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CABINET IN CONFIDENCE

Copy No . 4 3

C A B I N E T M I N U T E

Canber ra , A p r i l 1989

No. 12426

Submiss ion No. 6369 A b o r i g i n a l and To r r e s S t r a i tI s l a n d e r Commission (ATSIC) : The

ay Ahead

F u r t h e r t o Ca b ine t Minu te 12415 o f A p r i l 1989

t h e C a b i n e t a g re e d t h a t : -

a ) t h e approach s e t o u t i n p a r a g r a p h s t o 12 and

a t Attachmen t B t o t h e Su b m i s s i o n be e n d o r s e d as

t h e r e s p o n s e t o t h e m a j o r i t y recommendat ions o f

t h e S e n a t e S e l e c t Commit tee on t h e

A d m i n i s t r a t i o no f

A b o r i g i n a lA f f a i r s , and t h a t

t h e ATSIC l e g i s l a t i o n be amended a c c o r d i n g l y ;

(b ) t h e proposed amendments s e t o u t i n pa r a g r a ph 14

and a t At tachment D t o t h e Submiss ion t o d e a l

w i t h i s s u e s a r i s i n g from t h e r e p o r t s o f t h e

A udi to r- G e ne r a l , t h e Depar tment o f Finance and

t h e Pu b l i c S e r v i c e Commiss ioner be approved ;

c ) t h e mach inery and minor changes a t At tachment E

t o t h e Submiss ion be approved ;

(d ) At tachment s B and C t o t h e Submiss ion fo rm t h e

b a s i s o f a fo rma l r e s p o n s e t o t h e S e n a t e S e l e c t

Comm i t t ee s r ecommenda t ions ;

2

This document is the property of the ustralian Government and is not to be copied or reproduced

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2 .

No. 12426 Contd)

e ) a Sta tement be i s s u e d a long t h e l i n e s o f t h a t a t

At tachment A t o t h e Submiss ion i nc lud ing t h e

i mp l e me n t a t i o n s t r a t e g y i n p a rag rap h 3 t o t h e

Submiss ion ; and

f ) amendments be made t o t h e Aborig inal Development

Commission Act 198 a s a t Attachmen t F t o t h e

Submiss ion .

2 . The Ca b ine t f u r t h e r a g r e e d t h a t t h e ATSIC

l e g i s l a t i o n be amended t o : -

a ) r e q u i r e t h e M i n i s t e r t o i s s u e f i n a n c i a l

d i r e c t i o n s t o t h e Commission e q u i v a l e n t t o t h e

Finance D i r e c t i o n s which a pp ly t o Departments o f

S t a t e ) ;

b ) i nc lude a p r o v i s i o n which e x p l i c i t l y d e f i n e s

non-compl iance w i t h M i n i s t e r i a l D i r e c t i o n s as

c o n s t i t u t i n g misbe ha v iou r f o r t h e p u rp o s e s o f

c l a u s e 31;

c ) a l low t h e M i n i s t e r unde r c l a u s e 95 t o make

e l e c t i o n r u l e s which p r o v i d e f o r t emporary

appo in tmen t o f a new Commiss ioner t o r e p l a c e a

Commissioner who ha s been d i s mi s s ed f o r

misbehav iour ;

d ) p r ov ide t h a t a p e r s o n whose appo in tmen t a s

Commissioner has been t e r m i n a t e d f o r

mi s b e h a v i o u r be no t e l i g i b l e t o s t a n d f o r

e l e c t i o n a t t h e nex t e l e c t i o n ;

This document is the property of the ustralian Government and is not to be copied or re r u c d

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CABIN ET 1 N CON Fl DENCE3 .

No. 12426 Contd)

3 .

e ) i n c l u d e a p r o v i s i o n r e q u i r i n g t h e Chief

Execut ive O f f i c e r o fATSIC

t o r e p o r t t o t h e

M i n i s t e r ; and

f ) i n c l u d e p r o v i s i o n s s i m i l r t o p o i n t s and 10 i n

At tachment F t o t h e Su b m i s s i o n r e q u i r i n g

r eco v e ry o f g r a n t s and gove r n ing d i s p o s a l o f

a s s e t s .

The C a b i n e t no te d t h a t : -

a ) t h e M i n i s t e r f o r A b o r i g i n a l A f f a i r s w i l l s e t t l e

w i t h t h e Prime M i n i s t e r , t h e A t to r ne y - G e ne r a l

and t h e M i n i s t e r f o r A d m i n i s t r a t i v e Serv i ce s

a s p e c t s o f t h e e l e c t o r a l p r o c e s s e s t o be

d e v e l o p e d w i th t h e A u s t r a l i a n E l e c t o r a l

Commission ;

b ) a g a i n s t t h e backg round o f t h e i s s u e s r a i s e d i n

t h e v a r i o u s i n v e s t i g a t i o n s i n t o t h e

a d m i n i s t r a t i o n o f A b o r i g i n a l A f f a i r s , t h e r e i s

a v i t a l need f o r a d e q u a t e r e s o u r c i n g o f ATSIC i

i t i s t o succeed ;

c ) t h e M i n i s t e r f o r A b o r i g i n a l A f f a i r s w i l l g i v e

wide d i s t r i b u t i o n t o t h e St a t emen t r e f e r r e d t o

i n p a r a g r a ph l e ) above and t o t h a t o f t h e Pr ime

M i n i s t e r ; and

d ) t h e M i n i s t e r f o r A b o r i g i n a l A f f a i r s w i l l b r i n g

fo rw a rd any f u r t h e r p r o p o s a l s f o r amendment t h a t

may a r i s e from o u t s t a n d i n g r e p o r t s .

~ G w v \e c r e t r v t o Cabin t

This document is the property of the ustralian Government an IS not to e op ed or repro uced


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Co p y N o 4

C A B I N E T M I N U T E

Canber ra , 3 A p r i l 1989

No 12415

Su b m i s s i o n No. 6369 A bor ig ina l and To r r e s S t r a i t I s l a n d e r

Commission ATSIC): The Way Ahead

The C a b i n e t commenced c o n s i d e r a t i o n o f t h e

Su b m i s s i o n and a g r e e d t o resume d i s c u s s i o n e i t h e r l a t e r i n

t h e day o r on Tuesday 4 A p r i l 1989 f o l l o w i n g f u r t h e r a d v i c e

from t h e M i n i s t e r f o r A bor ig ina l A f f a i r s o n : -

a ) m i n i s t e r i a l powers u n d e r t h e A b o r i g i n a l and

To r r e s S t r a i t I s l a n d e r Commission ATSIC) B i l l

t o d i s mi s s ATSIC Commiss ione rs , i n p a r t i c u l a r

where t h e r e i s a f a i l u r e t o comply w i th a

m i n i s t e r i a l d i r e c t i o n ;

b ) w h e t h e r t h e r e shou ld be a r e q u i r e m e n t f o r t h e

Chie f Execu t ive O f f i c e r o f ATSIC t o r e p o r t t o

t h e M i n i s t e r on a r e g u l a r b a s i s ;

c ) t h e p o s s i b l e i n c l u s i o n i n t h e ATSIC l e g i s l a t i o n

o f p r o v i s i o n s s i m i l a r t o t h e proposed amendments

t o s e c t i o n s 26 and 28 o f t h e A b o r i g i n a l

Development Commission c t 198 r e q u i r i n g t h e

2

Th is do c u ment is t h e property of t h e A u str li n G overnment nd is not to b e copi ed or re p ro du c e d

CABINET CONFIDENCE

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CABINET IN CONFIDENCENo. 12415 c on td )

d )

r epaymen t o f l o a n s o r g r a n t s i t h e t e rms and

c o n d i t i o n s o f t h e l o an s o r g r a n t s a r e n o t met

and g o v e rn i n g t h e d i s p o s a l o f a s s e t s ;

p r o v i d i n g f o r t h e s t a f f o f t h e proposed O f f i c e

o f E v a l u a t i o n and Audi t w i t h i n TSIC t o be

a ppo in t e d by t h e Head o f t h e O f f i c e and n o t t h e

Commiss ioners ; and

e ) whether t o p r o v i d e f o r t h e TSIC Corpora te P l a n

t obe approved and

t obe r e v i e w e d a n n u a l l y by

t h e M i n i s t e r .

f l ~S e c r e t a r y t o Ca b ine t

This document is the property of the ustralian Governme nt and is not to e copied or reproduced

CABIN ET 1 N CON Fl DENCE

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OR C BINETSubmission No. 6 3 6 9

~ 4 opy No

Title

Minister

Purpose/Issues

/_

Sensitivity Criticism

Legislationinvolved

ency:C ritical/significantdates

sultation: Ministers/Depts

consulted

s thereagreement?

Timing handling ofannouncement

Cost

ABORIGINAL AND TORRES STRAIT ISLANDER O ~ ~ I S S I O NATSIC)THE WAY AHEAD

MINISTER FOR ABORIGINAL AFFAIRS

The Se n a t e S e l e c t Commit tee on t h e A d m i n i s t r a t i o n o fA b o r i g i n a l A f f a i r s has now r e p o r t e d . The m a j o r i t y a d v o c a t et h a t t h e ATSIC B i l l be p r o c e e d e d w i t h , s u b j e c t t o a numbero f amendments and o t h e r a c t i o n s . The r e s u l t s o f o t h e ri n q u i r i e s a r e a l s o now a v a i l a b l e . Th ese a r e t h e s u b j e c to f a s e p a r a t e Submis s ion from t h e Prime M i n i s t e r .

i s S u b m i s s i o n p r o p o se s amendments t o l e g i s l a t i o n , ande r m a t t e r s , t o e n a b l e ATSIC t o p r o c e e d .

ATSIC B i l l h a s a l r e a d y p a s s e d t h e House o fe s e n t a t i v e s an d a w a i t s d e b a t e i n t h e S e n a t e .

p o s i t i o n p a r t i e s i n t h e Se n a t e w i l l a rg u e f o r wi t h d r a wa lf t h e B i l l . Some S t a t e / Te r r i t o r y Governments a r e opposed

ATSIC i n p a r t o r whole . M a j o r i t y A b o r i g i n a l and To r r e st r a i t I s l a n d e r Ab o r i g i n a l ) s u p p o r t f o r t h e ATSIC c o n c e p t .

e s . A t t o r n e y - G e n e r a l s a d v i s e t h a t amendments t o t h er i g i n a l Development Commission Act 1980 and t h e

s t r a l i a n I n s t i t u t e o f A b o r i g i n a l S t u d i e s Act 1964 w i l l beq u i r e d . Amendments t o t h e A b o r i g i n a l and To r re s S t r a i t

s l a n d e r Commission B i l l 1988 a r e a l s o r e q u i r e d .r g e n t ag reemen t e s s e n t i a l so t h a t l e g i s l a t i v e amendmentsan b e d r a f t e d and d e b a t e resumed.

r ime M i n i s t e r and C a b i n e t , A t t o r n e y - G e n e r a l s , Employment ,u c a t i o n an d T r a i n i n g , F i n a n c e , T r e a s u r y, A u s t r a l i a n

l e c t o r a l Commiss ion , A d m i n i s t r a t i v e S e r v i c e s , P u b l i ce r v i c e Co mmiss io n er.

o - s e e Attachmen t H.

n P a r l i a m e n t a s so o n as p o s s i b l e - s e e ATTACHMENT A.

Fin Yr1988 89

Fin Yr1989

be c o n s i d e r e d i n t h e Bu d g e t c o n t e x t

Fin Yr90 1990 9

his document is the property o the ustralian Government and is not to be copied or reproduced

CABINET IN CON Fl DEN E

I

I

I

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C BINET N CONFIDENCE

G. H.ecommendation 11 would p r o v id e a s l i d i n g s c a l e of number s u f

R e g i o n a l C o u n c i l l o r s , from 10 in Reg i ons w i t h an A b o r ig in a l

po p u l a t i o no f unde r 1000 to

20where

p o p u l a t i o n sex ceed 1 0 , 0 0 0

( t h e B i l l now p r o v id e s fo r 20 C o u n c i l l o r s in each Region

i r r e s p e c t i v e o f p o p u l a t i o n l . T h i s would g iv e g r e a t e r w e i g h t i n g

t o th e more p o p u lo u s H.egions in v o t i n g f o r Co mmiss io n er s , who

w i l l be e l e c t e d by a l l Regiona l C o u n c i l l o r s in a Zone. I a c c e p t

t h i s , e x c e p t f o r t he s p e c i a l c a s e of t he To r r e s S t r a i t .

