looking and the scaly appearance-of his skin (Adams, 117-20). Since early European travellers first came into contact with kava, there have been major discrepancies in descriptions of the kava drinking experience. Reported effects range from references to kava as a powerful habit forming drug, to a substance that produces a mild but pleasant state of tranquillity This controversy continues to exist with the current use of kava in Arnhem Land Aboriginal communities. Some people associated with these communities support and encourage kava use, while others are totally opposed to it. Many uninformed rumours are circulating concerning the physical properties, medical effects and contemporary uses of kava in Arnhem Land. This paper provides factual information on kava's chemical and pharmacological properties, refers to its use in the South Pacific and outlines factors concerning its current use in Arnhem Land Aboriginal communities. <…>
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Economic enterprises in Aboriginal Communities in the Northern Territory
(Australian National University, North Australia Research Unit, 1988-10) Ellanna, Linda; Loveday, Peter; Stanley, Owen; Young, Elspeth
The objective of the present study was to identify opportunities for Aboriginal controlled economic enterprise in selected Aboriginal communities in the Northern Territory. For this the following terms of reference were agreed to: 1. To determine the potential in specific Aboriginal communities and groups for (a) expanding any existing economic enterprises, and (b) initiating new enterprises. 2. To identify different existing or possible forms for local management and control and to report on their appropriateness and acceptability (e.g. by council, by cooperative, by private firm, by community association). 3. To assess the employment needs of projects and how these might be met. 4. To determine the character and extent of outside assistance that may be needed in respect of (a) training (b) capital and other resources such as equipment (c) managerial and technical expertise (d) marketing (e) funding, including government program funding and to identify sources from which this assistance may be obtained. These terms meant that it was necessary to ascertain the nature of economic systems (market and subsistence sectors) in contemporary Aboriginal communities in the Northern Territory in light of potential economic enterprise development; and to determine the influence of Aboriginal demography and social and cultural institutions on the planning, development, and potential success of economic enterprises in selected Aboriginal communities in the Northern Territory.
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Economy and people in the North
(Australian National University, North Australia Research Unit, 1985) Loveday, Peter; Wade-Marshal, Deborah
The papers in this volume were first presented at a conference held in Darwin late in 1983 under the auspices of the North Australia Research Unit. The title of the conference, Economy and People in the North, was chosen in the hope that a wide range of topics connected with northern development would be dealt with together. With the help of speakers from the departments of the Northern Territory Government and from other universities, the aim was achieved.
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Budgeting for statehood in the Northern Territory
(Australian National University, North Australia Research Unit, 1997) Fletcher, Christine; Walsh, Cliff
The theme of this important collection of essays is "Budgeting for Statehood in the Northern Territory". All of the contributors were asked to consider some of the unique aspects of the Northern Territory when studying the budgeting aspects associated with achieving Statehood. Constitutional development lies at the heart of this process.The Draft Constitution During the August 1996 sittings of Parliament in the Northern Territory, an historic occasion occurred with the tabling of the Territory's Draft Constitution. The document was the Final Draft Constitution as prepared by the Northern Territory Legislative Assembly Sessional Committee on Constitutional Development. It was with a great deal of pride that I tabled that historic document. For me, together with a dedicated group of people, it represented a decade's work. The constitutional process towards producing the draft document began in 1985 and drew support from a small group of Territory politicians from both sides of the Assembly, and their support staff. There was widespread community consultation and it was a slow, sometimes tedious, often frustrating process, involving much research, a lot of paper, many public hearings and submissions, and lengthy debate and deliberations within the Committee. In total, the Sessional Committee on Constitutional Development received 141 written submissions and numerous other verbal submissions. The Committee now has a regular mailing list of close to 4000 and produced a number of publications to its credit and has been involved in many related activities. Overall, the process of constitution-making has been an open, democratic process, with maximum opportunity for input by all the community. As Territorians, we are charged not only with writing our own constitution, but also ensuring that the homegrown constitution will also benefit future Territory societies. The Constitution will be required to operate in the interests of all sections of the Territory community and it is obviously important to produce a workable document. The views of all Territorians are important as we move towards Statehood in the year 2001. <...>