7 . I b e l i e v e we need a l s o to a d d r e s s t he p ro b lem, i d e n t i f i e d by

t h e S e l e c t Co mmi t t ee , o f s u b s t a n t i a l p o p u l a t i o n i m b a l a n c e s as

be t ween Zo n es . To t h i s end I p r o p o s e t h a t t he 5 b i g g e s t Zones be

s p l i t in two. T h i s would r a i s e t h e number o f e l e c t e d

Co mmiss io n er s f rom 12 to 17; w i t h i n man ag eab le b o u n d s , and

a d d i n g s u b s t a n t i a l l y to ATSIC s a c c e p t a b i l i t y in c r i t i c a l a r e a s

such as Q u e e n s l a n d and t he N o r th e r n Te r r i t o r y . Any i n c r e a s e s in

c o s t s w i l l be more t han o f f s e t by t he s i g n i f i c a n t r e d u c t i o n -

a ro u n d o n e - t h i r d - in numbers o f R e g i o n a l C o u n c i l l o r s .

8 . Recommendat ion 12 p r o p o s e s , i n t e r a l i a , v o l u n t a r y enro lmen tb u t co mp u l so ry v o t i n g f o r t h o s e e n r o l l e d . The p r e s e n t i n t e n t i s

t h a t t h e r e be no r o l l and t h a t , a s w i t h th e N a t i o n a l A b o r i g i n a l

C o n f e r e n c e e l e c t i o n s , v o t e r s i l l o u t a v o t e r c a r d on the day (a

r e t r o s p e c t i v e r o l l . I u n d e r s t a n d th e C o m m i t t e e s aims b u t have

r e a l r e s e r v a t i o n s abou t t h e e s t a b l i s h m e n t and p r i o r p u b l i c a t i o n

o f a r o l l b a s e d on r a c e . A p a r t f rom i t s u n f o r t u n a t e c o n n o t a t i o n s

i n t e r n a t i o n a l l y , i t c o u ld l en d i t s e l f to s e r i o u s m i s u s e i n the

wrong h a n d s .e

w i l l i n s t e a d e x p l o r e w i th t h e E l e c t o r a lCommission a s y s t e m u t i l i s i n g v o t e r c a r d s supp lemen ted by

e x i s t i n g F e d e r a l e l e c t o r a l r o l l s , t o g e t h e r w i t h a c o n f i d e n t i a l

s y s t e m f o r c h a l l e n g e s to the e l i g i b i l i t y o f v o t e r s . D e t a i l s

woul d be s e t t l e d be t ween t he Pr i m e M i n i s t e r , t h e A t t o r n e y

G e n e r a l , t h e M i n i s t er f o r A d m i n i st r a ti v e S e r v i c e s , and m y s e l f .

9 . Under r ecom m enda t i on 1 4 , Reg io n s would be a b l e , w i t h

M i n i s t e r ia l a p p r o v a l , to ch o o se t h e i r own method o f s e l e c t i n g

C o u n c i l l o r s . T h i s would a l l o w t r a d i t i o n a l forms o f

r e p r e s e n t a t i o n where p r e f e r e d . While I u n d e r s t a n d t h a t - a n d

p r o p o s e s p e c i a l a r r a n g e m e n t s f o r t h e To r r e s S t r a i t Reg io n to meet

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C BINET IN CONFIDENCE

i t s c u l t u r Q l and g c o g r p h i c c i rcumstance :>- - i :1m t r o u h l e u t h < l t ,l

ge n e r a l p r o v i s i o n c o u l d leud to undue d i s p Q r i t i c s , and pl n ce th e\ I i n i s t e r i n an i n v i d i o us p o s i t i on . TS I C s h o u 1 d be r e q u i r c d t 0

r e p o r t w i t h i n 2 y e a r s on t h i s p ro p o s a l .

1 0 . In recommendat ion 20 t he m a j o r i t y p r o p o s e s t h a t t h e Pr eam bl e

be removed f rom the B i l l and moved s e p a r a t e l y as a r e s o l u t i o n of

b o t h Ho u ses . T h i s would be f o r p r e s e n t a t i o n a l r e a s o n s , to a l l a y

the concerns whi ch the r e p o r t ack n o wled g es a r e u n s u b s t a n t i a t e do f t h o se who see w i d e r i m p l i c a t i o n s in the Preamble . T h i s

p r o p o s a l i s q u i t e u n a c c e p t a b l e , as i t would be seen a s a

c o n s i d e r a b l e w e a k e n i n g of o u r r e s o l v e . M i n i s t e r s w i l l n o te t h a t

I s u p p o r t t h e p r o p o sa l to i n c l u d e the s u b s t a n c e o f the " p u rp o se"

s e c t i o n o f t h e DC Act ( r eco mmen d a t io n 2 1 ) .

11 . Recommendat ions 25 and 26 p r o p o s e ch an g es to the p r o v i s i o n s

d e a l i n g w i t h i n e l i g i b i l i t y f o r c a n d id a c y f o r o f f i c e . While I

u n d e r s t a n d the S e l e c t C o m m i t t e e ' s a ims , t h e r e a r e unusua l a s p e c t s

to t h e i r p r o p o s a l s whi ch cou ld be seen as s i n g l i n g ou t Ab o r i g i n a l

p e o p l e . The b e t t e r c o u r se would be to adop t the p r o v i s i o ni n e l i g i b i l i t y i f u n d er s e n t e n c e f o r an o f f e n c e c a r r y i n g a maximum

p e n a l t y o f 5 y e a r s imp r i so n men t o r more a p p l y i n g to cand idacy

in t h e r e c e n t l e g i s l a t i o n f o r t he CT L e g i s l a t i v e Assem bl y.

1 2 . A number o f o t h e r recommendat ions w i l l p r o v i d e f o r t i g h t e r

a d m i n i s t r a t i o n and a c c o u n t a b i l i t y - f o r ex amp le , r ecom m enda t i ons

6 (no a p p r o v a l o f s u b s t a n t i a l e x p e n d i t u r e s w i t h o u t a f u l l w r i t t e n

a s se s sm e n t o f p r o p o s a l s ) , 31 and 32 ( l i m i t a t i o n s on a c t i n g

a p p o i n t m e n t s ) , 33 ( p e c u n i a r y i n t e r e s t s ) and 36 (employment o f

c o n s u l t a n t s ) . I p r o p o s e a c c e p t a n c e o f t h e s e r eco mmen d a t io n s .

1 3 . Comment on m i n o r i t y r e p o r t r eco mmen d a t io n s i s in TT CHMENT C.

The A u d i t o r - G e n e r a l s R e p o r t and Ot h e r I n v e s t i g a t i o n s

1 4 . The A u d i t o r - G e n e r a l has made few d i r e c t comments abou t the

ATSIC B i l l (wh ich a l r e a d y p r o v i d e s f o r g r e a t e r M i n i s t e r i a l

o v e r s i g h t t han t h e DC A c t ) , bu t c l e a r l y some t i g h t e n i n g up i s

needed . The Depar tmen t o f F in a n c e r e p o r t on DC f i n a n c i a l


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ad m n i t r a t i o n h : s t l s o b c ;- x am 1 n c d f o r i t s i mp l i c a t 1 o n s f 1 r

_\TS IC. Recommended p r o p o s a l s , s e t out in Xl T. \ C fNE\1. U inc lude

l a e s t a b l i s h m e n t o f an O f f i c e of E v a l u a t i o n and Audi t w i t h i n

ATSIC to u n d e r t a k e e v a l u a t i o n s and i n t e r n a l a u d i t s on

programs , p r o j e c t s and p r o c e d u r e s , and to r e p o r t a t l e a s t

q u a r t e r l y to t he Commission and t he M i n i s t e r ;

(b ) the C ommiss ion to keep t he M i n i s t e r i n fo rmed abou t s p e c i f i c

p r o j e c t s e n c o u n t e r i n g d i f f i c u l t i e s ;

( c ) p r e p a r a t i o n o f a C o r p o r a t e P l a n , w i t h the M i n i s t e r

c o n s u l t e d ; and

(c ) p r o v i s i o n s to c l a r i f y the d i s t i n c t i o n between g r a n t / l oan

p ro g rams f o r com m er c i a l and n o n -co mmerc i a l a c t i v i t i e s - a

prob lem wi t h the ADC.

15 . I have a l s o i d e n t i f i e d a number o f o t h e r d e s i r a b l e

amendments , l a r g e l y o f a machine ry n a t u r e ; d e t a i l s in ATTACHMENT

E. Acco u n t has b een t aken o f s t a f f a s s o c i a t i o n comments.

Conment

16 . The p r o p o s a l s f o r amendment w i l l s u b s t a n t i a l l y improve t he

B i l l c o n c e r n i n g e l e c t o r a l f a i r n e s s and a c c o u n t a b i l i t y . I b e l i e v e

we now have t h i n g s r i g h t , and can proceed w i t h ATSIC.

17 . To a c o n s i d e r a b l e e x t e n t , howeve r, remed ie s l i e o u t s i d e

l e g i s l a t i v e p r e s c r i p t i o n . ATSIC w i l l c l e a r l y have to pu t a l o t

o f e f f o r t i n t o t he v a r i o u s e l e m e n t s o f p ro g ram b u d g e t i n g , p o l i c y

and p r o g r a m g u i d e l i n e s , e v a l u a t i o n and i n t e r n a l a u d i t . T r a i n i n g

f o r A b o r i g i n a l o r g a n i s a t i o n s and f o r p o r t f o l i o s t a f f i s a n o t h e r

a r e a wh ere much more w i l l have to be done . I f ATSIC s t a r t s i t s

l i f e u n d e r - r e s o u r c e d , we doom i t to f a i l u r e .

C o n s u l t a t i v e P r o c e s s e s and Timin g C o n s i d e r a t i o n s

18. The S e l e c t Co mmi t t ee , and some S t a t e and Te r r i t o r y


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c ;overnments . have e x p r e s s e d sume conc( rns , I r e j e c t

such comment. I have made i t c l e a r to S t a t e and Te r r i t o r y

Governments f o r months now t h a t I am w i l l i n g to h o ld d i s c u s s i o n s

abou t ATSIC; however, i t has s u i t e d some to co mp la in r a t h e r t han

d i s c u s s . I am n o n e t h e l e s s s t i l l t r y i n g to o r g a n i s e d i s c u s s i o n s .

19 . The ch an g es t o t h e B i l l a r e r e a s o n a b l y e x t e n s i v e b u t do n o t

change i t s s u b s t a n c e . I see l i t t l to g a i n , bu t much r i s k , in

d e l a y i n g a c t i o n f o r y e t a n o t h e r f o r m a l p r o c e s s o f c o n s u l t a t i o n s

wh ich , in a l l l i k e l i h o o d , would impact l i t t l on our p r o p o s a l s .

20. Whi l e some r e p o r t s on my p o r t f o l i o a r e n o t y e t to hand, t h e

p r o b a b i l i t y i s t h a t t h e y w i l l s u g g e s t few, i f any, f u r t h e r

amendments to t h e l e g i s l a t i o n . y p r e f e r e n c e t h e r e f o r e i s to

p r e s s ah ead to amend and p a s s t h e l e g i s l a t i o n in t he c u r r e n t

Autumn S i t t i n g s . O th e r w i s e t h e r e i s a s t r o n g ch an ce t h a t AT S I C -

an i m p o r t a n t e lemen t o f the J u l y 1987 a d m i n i s t r a t i v e r e fo rms

w i l l n o t be up and r u n n i n g in t h e l i f e o f t h i s P a r l i a m e n t .

21. A key f a c t o r i s the t ime r e q u i r e d b e f o r e Regiona l Counc i l

e l e c t i o n s . The E l e c t o r a l Commiss ion , who would conduc t such

e l e c t i o n s , a d v i s e s t h a t t h r e e months s h o u l d be a l l o w e d f rom t he

c o m p l e t i o n o f e l e c t o r a l r u l e s and f u r t h e r a d m i n i s t r a t i v er e q u i r e m e n t s f o l l o w i n g p a s s a g e of the l e g i s l a t i o n to t h e

c o m p le t i o n of the v o t i n g p r o c e s s . An o th er two months s h o u l d t h en

be a l l o w e d f o r e l e c t i o n o f Com m i ss i one r s and o t h e r p r o c e s s e s .

22 . A b o r i g i n a l p e o p l e a r e i n c r e a s i n g l y c o n c e r n e d by t h e d e l a y s

and u n c e r t a i n t i e s . So, t o o , a r e p o r t f o l i o s t a f f . Mo ra le i s

b a d ly a f f e c t e d . The p r o s p e c t of a f u r t h e r d e l a y o f s i x months or

more b e f o r e the l e g i s l a t i o n i s t h r o u g h , and o f y e t more d e l a y

b e c a u s e o f p o t e n t i a l c l a s h e s o f p r i o r i t i e s be t ween R e g i o n a l

C o u n c i l e l e c t i o n s and a F e d e r a l E l e c t i o n , c o u ld o n ly e x a c e r b a t e

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~ i I th o rcfort.: p ro p o se th e f o l l o w in g s t r a t eg y -

a l i n t r o d u c e amendments in May, p a s s a g e b e f o r e S i t t i n g s end;

b) ATSIC to commence on a t r a n s i t i o n a l b a s i s on 1 O c t o b e r 1989

wi t h f i v e a p p o i n t e d Co mmiss io n er s o n ly ;

c ) an e x t e n d e d p e r i o d to a l l o w A b o r i g i n a l peop le to g e t to

know more abou t t h e l e g i s l a t i o n and how i t w i l l wor k , and

f o r the a d m i n i s t r a t i v e s t r u c t u r e to sh ak e down;

d ) R e g io n a l Counc i l e l e c t i o n s to be h e l d , and ATSIC to be

f u l l y o p e r a t i o n a l , w i t h i n a f u r t h e r 12 mo n th s ;

e ) c o n s i s t e n t wi t h the S e l e c t Commit tee m a j o r i t y

r eco mmen d a t io n s , a r e v i e w a f t e r two y e a r s to i d e n t i f y and

a d d r e s s any t e e t h i n g p ro b lems t h a t may need r e c t i f y i n g .

24. I f t h i s t i m e t a b l e c a n n o t be a c h i e v e d , I would need toa d d r e s s u r g e n t l y the p ro b lems D and DC a l r e a d y f a c e . T h i s

would i n v o l v e r e s t r u c t u r i n g and r e s o u r c i n g to m ee t p r e s e n t

c h a l l e n g e s , i n c l u d i n g t h e impending changeove r to ATSIC, in the

l i g h t o f t h e f i n d i n g s o f the A u d i t o r - G e n e r a l and o t h e r s .

25. The A u d i t o r -G e n e r a l s r e p o r t on the DC c o n f i r m s t h a t i t has

o p e r a t e d as a law u n t o i t s e l f . T h i s canno t be t o l e r a t e d .

O p t io n s a r e t h a t I i s s u e d i r e c t i o n s u n d e r s e c t i o n 1 1 1 ) o f the

DC Ac t , o r t h a t we move immedia te ly to t i g h t e n up t h a t A c t . The

d i r e c t i o n s c o u r s e i s l i m i t e d by t he e x i s t i n g p r o v i s i o n s o f t h e

Act and may r a i s e a p r o s p e c t o f a n o t h e r l e g a l c h a l l e n g e . The

s t r o n g e r c o u r s e i s to amend t h e A c t , in p a r t i c u l a r to r e q u i r e t he

DC to p r o v i d e i n f o r m a t i o n and a d v i c e on r e q u e s t and to o b t a i n my

a p p r o v a l o f i t s budge t p r o p o s a l s . Recommended amendments a r e in

TT CHMENT F; p o s s i b l e d i r e c t i o n s a r e in TT CHMENT G.

e c o n m e n d a t i o n s

26. I recommend t h a t C a b i n e t -


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A ITN:IIMENT A

i\'l'S JC : TilE W Y AJIEAD

DRAI< vr STATY.:MENT TO T l l l ~ PARLIAME \.PJ' BY 'I11E MINISTER

FOR ABORIGINAL AFFAJP..S , TilE JlON . GERRY 1 ~ T I

In h i s s t a t e m e n t the Pr ime M i n i s t e r has o u t l i n e d t he G o v e r n m e n t s

c o n s i d e r a t i o n o f the v a r i o u s r e p o r t s i n t o a s p e c t s o f the

a d m i n i s t r a t i o n o f my p o r t f o l i o .

Th ese r e p o r t s a r e now p u b l i c . O v e r a l l t h e y c o n f i r m t h a t w h i l e

t h e r e a r e p ro b lems - as I have a lway s f r e e l y acknowl edged - we a r e

on t h e r i g h t t r a c k . Our p r o p o s a l s fo r ATSIC w i l l r e q u i r e some

t i g h t e n i n g up in c e r t a i n a r e a s . But t hey w i l l l e ad to a more

r e s p o n s i v e a c c o u n t a b l e and e f f e c t i v e a d m i n i s t r a t i o n o f A b o r ig in a l

A f f a i r s .

The b a s i c s o f ATSIC w i l l n o t be a f f e c t e d by the ch an g es we

p r o p o se . I remind the House o f the main f e a t u r e s as c o n t a i n e d in

t h e B i l l p a s s e d by the House l a s t y e a r -

a s y s t e m o f Reg iona l C o u n c i l s e l e c t e d by A b o r i g i n a l s and

To r r e s S t r a i t I s l a n d e r s r e s i d e n t in t h a t r e g i o n which w i l l

d e t e r m i n e p r i o r i t i e s deve lop r e g i o n a l p l a n s and g e n e r a l l y

r e p r e s e n t the i n t e r e s t s of the Reg ion ;

a Commission of 15 , o f whom 12 w i l l be e l e c t e d by Regiona l

C o u n c i l l o r s g r o u p e d i n t o Zones f o r t h i s purpose ;

t h e Commission r e p l a c e s t h e Depar tmen t o f A b o r i g i n a l A f f a i r s

(DAA) and t h e A b o r i g i n a l Development Commission (ADC);

d a y - t o - d a y management would be v e s t e d in a C h ie f E x e c u t i v e

O f f i c e r ;


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We hnve a c c e p t e d , in whole o r in s u b s t a n c e , the g r e a t b u lk of the

r ecom m enda t i ons o f t h e m a j o r i t y t epo r t . Those recommendat ions

i n c l u d e , p o i n t o u t , s u p p o r t f o r t he B i l l p r o c e e d in g in t he S e n a t e .

s h a l l c o n f i n e my comments h e r e to t he more s u b s t a n t i a l p r o p o s a l s

f o r change to t he B i l l , commencing w i t h th o s e r e l a t i n g to t he

R e g i o n a l C o u n c i l s and the e l e c t i o n o f Co mmiss io n er s .

The S e l e c t Commit tee e x p r e s s e d some c o n c e r n s a b o u t t h e d i s p a r i t i e s

in A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p o p u l a t i o n s a s between

r e g i o n s in a Zone, and as be t ween Zo n es .

Th ese d i f f e r e n c e s e x i s t because we have s o u g h t , as a r e s u l t of the

e x t e n s i v e c o n s u l t a t i o n s w i t h them, to accommodate t he wishes o f

A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l e a s to where b o u n d a r i e s

s h o u l d be drawn, t h u s t a k i n g i n t o a c c o u n t k i n s h i p t i e s and community

o f i n t e r e s t . T h i s has u n d o u b t e d l y been the r i g h t a p p r o a c h .

Co mp ar i so n s w i t h l e g i s l a t u r e s and t h e p r i n c i p l e of one v o te one

v a l u e m i s s t h e p o i n t ; ATSIC i s o t a P a r l i a m e n t .

N o n e t h e l e s s the Government r e c o g n i s e s t h a t a s y s t e m where one Region

in a Zone w i t h a sma l l p o p u l a t i o n has t he same v o t i n g s t r e n g t h , in

e l e c t i o n s f o r a Co mmiss io n er, a s a much l a r g e r Region , has some

i n e q u i t a b l e f e a t u r e s . A c c o r d in g ly we a c c e p t the S e l e c t C o m m i t te e s

m a j o r i t y s r ecom m enda t i on 11 to p r o v i d e a s l i d i n g s c a l e o f Reg io n a lC o u n c i l l o r s , s t a r t i n g w i t h 10 f o r r e g i o n s w i t h p o p u l a t i o n s o f under

1000 , w i t h an a d d i t i o n a l C o u n c i l l o r f o r each a d d i t i o n a l 1000 o r p a r t

t h e r e o f up to a maximum o f 2 0 - t he number p r e s e n t l y i n the B i l l .

To meet i t s s p e c i a l s i t u a t i o n , t he To r r e s S t r a i t Reg i on w i l l

c o n t i n u e to have 20 C o u n c i l l o r s .

e have a l s o a d d r e s s e d t he i s s u e , i d e n t i f i e d by t h e S e l e c t Commit tee

bu t on whi ch t hey made no fo rmal r eco mmen d a t io n , o f s u b s t a n t i a lp o p u l a t i o n imba lances a s between Zo n es . To t h i s end we propose t h a t

t h e f i v e m os t popu lous Zones be s p l i t in two, t hus r a i s i n g t he

number o f C

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\TTJ\Cl L\fENT \

In New So u th ~ a l e s the Sydney Region w i l l co mp r i se a new Zone, as

w i l l t he P e r t h Region in Western A u s t r a l i a . The N o r t h e r n Te r r i t o r y

Zone, which compr i s e s much of t h e XorLhern Te r r i t o r y , w i l l be s p l i t

i n t o two s e p a r a t e Zones . In Queens land , which has t h e l a r g e s t

A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p o p u l a t i o n , two new Zones w i l l

be c r e a t e d . One i s f o r t he B r i s b a n e Reg io n , and the o t h e r to

accommodate t h e wishes o f peop le l i v i n g in t he s o - c a l l e d DOGIT

co mmu n i t i e s t h o s e who ho ld a fo rm o f t i t l e to t h e i r l an d under

d eed s o f g r a n t in t r u s t to be encompassed w i t h i n t he same Zone. A

new s c h e m a t i c map i s b e in g drawn up to show t he p roposed changes .

I b e l i e v e t h e s e p r o p o s a l s w i l l make f o r a b e t t e r b a l a n c e d sy s t em o f

R e g i o n a l C o u n c i l s and , t h rough the r e v i s e d Zone s t r u c t u r e , a more

e q u i t a b l e s y s t e m f o r t he e l e c t i o n of Co mmiss io n er s .

Recommendat ion 12 p r o p o s e s , i n t e r a l i a , v o l u n t a r y enro lmen t f o r

R e g i o n a l C o u n c i l e l e c t i o n s , b u t co mp u l so ry v o t i n g f o r t h o s ewho

doe n r o l . The G o v e r n m e n t ' s i n t e n t i o n has been t h a t no s p e c i a l r o l l be

e s t a b l i s h e d and t h a t , as w i t h t he e l e c t i o n s f o r the fo rmer N a t i o n a l

A b o r i g i n a l C o n f e r e n c e , v o t e r s i l l ou t a v o t e r c a r d on the day.

There would be mechan isms f o r t e s t i n g t he e l i g i b i l i t y o f v o t e r s to

t a k e p a r t in t h e e l e c t i o n .