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Constitutional change in the 1900s: Proceedings of the 1992 constitutional conference held in Darwin
(Australian National University, North Australia Research Unit, 1994) Gray, Rick; Lea, David; Roberts, Sally
These papers were delivered at the conference, Constitutional Change in the 1990s organised by the Northern Territory Legislative Assembly's Sessional Committee on Constitutional Development from 4-6 October 1992 in Darwin. The editors have made only minor alterations, not affecting - we believe - the substance of the original papers. We have corrected typographical errors, deleted repetitions and rhetorical excursions appropriate to a conference paper but not to a proceedings, and attempted to obtain as much consistency of style and styling as possible. Most papers were written by the speakers and distributed at the conference. A few have been edited from typescripts. All papers have been shown to contributors before and after the final editing and final versions approved by them. Obviously these papers reflect a wide range of opinions and positions. Content and conclusions are not those of either the Sessional Committee, the North Australia Research Unit or the editors. Naturally, however, we are grateful to the authors for writing these papers, for the Sessional Committee for initiating the conference, the sponsors and supporters of the conference I and the Working Committee who planned the conference and the Conference Secretariat who ran the conference. In particular we would like to thank Graham Nicholson, Peter Jull, Yoga Harichandran, Nicole White and the staff of the Legislative Assembly who provided logistical support to the conference. Thanks are also due to Janet Sincock for the final wordprocessing and to Ann Webb for coordinating production.
Access status: Open Access ,
Aboriginal women and violence
(Australian National University, North Australia Research Unit, 1991) Bolger, Audrey
A number of writers have commented on the level of violence in Aboriginal communities and on the use of physical force, both for punishing wrongdoers and as a means of resolving disputes. For instance Hiatt (1965) and Williams (1987) have both analysed conflict resolution in communities in the Northern Territory and although physical force was certainly not the only means of settling disputes, it was prominent in each analysis. Other writers (Burbank 1980, Bell 1983, McKnight 1986) have noted the involvement of women in physical disputes, not only in fighting back when attacked but also in initiating aggression or acting as helpers or partners when fights develop. At Numbulwar over a period of eighteen months during 1977-8 Burbank recorded 101 fights involving 104 initial combatants, representing about half of the adult population. Of these combatants 51 were women and 53 were men, suggesting that women were involved in fighting almost as often as men and 47 per cent of all fights were between husband and wife. This might suggest female victimisation but Burbank found that in the 37 fights between women and men where she was able to identify the aggressor, 20 were initiated by men and 17 by women (Burbank 1980, 129-36). However, two further points in Burbank's analysis are worth noting. One is that whereas a woman was more likely to initiate a fight only by threatening behaviour such as picking up a weapon, destroying an object or throwing something at her opponent, a man would often launch an immediate physical attack on a woman (1980, 131). The second point is that no matter who initiated a fight between a woman and a man, the woman was more likely to be injured or to suffer greater injury than the man (1980, 146).
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Almost Australians: the politics of Northern Territory self-government
(Australian National University, North Australia Research Unit, 1990) Heatley, Alistair
This book grew out of my long-standing interest in Northern Territory politics and constitutional development and my association with statehood policy-formulation as a Ministerial Officer for the Chief Minister in 1986 and 1987. Both Chief Ministers for whom I worked, Ian Tuxworth and Steve Hatton, were supportive of my historical research and made available the resources that enabled me to assemble the necessary archival and interview material on which the book is based. While it should not need to be stated, the historical analysis and interpretation herein are mine alone. In any case, the bulk of the study deals with events antecedent to 1986. Many other people made this book possible, not all of whom I could possibly mention here. But, in particular, I would like to thank the fifty or so people - all in some way major participants in the politics of self-government and statehood - who freely offered their recollections and often documentary material. Without their involvement, such a recent historical process, constrained by the usual archival limitations, would have been difficult to deal with in any adequate academic way. My appreciation is also extended to all those people - in many depositories in both Canberra and Darwin - who assisted me with the location of relevant information. Finally, to Dee Sarev, colleague and friend, who contributed so much to the preparation of the manuscript, I owe a deep debt of gratitude.

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