The Government a p p r e c i a t e s t h a t t he S e l e c t Commit tee h as b een

c o n c e r n e d to f i n d a s y s t e m which would combine t he o p p o r t u n i t y f o r

p e r s o n s o f A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r d e s c e n t to choose

w h e t h e r t h e y wish ed to v o te in R e g i o n a l C o u n c i l e l e c t i o n s w i t h a

means f o r c h e c k in g t he e l i g i b i l i t y o f v o t e r s .

The Government has g iv e n c a r e f u l t h o u g h t t o v o t i n g s y s t e m s . In i t s

v i ew t h e o v e r - r i d i n g c o n s i d e r a t i o n i s t h a t a p u b l i c r o l l b ased on

r a c e , w h a te v e r i t s p u r p o s e , s h o u l d n o t be e s t a b l i s h e d in t h i s

c o u n t r y .

e w i l l e x p l o r e p o s s i b l e a l t e r n a t i v e sys tems w i t h t he A u s t r a l i a n

E l e c t o r a l Commiss ion . The d e t a i l s w i l l be c o n t a i n e d i n the


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CABINET I CONFIDENCE

,.

e l e c t o r a l r u l e s which l a m to p r e s c r i b e in a c c o r d a n c e w i th c l a u s e 9

o f the B i l l ; t h a t c l a u s e p r o v id e s t h a t t he P a r l i a m e n t may d i s a l l o w

s uch r u l e s .

A number of t h e C o m m i t t e e s r ecom m enda t i ons a r e f o r t i g h t e n i n g up

e x i s t i n g p r o v i s i o n s of the B i l l , d e a l i n g w i t h such m a t t e r s as

e l i g i b i l i t y f o r e l e c t e d o r a p p o i n t e d o f f i c e , p e c u n i a r y i n t e r e s t s ,

f u l l w r i t t e n a s s e s s m e n t s o f p r o p o s a l s b e f o r e s u b s t a n t i a l

e x p e n d i t u r e s a r e a p p r o v e d , a c t i n g a p p o i n t m e n t s , and employment o f

c o n s u l t a n t s . The Government a c c e p t s t h e se r eco mmen d a t io n s , w i t h

some m o d i f i c a t i o n s where t h i s w i l l improve c o n s i s t e n c y o f t r e a tm e n t

w i t h o t h e r o r g a n i s a t i o n s e s t a b l i s h e d by s t a t u t e .

Al th o u g h i t m o d i f i e s t he Gove rnm ent s o r i g i n a l i n t e n t i o n to b r i n g

a l l b o d i e s in my p o r t f o l i o under one u m b r e l l a , we w i l l a l s o a c c e p t

r ecom m enda t i on 3 , which p r o p o s e s t h a t t he A u s t r a l i a n I n s t i t u t e ofA b o r i g i n a l S t u d i e s s h o u l d c o n t i n u e to be e s t a b l i s h e d under i t s own

l e g i s l a t i o n . O th e r a s p e c t s o f t h e p r o p o s e d r e fo rms to the

I n s t i t u t e s s t r u c t u r e w i l l p r o c e e d .

The S e l e c t Commit tee l ooked c l o s e l y a t t he Preamb le t o the B i l l .

The m a j o r i t y , w h i l e r e c o g n i s i n g t h a t c o n c e r n s a b o u t p o s s i b l e wid er

r a m i f i c a t i o n s o f t h e Preamb le wer e no t w e l l b a s e d , has s u g g e s t e d

t h a t i t c o u ld h e l p to a l l a y such c o n c e r n s i f the Preamb le were

removed f rom t h e B i l l and moved s e p a r a t e l y, w i t h o u t amendment, as a

R e s o l u t i o n o f b o t h Ho u ses .

The Government s t a n d s by i t s c o n v i c t i o n t h a t t he Preamb le i s o f such

s i g n i f i c a n c e t h a t i t s h o u l d p r o c e e d . A u s t r a l i a n s s h o u ld n o t back

away f r om acknowledg ing , in a s y m b o l i c a l l y s u b s t a n t i a l way, t he

f a c t s of h i s t o r y and o u r r e s o l v e to a d d r e s s t h e p r e s e n t e f f e c t s of

p a s t i n j u s t i c e . e w i l l no t be d i v e r t e d i n ou r p u r p o s e by t h o s e who

have c h o s e n , f o r r e a s o n s b e s t known to t h e m s e lv e s , to r e p r e s e n t the

Preamb le as h a v i n g a d e g r e e o f l e g a l f o r c e t h a t i t does no t p o s s e s s .


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I .

ATTACIIMENT

The S e l e c t C o m m i t t e e s recommendat ion 2 i s i m p o r t a n t , and has

r e c e i v e d c l o s e a t t e n t i o n . I t p r o p o s e s t h a t e n t e r p r i s e and r e l a t e d

f u n c t i o n s o f the DC be t r a n s f e r e d not to ATSIC as the B i l l

p r o p o se s , b u t to t he A b o r i g i n a l Economic Development C o r p o r a t i o n

t h e AEDC. ADC s h o u s i n g f u n c t i o n s however, would t r a n s f e r as

p la n n e d to ATSIC.

The EDC i s i n t e n d e d to o p e r a t e in q u i t e a d i f f e r e n t way t o the DC

or to ATSIC. I t w i l l no t a d m i n i s t e r programs b u t w i l l f a c i l i t a t e

and p a r t i c i p a t e in s i g n i f i c a n t commerc ia l e n t e r p r i s e s i n v o l v i n g and

o f b e n e f i t t o A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l e . I t wou

be i n a p p r o p r i a t e and would d i l u t e t he com m er c i a l n a t u r e of the EDC

to have i t t a k e on programs , e s p e c i a l l y programs whi ch i n c l u d e quas i

commercia l a s p e c t s such as g r a n t s and c o n c e s s i o n a l l o a n s .

A r e d u c t i o n in AT S IC s f u n c t i o n s would reduce the b e n e f i t s t h a t w i l l

f low f rom i t s a b i l i t y t h rough t h e R e g io n a l C o u n c i l p l a n n i n g

p r o c e s s e s to l o o k a t t he whole r an g e o f community n e e d s . In

a d d i t i o n t h e r e would i n e v i t a b l y be a t l e a s t a p a r t i a l r e p l i c a t i o n

o f t h e e x i s t i n g w a s t e f u l d u p l i c a t i o n o f a d m i n i s t r a t i v e s t r u c t u r e s

i n c l u d i n g f i e l d s e r v i c e s i n the p o r t f o l i o .

I n o t e h e r e t h a t t h e r e c e n t r e p o r t o f t h e A u d i t o r - G e n e r a l has

b r o u g h t to a t t e n t i o n the p ro b lem t h a t t h e DC h as o f t e n faced in

s e p a r a t i n g the commercia l and s o c i a l b a s e s f o r i t s f u n d in g , and t h e

need f o r a g r e a t e r c a p a c i t y f o r M i n i s t e r i a l o v e r s i g h t o f i t s

e n t e r p r i s e a c t i v i t i e s . I s h a l l r e t u r n l a t e r to t h a t s u b j e c t bu t

o b se r v e h e r e t h a t a s h i f t i n g o f t h e s e DC f u n c t i o n s to the EDC

would no t h e l p i n m e e t i n g t h e need i d e n t i f i e d by t h e A u d i t o r -

Genera 1.

Wi t h r e g a r d to t h e f i r s t recommendat ion o f t h e Se n a t e S e l e c t

Commit tee t h a t a s e p a r a t e O f f i c e o f A b o r i g i n a l A f f a i r s be r e t a i n e d

w i t h i n t h e Employment , E d u c a t i o n and T r a i n i n g p o r t f o l i o I s h o u l d

p o i n t ou t t l

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a v a i l a b l e to t he M i n i s t e r to t h a t p r o v i d e d by ATSIC. In d eed , i t was

a lway s e n v i s a g e d , unde r t he ATSIC p r o p o s a l , t h a t t h e r e cou ld be

c i r c u m s t a n c e s where t he 1 1 i n i s t e r f o r A b o r i g i n a l A f f a i r s (and a l s o

t he p o r t f o l i o M i n i s t e r ) m i gh t o c c a s i o n a l l y r e q u i r e s e p a r a t e

d e p a r t m e n t a l a d v i c e on i s s u e s c o n c e r n in g ATSIC, and t h a t t h i s a d v i c e

would come f rom t h e p o r t f o l i o Depar tmen t .

I t w i l l be c l e a r f rom what have s a i d t h a t t he Government r e j e c t s

t h e m i n o r i t y r e p o r t o f O p p o s i t i o n S e n a t o r s in s e e k i n g to have t h e

B i l l w i t h d r a w n . They have no t e s t a b l i s h e d a c a s e . T h e i r r e p o r t i s

long on a s s e r t i o n and c o l o u r f u l p h r a s e , b u t w o e f u l l y s h o r t on

a c c u r a c y and f a c t . For r e a s o n s b e s t known to themse lves they wish

to p e r p e t u a t e a s y s t e m , which t hey were r e s p o n s i b l e f o r c r e a t i n g ,

whi ch i s p a t e n t l y no t wo rk in g as i t s h o u ld . I t i s no t a sys tem f o r

m e e t i n g t h e l e g i t i m a t e e x p e c t a t i o n s o f A b o r i g i n a l and To r r e s S t r a i t

I s l a n d e r p e o p l e f o r a r e a l s a y in t h e i r own a f f a i r s .

A u d i t o r - G e n e r a l s R e p o r t

The Pr ime M i n i s t e r has a l r e a d y spoken o f the G o v e r n m e n t s r e s p o n s e

t o t h e f i n d i n g s o f t h e A u d i t o r - G e n e r a l in h i s s p e c i a l r e p o r t on t h eDC an d on t h e D e p a r t m e n t . a f f i r m our r e s o l v e to a d d r e s s t he

prob lem a r e a s i d e n t i f i e d in t h a t R e p o r t w i t h v ig o u r and

d e t e r m i n a t i o n .

We have examined the Audi t o r - G e n e r a l s f i n d i n g s to s e e where t h ey

may b e a r upon t h e ATSIC l e g i s l a t i o n , and in p a r t i c u l a r on t he

p r o v i s i o n s r e l a t i n g to a c c o u n t a b i l i t y . At t h e same t ime we have

t a k e n i n t o a c c o u n t t h e r e p o r t o f t h e D e p a r t m e n t o f F in a n c e i n t o t h e

ADC s f i n a n c i a l a d m i n i s t r a t i o n .

Bo th t h e s e r e p o r t s l end s u p p o r t to t h e v i ew t h a t our p r o p o s a l s f o rATSIC, s u b j e c t to some s t r e n g t h e n i n g in the a r e a s r e l a t i n g to

a c c o u n t a b i l i t y , w i l l r e s u l t in a more e f f e c t i v e a d m i n i s t r a t i o n o f


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.

A l TACTL\IENT A

A b o r i g i n a l A f f a i r s . I t i s a l ready the co s e th a t t he NfS I C B i l 1

c o n t a i n s s t r o n g e r p r o v i s i ons than the DC A c t - fo r example through

the a u t h o r i t y of the M i n i s t e r to ap p ro v e t he E s t i m a t e s which he

l a c k s under t he DC Act .

Changes to th e B i l l must be c o n s i d e r e d in t he c o n t e x t o f the b a s i c

p r i n c i p l e o f ATSIC t h a t A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p eo p le

shou ld have g r e a t e r c o n t r o l ove r m a t t e r s a f f e c t i n g them. Theq u e s t i o n i s one o f b a l a n c i n g t h i s p r i n c i p l e w i t h t he p r i n c i p l e of

M i n i s t e r i a l a c c o u n t a b i l i t y f o r t he c o r r e c t and e f f i c i e n t use of

p u b l i c f u n d s .

We p r o p o s e t h a t t he ATSIC B i l l be amended to

e s t a b l i s h w i t h i n ATSIC an O f f i c e of E v a l u a t i o n and A u d i t to

u n d e r t a k e e v a l u a t i o n s and i n t e r n a l a u d i t s on programs p r o j e c t s

and p r o c e d u r e s . I t would r e p o r t a t l e a s t q u a r t e r l y t o the

Commission and t he M i n i s t e r and a n n u a l l y t o the P a r l i a m e n t

th rough th e ATSIC Annual R e p o r t s . The Head o f the O f f i c e would

have D i v i s i o n Head and be a p p o i n t e d by the M i n i s t e r ;

r e q u i r e ATSIC to keep t he M i n i s t e r i n fo rmed abou t s p e c i f i c

p r o j e c t s t h a t a r e e n c o u n t e r i n g d i f f i c u l t i e s ;

r e q u i r e ATSIC to p r e p a r e a c o r p o r a t e p l a n and to c o n s u l t t he

M i n i s t e r a b o u t i t ; and

c l a r i f y the d i s t i n c t i o n between commercia l and non-commercia l

a c t i v i t i e s a p ro b lem which has b e d e v i l l e d t he DC

I t migh t be n o te d t h a t one of the r e c u r r i n g c r i t i c i s m s o f t h e

A u d i t o r - G e n e r a l was t h a t p r o j e c t s were funded w i t h o u t t h e r e b e in g

communi ty p l a n s a g a i n s t which to a s s e s s p r i o r i t i e s . The ATSIC B i l la d d r e s s e s t h i s need . C o - o r d i n a t i o n o f community and r e g i o n a l

p l a n n i n g i s one of t h e f u n c t i o n s o f Reg iona l C o u n c i l s .


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i \ ITAc:I TM NT A

O th e r Changes

The o p p o r t u n i t y w i l l a l s o be t ak en to make a number o f o t h e r

c h a n g e s e s s e n t i a l l y m a c h i n e r y and minor in n a t u r e to t he

l e g i s l a t i o n f o r ex amp le in r e l a t i o n to d a t e s o f o p e r a t i o n .

As w i t h t h e amendments f l o w i n g f rom our c o n s i d e r a t i o n o f the

A u d i t o r - G e n e r a l and Dep ar tmen t o f F i n a n c e r e p o r t s our d e t a i l e dp r o p o s a l s a r e a t t a c h e d to the p r i n t e d c o p i e s o f t h i s s t a t e m e n t .

I m p le m e n ta t i o n and Ti m i ng

ATSIC has a l r e a d y been d e l a y e d w e l l beyond t h e o r i g i n a l p ro p o sed

s t a r t i n g d a t e . Tha t has c r e a t e d c o n s i d e r a b l e p ro b lems f o r

A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l e who n a t u r a l l y wi sh t o

know t h a tp ro mised and needed r e fo rms

w i l lno t

bep u t

o f f a g a i n .

The d e l a y s have a l s o l e f t p o r t f o l i o s t a f f u n c e r t a i n a b o u t t h e i r

f u t u r e s . I am v e r y c o n s c io u s o f the a d d i t i o n a l d i f f i c u l t i e s t h i s

h as c a u s e d f o r them a s i t has f o r p o r t f o l i o management . I t ake

t h i s o p p o r t u n i t y t o e x p r e s s my g r a t i t u d e f o r t h e way in which

p o r t f o l i o s t a f f have c o n t i n u e d to u n d e r t a k e t h e i r demanding and

im p o r t a n t t a s k s w i t h commitment and e f f i c i e n c y in o f t e n t r y i n g

c i r c u m s t a n c e s .

I b e l i e v e we now have our p r o p o s a l s f o r ATSIC r i g h t . However t h e r e

a r e s t l l some r e p o r t s to be c o m p l e t e d i n c l u d i n g a f u r t h e r r e p o r t

by t h e A u d i t o r - G e n e r a l and some i n v e s t i g a t i o n s by r Andrew

Menz ie s . I t i s u n l i k e l y t h a t t h e s e r e p o r t s w i l l show a need f o r

f u r t h e r l e g i s l a t i v e c h a n g e b u t s h o u l d i t p ro v e to be o t h e r w i s e I

s h a l l o f c o u r s e b r i n g fo rward p r o p o s a l s f o r su ch change . The

t i m e t a b l e t h a t I p r o p o s e f o r imp lemen t in g ATSIC t a k e s t h i s i n t o

a c c o u n t .


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TT CJ IM NT

The amendments I have o u t ined u r c i m p o r t a n t but do not a f f e c t the

s u b s t a n c e o f ATSIC e b e l i e v e t h ey w i l l be w id e ly welcomed and

a c c e p t a b l e as d e s i r a b l e improvements .

e t h e r e f o r e propose to p r e s s ahead w i th t he l e g i s l a t i o n .

Once t he l e g i s l a t i o n i s p a s s e d , t h e r e a r e a number o f p r o c e s s e s to

be comple ted b e f o r e t he new Commission can become f u l l y

o p e r a t i o n a l . Th ese i n c lu d e t h e h o l d i n g o f R e g i o n a l C o u n c i l

e l e c t i o n s the p r o c e s s e s f o r which w i l l t a k e some mo n th s , and t h e

e l e c t i o n by R e g i o n a l C o u n c i l l o r s of t he C o m m i s s i o n e r s .

The Government i s v e r y c o n s c io u s o f t he need to minimise u n c e r t a i n t y

and a v o i d f u r t h e r d r i f t . At t he same t ime i t r e c o g n i s e s t h a t

A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l e need t ime to u n d e r s t a n d

t h e ch an g es t h a t a r e b e i n g made an d , more b r o a d l y to g e t to know

more a b o u t ATSIC and how i t w i l l work. They need to have t h i s

i n f o r m a t i o n b e f o r e b e in g ask ed to make t h e im p o r t a n t d e c i s i o n s of

e l e c t i n g t h e i r R e g i o n a l C o u n c i l l o r s and t hen t h o s e R e g i o n a l

C o u n c i l l o r s e l e c t i n g Co mmis io n er s .

Our p r e f e r r e d c o u r s e i s t h a t t he Commission be e s t a b l i s h e d on an

i n t e r i m b a s i s f rom 1 O c t o b e r 1989. T h i s w i l l be done u n d er a

t r a n s i t i o n a l a r r a n g e m e n t which w i l l a l l o w f o r the a p p o i n t m e n t o f

f i v e Commiss ione rs , i n c l u d i n g t h e Ch ai rman , by t h e M i n i s t e r . T h i sa r r a n g e m e n t w i l l have a 12 months s u n s e t c l a u s e .

e would t h e n a l l o w an e x t e n s i v e p e r i o d f o r A b o r i g i n a l and To r r e s

S t r a i t I s l a n d e r p e o p l e to become f a m i l i a r w i th t h e way ATSIC w i l l

wor k , and f o r t h e a d m i n i s t r a t i v e s t r u c t u r e to sh ak e down. A m aj o r

e d u c a t i v e an d t r a i n i n g e f f o r t w i l l be made d u r i n g t h i s t i m e .

R e g io n a l C o u n c i l l o r e l e c t i o n s w i l l t hen be h e l d and ATSIC would

become f u l l y o p e r a t i o n a l w i t h i n t h i s 12 month p e r i o d .


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Nrvf J\CIIMENT A

T h i s p h a s i n g - i n approach wi l 1 he lp e n s u r e t h a t ATSIC comes i n t o

o p e r a t i o n smo o th ly and e f f e c t i v e l y .

A lr e a d y t h e ATSIC c o n c e p t has been open f o r c o n s u l t a t i o n and comment

f o r ove r 15 mo n th s . e have made a s e r i e s o f r e f i n e m e n t s and

improvements as a r e s u l t o f those p r o c e s s e s .

L e g i s l a t i o n i s t h e f r am ewor k and we a r e g e t t i n g t h a t f ramework

r i g h t . e must a l s o e n su r e t h a t ATSIC i s p r o p e r l y r e so u r c e d to

u n d e r t a k e i t s im p o r t a n t t a s k s

In i t s management and a d m i n i s t r a t i o n ATSIC must have i t s p r i o r i t i e s

r i g h t f rom t h e s t a r t . I t w i l l have to pu t a l o t o f e f f o r t i n t o such

a r e a s as c o r p o r a t e p l a n n i n g p ro g ram b u d g e t i n g p o l i c y and program

g u i d e l i n e s and e v a l u a t i o n and i n t e r n a l a u d i t .

Anothe r v i t a l need to come ou t o f the i n q u i r i e s i s f o r a much

improved t r a i n i n g e f f o r t to en h an ce t h e s k i l l s o f t h o se wo rk in g

w i t h i n A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r o r g a n i s a t i o n s and o f

p o r t f o l i o s t a f f and to e n su r e t h a t ATSIC i s p r o p e r l y u n d e r s to o d by

A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l e .

Some S t a t e and Te r r i t o r y Governments have e x p r e s s e d c o n c e r n s ab o u t

ATSIC and I have s o u g h t on a number of o c c a s i o n s to p r o v i d eo p p o r t u n i t i e s to d i s c u s s the i s s u e s . I am c o n t i n u i n g to do so

n o t w i t h s t a n d i n g t h e f a c t t h a t no S t a t e o r Te r r i t o r y shou ld have

a n y t h i n g to f e a r f rom ATSIC. I t a p p e a r s to s u i t some howeve r to

compla in r a t h e r t han pu t t h e i r v i ews to the t e s t .

I n m e d i a t e Needs

ATSIC w i l l no t be o p e r a t i o n a l f o r some m o n t h s bu t t h e r e i s c l e a r l ya n e e d i d e n t i f i e d in t h e r e p o r t s o f the Depar tmen t o f F in a n c e and

t h e A u d i t o r - G e n e r a l to a c t now to remedy d e f i c i e n c i e s in the

p r e s e n t t C Bi NET IN CONFIDENCE

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~ l l

ATTACHMENT

We s h a l l e n s u r e t h a t t h e AOC d u r i n g i t s rema in ing l i f e , o p e r a t e s on

a s i m i l a r b a s i s to ATSIC and in a mnnner t l w t p r o p e r l y r e f l e c t s

Government p r i o r i t i e s . The problem l i e s , a t l e a s t in p a r t , w i th

d e f e c t s in the ADC A c t . y a combina t ion o f amendments to t h e Act ,

c o g n a t e l y w i t h t he ATSIC l e g i s l a t i o n , and o f d i r e c t i o n s to t he ADC

unde r s e c t i o n 11 ( 1 ) o f t h a t Act , we w i l l

r e q u i r e M i n i s t e r i a l a p p r o v a l o f e s t i m a t e s and endorsement of

i t s c o r p o r a t e p l a n ;

i s s u e b r o a d p o l i c y g u i d e l i n e s , e s p e c i a l l y r e l a t i n g to f i n a n c i a l

a d m i n i s t r a t i o n ; and

empower t he M i n i s t e r to r e q u e s t i n f o r m a t i o n and a d v i c e .

I s h a l l announce f u r t h e r d e t a i l s a t t he a p p r o p r i a t e t ime .

As f a r a s my Depar tmen t i s c o n c e r n e d , t he r e s o l u t i o n o f problems

l i e s in a d m i n i s t r a t i v e , no t l e g i s l a t i v e , a c t i o n . Tha t a c t i o n i s

b e i n g pu t in hand , and w i l l be pur sued w i t h v i g o u r .

o n c l u s i o n

The ATSIC p r o p o s a l s have been u n d er t h e most i n t e n s i v e s c r u t i n y fo r

many months now. They have come t h r o u g h t h a t s c r u t i n y. We have

r e c o g n i s e d t h e need f o r some f u r t h e r changes , and w i l l soon be ready

to p r o c e e d .

Fo r t h e f i r s t t ime , A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r

A u s t r a l i a n s w i l l have a r e a l say in m a t t e r s a f f e c t i n g them. We a r e

p u t t i n g an end a t l a s t to p a t e r n a l i s m , to t h e i d e a t h a t o t h e r s must

d e c i d e what i s b e s t .

We c a n n o t amend h i s t o r y , bu t we can a c t to c o r r e c t i t s a d v e r see f f e c t s f o r t o d a y s and t omorrow s A u s t r a l i a n s . T h a t i s what ATSIC

i s a l l a b o u t . I t i s an ach ievement o f whi ch a l l A u s t r a l i a n s w i l l be

p r o u d . C BINET IN CONFIDENCE

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_:I .

A TTACIIMEN l

SENATE SELECT OOMMITTEE ON TilE ADMIN I STRATI ONOF ABORIGINAL F F I I ~ S

RECX>MMENDATION

MAJORITY RECDMMENDATIONS RELATINGTO ATSIC

A s e p a r a t e o f f i c e o f A b o r i g i n a l A f f a i r s be r e t a i n e d w i t h i n t he

Employment , E d u c a t i o n and T r a i n i n g p o r t f o l i o . The p r e c i s es t r u c t u r e o f t he o f f i c e i s a m a t t e r to be d e t e r m in e d by t heGovernment o f t h e day. The o f f i c e would be r e s p o n s i b l e f o ra d v i s i n g t h e M i n i s t e r on a l l m a t t e r s r e l e v a n t to t he p o r t f o l i oi n c l u d i n g t h e a d m i n i s t r a t i o n o f l e g i s l a t i o n and t h e e x e r c i s e o fd e l e g a t i o n s f o r which he or she was r e s p o n s i b l e . ( p a r a 2 . 2 2 )

OOMMENT

The ATSIC B i l l does no t r e s t r i c t t h e a d v i c e a v a i l a b l e t o theM i n i s t e r to t h a t p r o v id e d by ATSIC. Indeed , i t was a l waysen v i sage d unde r the ATS I C propos a l t h a t t h e r e co u l d bec i r c u m s t a n c e s where t he M i n i s t e r f o r A b o r i g i n a l A f f f a i r s (anda l s o the p o r t f o l i o M i n i s t e r ) mig h t o c c a s i o n a l l y r e q u i r e s e p a r a t ed e p a r t m e n t a l a d v i c e on i s s u e s c o n c e r n in g ATSIC, and t h a t t h i sa d v i c e would come f rom t he p o l i c y c o - o r d i n a t i o n a r e a o f theDepa r tmen t o f Employment, E d u c a t i o n and T r a i n i n g .

RESPONSE

The M i n i s t e r w i l l have a c c e s s , as r e q u i r e d , to d e p a r t m e n t a la d v i c e .

RECX>MMENDATION 2

A g r e a t e r p r o p o r t i o n of the c u r r e n t a c t i v i t i e s o f t h e ADC s h o u l dbe t h e r e s p o n s i b i l i t y o f t h e p r o p o s e d AEDC t han i s e n v i s a g e d int h e B i l l . p a r a 2 . 3 5 )

The e f f e c t o f t h i s recommendat ion would be to make a major changeto th e c h a r a c t e r o f t h e AEDC by p u t t i n g a l l t h e ADC s p r e s e n te n t e r p r i s e , l and a c q u i s i t i o n and i n v e s tm e n t f u n c t i o n s w i t h i t .T h e s e f u n c t i o n s i n c l u d e n o n -co mmerc i a l e l e m e n t s such ass u b s i d i s e d i n t e r e s t r a t e s and g r a n t s , and l and a c q u i s i t i o n f o rp r i m a r i l y s o c i a l , r a t h e r t h a n economic, p u r p o s e s . The AEDC

h o wev er, h as an e s s e n t i a l l y commerc ia l o r i e n t a t i o n ; t h i s c o u l dbe s e r i o u s l y i m p a i r e d i f n o n -co mmerc i a l e l e m e n t s , on as i g n i f i c a n t s c a l e , were to be added .


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ATTACHMENT B

I t i s a l so en v i sag e d t h a t the AEDC w o u l d have a s rna l l h i g h l yq u a l i f i e d s t a f f o p e r a t i n g from a c e n t r a l i s e d l o c a t i o n , and makinguse o f ATSIC f i e l d s e r v i c e s f o r c e r t a i n f u n c t i o n s such as i n i t i a lc o n t a c t . A b r o a d e r r o l e r a i s e s t he p ros p e c t t h a t AEDC wo u l do p e r a t e t h rough a more d e c e n t r a l i s e d s t r u c t u r e ; to t he e x t e n tt h a t t h i s were t o h ap p en , t he e f f i c i e n c i e s and economies to beo b t a i n e d f rom amalg amat io n o f e x i s t i n g DAA and ADC o p e r a t i o n s ,and t h e b e n e f i t s to A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r peop lef lowing f rom t he amalgamat ion, would be f o r e g o n e .

Subsequen t to the Repor t o f t he S e n a t e S e l e c t Commit tee b e in gp r e s e n t e d to the P a r l i a m e n t , t he A u d i t o r - G e n e r a l has r e p o r t e d ,i n t e r a l i a , on a number o f a s p e c t s o f the ADC s e n t e r p r i s ep ro g ram. The A u d i t o r - G e n e r a l s f i n d i n g s have emphas i s ed the noncommercia l n a t u r e o f many p r o j e c t s funded by the ADC u n d er t h i sp ro g ram, and p o i n t s t r o n g l y to t h e need f o r s u b s t a n t i a l l y f i r m e ra c c o u n t a b i l i t y r e q u i r e m e n t s .

The r e v e r s e r e s u l t , however, would be a c h i e v e d by t r a n s f e r r i n gt he p ro g ram to t h e AEDC which i s i n t e n d e d , as a p u r e l ycommercia l o p e r a t i o n , to have a g r e a t e r measu re of autonomy t h ant he ADC has e n jo y e d .

RESPONSE

Not a g r e e d . In v iew, however, o f t h e r an g e o f r e s p o n s i b i l i t i e st h a t ATSIC Co mmiss io n er s w i l l h av e , t he Commission w i l l beempowered to s e t up a number o f Bo ard s to examine and maker eco mmen d a t io n s on s p e c i f i c s u b j e c t a r e a s . I t i s c o n s i d e r e d t h a tt h i s s h o u ld h e l p to improve t he management o f Commission b u s i n e s sand to e a s e the p r e s s u r e s on t he f u l l Commiss ion .

RFAX MMENDATION 3

The AlAS shou ld r e t a i n i t s own l e g i s l a t i o n and c o n t i n u e to d e a lw i t h o t h e r A b o r i g i n a l A f f a i r s p o r t f o l i o a g e n c i e s as i t h as i n t h ep a s t . The proposed re fo rms to the I n s t i t u t e c o n t a i n e d in t h eATSIC B i l l shou ld be implemented by amendment o f t h e A u s t r a l i a nI n s t i t u t e o f A b o r i g i n a l S t u d i e s Act 1 9 6 4 . ( p a r a 2 . 4 6 )

The main e f f e c t o f t h i s recommendat ion i s t h a t the re fo rms toAlAS wh ich a r e c u r r e n t l y i n c l u d e d in t he ATSIC B i l l w i l l now bee n a c t e d s e p a r a t e l y. T h e r e would s t l l be 3 ATSIC Co mmiss io n er son t h e C o u n c i l o f t h e I n s t i t u t e .

RESPONSE

Agreed .

C BINET - IN CONFIDENCE

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ATTACHMENT B ~

HECD MMF NDAT I ON 4

The ATSIC B i l l be amended to r e q u i r e t he Commission to r e p o r t tot he M i n i s t e r and to P a r l i a me n t w i t h i n e i g h t e e n months of ATSIC se s t a b l i s h m e n t on :

(a ) the p o t e n t i a l c o n f l i c t s of purpose and r e s p o n s i b i l i t yi d e n t i f i e d a t p a r a g r a p h s 2 .18 and 2 .52 2 . 5 5 ; and

(b) su g g e s t e d l e g i s l a t i v e amendment to r e s o l v e t h e sec o n f l i c t s . ( p a r a 2 .60)

T h i s recommendat ion would e n a b l e any d i f f i c u l t i e s t h a tCo mmiss io n er s may e x p e r i e n c e in r e c o n c i l i n g t h e i r r e p r e s e n t a t i v eand e x e c u t i v e r e s p o n s i b i l i t i e s to be brough t to n o t i c e anda d d r e s s e d .

RESPONSE

Agreed , bu t on b a s i s of rev iew a f t e r 2 y e a r s .

RECDMMENDATION 5

The ATSIC B i l l be amended to r e q u i r e t h e r e s p o n s i b l e M i n i s t e r toc o n s u l t t h e Board o f ATSIC p r i o r to the appo in tmen t o f a C h i e fE x e c u t i v e O f f i c e r . The Commit tee has a l s o recommended a tp a r a g r a p h 3 . 4 7 t h a t the C h i e f E x e c u t i v e O f f i c e r be a p p o i n t e d fora s p e c i f i e d minimum p e r i o d . p a r a . 2 . 6 3 )

T h i s r eco mmen d a t io n would h e l p the d ev e lo p men t o f a sound wo rk in gr e l a t i o n s h i p between Co mmiss io n er s and the C h i e f E x e c u t i v e

O f f i c e r . I t s immediate i m p l e m e n t a t i o n , h o wev er, would r a i s e ap r a c t i c a l d i f f i c u l t y in r e l a t i o n to the f i r s t C h i e f E x e c u t i v eO f f i c e r who w i l l have a v i t a l r o l e in t h e s u c c e s s f u le s t a b l i s h m e n t o f ATSIC.

RESPONSE

Agreed , e x c e p t f o r t h e i n i t i a l appo in tmen t f o r a p e r i o d o f 2y e a r s , a s r e c r u i t m e n t a c t i o n w i l l need to be comple ted by t h et ime ATSIC commences.

RECDMMENDATION 6

They [ t h e Commiss ione rs ] shou ld no t be a b l e to approves u b s t a n t i a l e x p e n d i t u r e s , g r a n t s , loans o r g u a r a n t e e s ) w i t h o u t af u l l w r i t t e n a s se s sm e n t o f p r o p o s a l s i n c l u d i n g r e p o r t s onv i a b i l i t y , 20 o f the B i l lwh ich r e q u i d e l i n e s f o r i t s

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. .

TT CI rMEN T B- - -

o p e r a t i o n s s h o u l d i n c lu d e such n r e q u i r e m e n t . S i m i l a r l y c l a u s e1 4 4 o f th e B i l l which gove rns m e e t i n g s of th e . \EDC Board shou ldb e amended a p p r o p r i a t e l y .

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-

A1YfACIIMENT-- -

RECOMMF..ND ATI ON 9

A r e v i e w o f a r e g i o n a l b o u n d a r y s h o u l d be c o n d u c t e d i f c a l l e d f o rby a t l e a s t 25 o f v o t e r s in a R e g i o n a n d a r e v i e w o f a z o n a lb o u n d a r y on r e q u e s t o f 25 o f t h e v o t e r s i n a Zo n e . p a r a 2 . 7 6 )

T h i s r e c o m m e n d a t i o n i s s e e n a s c o n s i s t e n t w i t h t h e g e n e r a lp r i n c i p l e t h a t A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r p e o p l es h o u l d b e a b l e t o d e t e r m i n e how t h e R e g i o n a l C o u n c i l s t r u c t u r ec a n b e s t m e e t t h e i r n e e d s .

RESPONSE

A g r e e d , s u b j e c t t o r e c o m m e n d a t i o n 1 2 .

R.E X)MMENDAT ION 1 0

T h e D e p a r t m e n t o f A b o r i g i n a l A f f a i r s i n i t i a t e i m m e d i a t e l y ap r o g r a m o f c o n s u l t a t i o n on t h e r e g i o n a l b o u n d a r ie s w i t hc o m m u n i t i e s , o r g a n i s a t i o n s o r i n d i v i d u a l s who h a v e e x p r e s s e dc o n c e r n t o t h i s C o m m i t t e e , t o t h e D e p a r t m e n t o r t o t h e ATSIC Ta s kF o r c e a n d t h a t t h e p r o c e s s o f r e v i s i o n b e a c o n t i n u i n gr e s p o n s i b i l i t y a s o u t l i n e d in p a r a g r a p h 2 . 6 4 . p a r a 2 . 1 1 1 )

C o n s i s t e n t w i t h t h e i n t e n t o f t h i s r e c o m m e n d a t i o n , t h e ATSIC Ta s kF o r c e h a s r e c e n t l y s e n t o u t more d e t a i l e d b o u n d a r y maps t o DAAa n d ADC R e g i o n a l O f f i c e s , s e e k i n g commen ts on w h e t h e r t h e s e wouldr e f l e c t A b o r i g i n a l a n d To r r e s S t r a i t I s l a n d e r p r e f e r e n c e s .P a r t i c u l a r a t t e n t i o n w i l l be g i v e n t o i d e n t i f i e d a r e a s o fc o n c e r n , i n c l u d i n g t h o s e b r o u g h t t o t h e n o t i c e o f t h e S e l e c tC o m m i t t e e .

RESPONSE

A g r e e d .

R.EOJMMENDATION 11

R e g i o n s w i t h p o p u l a t i o n s o f l e s s t h a n 1 0 0 0 e l e c t t e n C o u n c i l l o r s ,t h o s e b e t w e e n 1 0 0 0 a n d 2 0 0 0 e l e c t e l e v e n C o u n c i l l o r s w i t h onea d d i t i o n a l C o u n c i l l o r f o r e a c h t h o u s a n d o f p o p u l a t i o n u n t i l t h o s ew i t h mo r e t h a n 1 0 , 0 0 0 v o t e r s h a ve C o u n c i l s o f t w e n t y C o u n c i l l o r s .

p a r a 2 . 1 1 9 )

T h i s r e c o m m e n d a t i o n r e f l e c t s a c o n c e r n t h a t , i n e l e c t i o n s w i t h i nZ o n e s f o r C o m m i s s i o n e r s , t h e r e be an a p p r o p r i a t e b a l a n c e in

v o t i n g str C iNEf ~ ~ I t d o e s n o t

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.

ATTACHMENT B

a d d r e s s , however, t h e q u e s t i o n o f d i s p a r i t i e s in p o p u l R t i o n s i z e sas be tween Zones , which in many r e s p e c t s may be r e g a r d e d as mores i g n i f i c a n t . By i t s e l f , i t cou ld a l s o b r i n g i n t o s h a r p e r focust he conce rn o f A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r peop le inr u r a l and t r a d i t i o n a l a r e a s t h a t t h e i r i n t e r e s t s may beovershadowed by l a r g e urban p o p u l a t i o n s in t h e i r Zones .

RESPONSE

Ag reed . In a d d i t i o n , t he Government r e c o g n i s e s t h a t t hes p l i t t i n g o f l a r g e r Zones , w i t h a concomi tan t i n c r e a s e in thenumber o f Commiss ione rs , would h e l p to r e s o l v e problems ofp o p u l a t i o n d i s p a r i t i e s . I t w i l l t h e r e f o r e p r o p o s e to t h eP a r l i a m e n t t h a t 5 a d d i t i o n a l Zones be c r e a t e d .

In 3 o f t h e Zones w i t h l a r g e p o p u l a ti o n s - N e w So u th Wales( E a s t ) , Queens land Sou th ) and Weste rn A u s t r a l i a

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...

TI CHMENT n- - - - - -

RECDMMEND T I ON 1 5

r e q u i r e m e n t f o r r e g i o n a l managers to be a v a i l a b l e as r e q u e s t e da t r e g i o n a l c o u n c i l m e e t in g s be i n c lu d e d in t he l e g i s l a t i o n . I fr e g i o n a l c o u n c i l s meet l e s s f r e q u e n t l y than fou r t imes pe r yea rthen the r e g i o n a l manager shou ld p r o v i d e a q u a r t e r l y r e p o r t onh i s o r her work to the Chai rman of the Reg iona l C o u n c i l .

p a r a 2 . 1 5 4 )

There i s no d i f f i c u l t y w i t h the i n t e n t of t h i s p r o p o s a l .

RESPONSE

Agree . The B i l l w i l l be amended to r e q u i r e the C h i e f E x e c u t i v eO f f i c e r to d e s i g n a t e an o f f i c e r o r o f f i c e r s r e q u i r e d to a t t e n dR e g io n a l C o u n c i l m e e t i n g s a t the r e q u e s t of C o u n c i l s .

RECDMMEND TION 1 6

The ATSIC Task F o rc e , as p a r t o f i t s r e s p o n s i b i l i t y f o r theim p le m e n ta t i o n o f ATSIC p re p a re a d e t a i l e d s t a t e m e n t of the r o l eand o p e r a t i o n o f Reg iona l C o u n c i l s f o r wide d i s t r i b u t i o n . This

shou ld i n c l u d e the s t a t u s , a u t h o r i t y and fund ing o f e x i s t i n gcommunity g r o u p s and c o u n c i l s once ATSIC i s in p l a c e .

p a r a . 2 . 1 5 5 )

T h i s i s b e i n g t aken in hand in the c o n t e x t of t h e o v e r a l l s t a f fand community t r a i n i n g and e d u c a t i o n p ro g ram now b e in g deve lopedby t h e ATSIC Task F o rc e .

RESPONSE

Agree .

RECDMMEND TION 1 7

C l a u se 5 2 8 ) be amended to remove t h e r e q u i r e m e n t t h a t t h eM i n i s t e r must t r a n s f e r any i n c r e a s e in the To r r e s S t r a i t Reg iona la l l o c a t i o n f rom t h e o t h e r r e g i o n a l a l l o c a t i o n s . p a r a . 2 . 1 6 3 )

T h i s r eco mmen d a t io n , i f a d o p t e d , would r e q u i r e t h a t anya d d i t i o n a l fu n d s t h a t may be a l l o c a t e d t o t h e To r r e s S t r a i t

Region be found f rom so u r c e s o t h e r t han the a l l o c a t i o n s f o r o t h e rR e g io n a l C o u n c i l s .

RESPONSE

Agree . CABINET IN CONFIDE CE

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~ ~ ~ .

A I TACHMENT B

RECX MMENDAT ION 18

The B i l l be amended to p r o v i d e f o r r e v i e w by ATSIC o f v a r i o u sp r o v i s i o n s . p a r a 2 . 1 7 1 )

T h i s wo u l d a l l o w ATSIC t o m o n i t o r a n d r e p o r t on t h e o p e r a t i o n ande f f e c t i v e n e s s o f r e l e v a n t a s p e c t s o f t h e l e g i s l a t i o n .

RESPONSE

A g r e e .

RECOMMENDATION 1 9

The p a s s a g e o f t h e B i l l t h r o u g h t h e S e n a t e s h o u l d p r o c e e d .p a r a . 3 . 1 6 )

S e l f - e x p l a n a t o r y .

RESPONSE

A g r e e .

RECOMMENDATION 20

T h e p r e a m b l e in i t s p r e s e n t f o r m b e p u t t o t h e P a r l i a m e n t a s as e p a r a t e a n d s i m u l t a n e o u s r e s o l u t i o n w i t h t h e ATSIC B i l l .

p a r a . 3 . 1 6 )

W h i l e t h i s r e c o m m e n d a t i o n wo u l d h e l p m e e t t h e c o n c e r n s o f t h o s ewho m a i n t a i n t h e r e c o u l d b e w i d e r l e g a l i m p l i c a t i o n s o f t h eP r e a m b l e t h o u g h t h e m a j o r i t y r e p o r t n o t e s t h e r e a p p e a r s t o bel i t t l s u b s t a n c e t o s u c h c o n c e r n s ) , t h e a l t e r n a t i v e o f ar e s o l u t i o n w o u l d b e w i d e l y c o n s i d e r e d a s mo re t r a n s i t o r y a n d l e s ss u b s t a n t i a l in f o r m

RESPONSE

No t a g r e e .


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A l TACI IMJ :NT ll

I t i s unders tood t h a t the concern e x p re s s e d to the S e l e c tCommit tee may have a r i s e n from an apprehens ion t h a t t he B i l l , asworded, would enab le the c o l l e c t i o n of i n f o r ma t ion oni n d i v i d u a l s . This has never been in tended .

RESPONSE

The B i l l w i l l be amended to i n c l u d e a pprop r i a t e s a f eg u a r d sa g a i n s t i n t r u s i v e and unnecessary s t a t i s t i c a l c o l l e c t i ons .

RECOMMENDATION 2 4

Any g u i d e l ines govern ing the making o f loans o r the g i v i n g ofg ua r a n t e e s be pub l i she d in the Comm iss ion s Annual Repor t andc i r c u l a t e d to a l l Regiona l Counc i l s . ( p a r a . 3 . 34)

S e l f - e x p l a n a t o r y. A requ i remen t to r e p e a t such g u i d e l i n e s ineach annual r e p o r t , however, may not be the most e f f e c t i v e andeconomic method of promulga t ion .

RESPONSE

Agree , s u b j e c t to the comments no te d .

RECOMMENDATION 2 5

Cla use s 23 and 86 be amended to e x t e n d the p e r i o d o fi n e l i g i b i l i t y to one f u l l t e rm of a Regiona l Counc i l a f t e rcomple t ion o f the t e rm o f imprisonment . p a r a . 3 .40 )

Th i s p r oposa l would d i f f e r from the approaches t aken on the i s su eo f i n e l i g i b i l i t y in o t h e r Commonwealth l e g i s l a t i o n . I t i sc o n s i d e r e d t h a t a p r e f e r a b l e approach would be to adopt thescheme p ro v i d e d in the r ecen t l e g i s l a t i o n f o r CT s e l fgovernmen t .

RESPONSE

I t w i l l be proposed to the P a r l i a me n t t h a t the B i l l be amended top r ov ide t h a t a person w i l l be i n e l i g i b l e i f c o n v i c t e d and unders e n t e n c e f o r an o ff en ce pun i sha b le by impr isonment f o r f i v e y e a r so r l o n g e r.


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ATTAaiMENT B

RECD MMEND AT ION 2 6

C l a u s e s 23(2) and SG{c) be s t r e n g t h e n e d by i n c l u d i n g s p e c i f i co f f e n c e s and removing t he 1 im i t of one year or l o n g e r ons e n t e n c e s . In a d d i t i o n t he i n c l u s i o n of u n d i s c h a rg e d b a n k r u p t c ya s a g ro u n d fo r i n e l i g i b i l i t y i s s u p p o r t e d . para . 3 . 4 1 )

The comments above to recommendat ion 25 app ly h e r e a l s o .

RESPONSE

As f o r recommendat ion 25 .

RECDMMENDATION 2 7

C l a u se 31 , Te r m i n a t i o n o f Ap p o i n t m e n t , shou ld be amended tomake i t manda to ry t h a t a Commiss ioner c e a se to ho ld o f f i c e wherehe or she i s c o n v i c t e d o f an o f f e n c e ment ioned in c l a u s e 23 o rbecomes b a n k r u p t d u r i n g h i s or he r t e rm o f s e r v i c e . C la u s e 104a l r e a d y p ro v i d e s f o r the d i s m i s s a l of a Regiona l C o u n c i l l o r insuch c i r c u m s t a n c e s . ( p a r a . 3 . 4 2 )

C l a u se 104 d o es no t p r o v i d e f o r the d i s m i s s a l o f a R e g io n a lC o u n c i l l o r on t h e b a s i s o f b a n k r u p t c y. However i t i s a c c e p t e dt h a t a p p o in tm e n t s s h o u ld be t e rmi n a t e d i f a p e r so n i s c o n v i c t e dand unde r s e n t e n c e f o r an o f f e n c e p u n i s h a b l e by imprisonment f o r5 y e a r s o r l o n g e r.

T h i s app roach would pu t Co mmiss io n er s on the same b a s i s asR e g i o n a l C o u n c i l l o r s .

RESPONSE

A g r e e , s u b j e c t to comments above .

RECDMMENDATION 2 8

The Commit tee s u p p o r t s the p r o p o s a l s t h a t the Dep u ty C h a i r p e r s o nbe an e l e c t e d Commiss ioner ; t h a t the p o s i t i o n be r o t a t e da n n u a l l y ; t h a t an e l e c t e d Commissioner as Dep u ty C h a i r p e r s o nwould be in the s p i r i t o f community p a r t i c i p a t i o n ; and t h a t t hep o s i t i o n o f Dep u ty C h a i r p e r s o n shou ld be r o t a t e d amongCommiss ioner s . I t recommends t h a t c l a u s e 24 be amendeda c c o r d i n g l y . ( p a r a . 3 . 4 5 )

S e l f - e x p l a n a t o r y.


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TT CHMENT B

RESPONSE

A g r e e .

RECOMMENDATION 29

C l a u s e 25 be a m e n d e d to e s t a b l i s h a min imum p e r i o d o f a p p o i n t m e n tf o r C o m m i s s i o n e r s o f two y e a r s o r u n t i l t h e n e x t z o n e e l e c t i o n ,w h i c h e v e r f a l l s e a r l i e r . The C o m m i t t e e a l s o r ecom m ends t h a tc l a u s e s 38 and 136 be am ended to r e q u i r e t h a t t h e i n s t r u m e n t sa p p o i n t i n g t h e C h i e f E x e c u t i v e O f f i c e r a n d t h e D i r e c t o r o f t h e

AEDC s t a t e t h e min imum p e r i o d o f a p p o i n t m e n t b e i n g a p e r i o d o fn o t l e s s t h a n two y e a r s in t h e c a s e o f t h e C h i e f E x e c u t i v eO f f i c e r a n d o n e y e a r i n t h e c a s e o f t h e D i r e c t o r s o f t h e AEDC

p a r a . 3 . 4 7 )

T h i s r e c o m m e n d a t i o n i s i n t e n d e d t o e n s u r e a m e a s u r e o f s t a b i l i t yf o r ATSIC a n d t h e AEDC

RESPONSE

A g r e e .

RECOMMENDATION 3

C l a u s e 28 be am ended

i ) t o p r o v i d e f o r t h e e l e c t i o n o f a r e p l a c e m e n t C o m m i s s i o n e rw h e r e t h e o f f i c e o f C o m m i s s i o n e r b e c o m e s v a c a n t a n d w h e r et h e n e x t e l e c t i o n f o r C o m m i s s i o n e r s w i l l n o t b e h e l d f o rm o r e t h a n s i x m o n t h s ; a n d

i i ) t o e n s u r e t h a t M i n i s t e r i a l a p p o i n t m e n t s o f a c t i n g

C o m m i s s i o n e r s w h e t h e r i n t h e p l a c e o f a p p o i n t e d o r e l e c t e dC o m m i s s i o n e r s b e r e s t r i c t e d t o a p e r i o d o f s i x m o n t h s a n dn o t b e r e n e w a b l e . p a r a . 3 . 5 0 )


RESPONSE

A g r e e .


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j

ATI ACfiMENT n

RECD MM 2IDAT I ON 31

A l i m i t o f s i x months be p la c e d on t h e t e rm of l eave to bea l lowed u n d er c l a u s e 27. lp a r a . 3 . 51

CDMMENT


RESPONSE

Ag ree .

RECDMMENDATION 3 2

The Commit tee does no t c o n s i d e r i t a p p r o p r i a t e t h a t the mosts e n i o r e x e c u t i v e p o s i t i o n in ATSIC shou ld be f i l l e d on an a c t i n gb a s i s f o r e x t e n d e d p e r i o d s and t h e r e f o r e recommends t h a t the

M i n i s t e r be r e q u i r e d to i l l the p o s i t i o n on a p erman en t b a s i swhere t h e p o s i t i o n w i l l be v a c a n t f o r more t han s i x mo n th s .( p a r a . 3 . 5 3 )


RESPONSE

Agree .

RECDMMENDATION 33

Where a member has a p e c u n i a r y i n t e r e s t in a m a t t e r b e f o r e t he

Commission he o r sh e s h a l l no t be p r e s e n t a t , o r p a r t i c i p a t e i n ,any m e e t i n g o f the Commission to c o n s i d e r t h a t m a t t e r .( p a r a . 3 . 6 0 )


RESPONSE

Agree .

RECDMMENDATION 3 4

The s u f f i c i e n t number o f s i g n a t u r e s f o r a v a l i d r e c a l l p e t i t i o nu n d e r c l a u s e 32 be reduced to 66 o f e n r o l l e d v o t e r s w i t h i n azone .

( p a r C B N T IN CONFIDENCE

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COMMF NT


RESPONSE

Agree , s u b j e c t to recommendat ion 12 .

RECX>MMENDATION 3 5

Where the M i n i s t e r makes t erms and c o n d i t i o n s u n d er c l a u s e 34 or

the o t h e r s i m i l a r p r o v i s i o n s c i t e d below t h a t t h e y be p u b l i s h e din t he Commonweath G a z e t t e p a r a . 3 . 6 1 )


RESPONSE

Agree .

RECX>MMENDATION 3 6

ATSIC draw up and p u b l i s h c r i t e r i a g o v e r n in g th e employment o fc o n s u l t a n t s . F u r t h e r , where t erms and c o n d i t i o n s of employmenta s i d e f rom commercia l o r o t h e r c o n f i d e n t i a l m a t t e r s a r ed e t e r m in e d unde r s e c t i o n 47 t hey shou ld be p u b l i c l y a v a i l a b l e .

p a r a . 3 . 6 6 )

COMMENT


RESPONSE

Agree .

RECX>MMENDATION 3 7

A b o r i g i n a l o r To r r e s S t r a i t I s l a n d e r C o r p o r a t i o n s , i n c o r p o r a t e du n d er t h e laws o f a S t a t e o r Te r r i t o r y be deemed to bei n c o r p o r a t e d b o d ie s f o r t h e p u r p o s e s o f ATSIC. p a r a . 3 . 7 2 )

ATSIC i s a l r e a d y r e q u i r e d by t he l e g i s l a t i o n to r e c o g n i s eA b o r i g i n a l c o r p o r a t i o n s whe the r i n c o r p o r a t e d u n d er Commonwealtho r S t a t e / Te r r i t o r y l aws) i f a l l members a r e A b o r i g i n a l s o r To r r e sS t r a i t I s l a n d e r s o r the Commission i s s a t i s f i e d t h a t thec o r p o r a t i o n i s c o n t r o l l e d by them.


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ATTACIIMEt-.. T B

R ESPONSE

C o n s i s t e n t w i t h e x i s t i n g p r o v i s i ons of the B i l 1.

RECOMMENDATION 38

The Commit tee i s conce rned t h a t t h e c a t e g o r i e s of i n c o r p o r a t e db o d ie s r e f e r r e d to in Recommendat ion 37 may e x c lu d e bodyc o r p o r a t e s whi ch a r e n o t c o n t r o l l e d by A b o r i g i n a l s or I s l a n d e r sb u t have as t h e i r p r i n c i p a l o b j e c t t h e p r o v i s i o n of s e r v i c e sto A b o r i g i n a l s o r To r r e s S t r a i t I s l a n d e r s , f o r example

o r g a n i s a t i o n s o p e r a t e d by t he v a r i o u s c h u r c h e s . The r e l e v a n tc l a u s e s o f th e B i l l s h o u l d be amended t o e n a b l e t he Commission tomake g r a n t s to any body c o r p o r a t e which meet s t h e c r i t e r i o ne s t a b l i s h e d ab o v e . p a r a . 3 . 7 3

Some b o d ie s which a r e no t co mp r i sed o f , o r c o n t r o l l e d by,A b o r i g i n a l and To r r e s S t r a i t I s l a n d e r s r e c e i v e a s s i s t a n c e w i t hth e p r o v i s i o n o f s e r v i c e s to them.

RESPONSE

Agree , s u b j e c t to M i n i s t e r i a l a p p r o v a l to e n s u r e t h a t t he b a s i ci n t e n t i o n of the ATSIC l e g i s l a t i o n t o encourage A b o r i g i n a l and

To r r e s S t r a i t I s l a n d e r se l f -management w i l l no t be im p a i r e d .

REMMENDATION 3 9

The B i l l be amended to remove t he r e q u i r e m e n t s t h a t t h e AEDC bel i a b l e to pay d i v i d e n d s and t a x a t i o n on p r o f i t s o r incomeg e n e r a t e d by the C a p i t a l Fund. p a r a . 3 . 7 8 )

The r e q u i r e m e n t to make such payments i s seen as i n t e r - r e l a t e dw i t h the com m er c i a l o r i e n t a t i o n o f t h e AEDC Giv en t h a t t h i so r i e n t a t i o n i s to be m a i n t a i n e d s e e r ecom m enda t i on 2 ) , i t i sc o n s i d e r e d t h a t t h e p r o p o s e d change c a n n o t be j u s t i f i e d a t t h i st i m e .

RESPONSE

Not a g r e e .

REMMENDATION 40

The B i l l w i t h amendments s h o u l d p r o c e e d and t h a t in the s p i r i t o fs e l f - d e t e r m i n a t i o n ATSIC s h o u l d be c h a rg e d w i t h t he r e s p o n s i b i i t yf o r m o d i f y in g i t s own s t r u c t u r e . p a r a . 4 . 7 7


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i \ I T A C I I M I < ~ N T

CX MMF..NT

The i n t e n t o f t h i s r e c o m m e n d a t i o n i s se e n a s r e c o g n i s i n g r,hatATSIC, w i t h i n t h e c o n f i n e s o f t h e p o w e r s c o n f e r r e d on i t by t h eP a r l i a m e n t s h o u l d h a v e c a p a c i t y to e v o l v e t o m e e t t h ec h a l l e n g e o f c h a n g i n g n e e d s . As a p p r o p r i a t e t h e M i n i s t e r wouldbe i n v o l v e d i n t h i s p r o c e s s a n d ATSIC s a n n u a l r e p o r t s w o u ldi n c l u d e d e s c r i p t i o n s o f a c t i o n s t a k e n o r p r o p o s e d .

RESPONSE

A g r e e .


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i \ ' l ' T i \ C l M E ~ ' TC

SENATE SELECT CX)MMt'lvr'EE ON I_IlE i\OMINISTRATIO 'f_1 < ~ ABORIGINAL i\FFATH S- - - - - - - -

MINORITY REPORT RFXX)MMF...NDAT IONSRELATING TO ATSIC

S e n a t o r s Baume and B o s w e l l

RE(X)MMENDATION 1

We recommend t h a t t h e B i l l now b e f o r e t h e P a r l i a m e n t b e w i t h d r a w n

a n d t h e w h o l e c o n c e p t t r e p r e s e n t s b e r e c o n s i d e r e d .

CX>MMENT

The G ove r nme n t i s p r o c e e d i n g to make t h e v a s t m a j o r i t y o f t h e

a me n d me n t s s u g g e s t e d by t h e m a j o r i t y r e p o r t . The Go v e r n me n t does

n o t a c c e p t t h a t t h e ATSIC c o n c e p t i s somehow f l a w e d and o u g h t to

b e r e c o n s i d e r e d .

RESPONSE

No t a g r e e d .

RE(X)MMENDATION 2

We t h e r e f o r e recommend t h a t t h e ATSIC B i l l n o t b e f u r t h e rp r o c e e d e d w i t h b e c a u s e o f t h e d e m o n s t r a t e d i n a d e q u a c y o f t h e

c o n s u l t a t i o n p r o c e s s .

The G ove r nme n t h as a c c e p t e d t h e m a j o r i t y r e p o r t r e c omme n d a t i on t o

p r o c e e d w i t h t h e B i l l and d oe s n o t a c c e p t t h a t t h e c o n s u l t a t i o n s

u n d e r t a k e n w e r e i n a d e q u a t e .


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0


i \ T T i \ C l i ~ 1 E N T

RESPONSE

N o t a g r e e d .

RECDMMENDATION

e r ecommend t h a t t h e TSIC B i l l n o t b e f u r t h e r p r o c e e d e d w i t h

a n d t h a t a d e q u a t e c o n s u l t a t i o n a s was p r o m i s e d t

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1988-89 cabinet paper 6369