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Contents
Foreword
Key Questions on the '10 Point Plan
1 What is the Ten Point Plan?2. Was native title widely assumed
to be
extinguished on pastoral leases?3. What are the main concerns of
indigenous people
with the Plan?4. Does the 10 Point Plan extinguish native
title on pastoral leases?5. What happens to the Right to
Negotiate?6. What is the effect of applying the
'primary production' definition?.7 . Does the l0 Point Plan give
access rights
to native title holders?
Commentary on each of the 10 Points
Explanation of some terms
Produced by the Wik TeamAboriginal and Torres Strait lslander
CommissionJune 1 997
Copies of this report, and other native title publicatronsare
available on the lnternet at http://www.atsic.gov.au
4-9
7
8
9
10-18
19
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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This analysis of the 10 Point Plan has been prepared as a
contribution toinformed discussion, and to identify the main areas
of concern to indigenouspeople.
ln particular, the analysis will serve as a guide to the
Government s draftlegislationonthel0PointPlan.
Whetherthedraftlegislationclearsuppointsofuncertainty or simply
confuses the issues with its detail remains to be seen. lnany
event, the dramatic impact the 10 Point Plan will have on the
rights ofindigenous people is already certain.
ln conclusion, I wish to emphasis that indigenous people have
made clearfrom the outset that we accept the principle of
co-existence with pastoralists,and that we agree to the
confirmation of pastoralists' existing rights, in legisla-tion if
that is necessary. However, we are not prepared to see an expansion
ofpastoralists' rights at the expense of native title.
lndigenous people remain prepared to take part in bona fide
negotiationswith governments and industry groups to develop fair
and practical arrange-ments that will bring certainty for all
parties.
@k*Gatjil Djerrkura OAMChairmanATSIC
The Wik Peoples v Queensland and Ors (1996) 121 ALR 129Mabo v
Queensland (No2) (1992) 175 CLR 1
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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2. Was native title widely assumed to be extinguished onpastoral
leases?
The Government continues to assert that, until lhe Wik decision,
there was "awidely held assumption" that native title was
extinguished by the grant of apastoral lease. lt also claims that
the Native Title Act 1993 was developed onthis assumption.
This assertion is used by the Government to justify the drastic
proposalscontained in the 10 Point Plan.
The Government's assertion is wrong. lt represents a serious
misreading ofrecent history in respect of the Mabo decision and the
subsequent developmentof the NTA.
ln fact all stakeholders were aware after the Mabo decision that
the questionof the survival of native title on pastoral leases had
not been answered by theHigh Court. Governments took the policy
position that pastoral leases extin-guished native title while
knowing that the matter was still to be resolved in thecou rts.
lndigenous interests made clear from the outset that they did
not accept thatnative title was necessarily extinguished in law by
the grant of a pastoral lease.
As well, the Nafive Title Act 7993 did not attempt to resolve
this matterby statute. lt was agreed at the time that indigenous
Australians would not beprevented from attempting to establish
therr native title rights on pastoral leasesat common law. In fact,
relevant provisions of the NtR assume the possiblecontinued
existence of native title on pastoral leases.
The Government knew of the possibility of the continued
existence of nativetitle on pastoral leases on coming to office in
March 1996 because:. the Wik case itself had been continuing in the
courts, notwithstanding
the passing of the NTA in 1993, and every lawyer in Australia
knewthe question had not been resolved;r the High Court inlhe
Waanyis case in April 1996 refused to rule out anapplication for
native title over a pastoral lease, saying the issue of
theexistence of native title on a pastoral lease was fairly
arguable; and. the Government's own discussion paper of May 19966
on its proposedamendments to the NTA acknowledged that the High
Coulc had not yetruled on the issue, and indicated the Government's
desire to facilitatecertain acts on pastoral leases which were
problematic because ofcontinuing uncertainty about native title and
pastoral leases.
It does little credit to the Plan and its explanation to see
continuing argumentthat there was a widely shared assumption of
extinguishment of native title onpastoral leases.
North Ganalanja Aboriginal Corporation v Queensland (1996) 185
CLR 595Towards a More Workable Native Tttle Act. An )utltne of
Proposed Amendments May 1 996
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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5. What happens to the Right to Negotiate?The Right to Negotiate
(see Glossary) is a central provision of the NTA. lt applieswhen i
government proposes to create, vary or e>ctend mining titles, or
when itpropot.i to compulsorily acquire native title land for the
purpose of conferringinterests on persons other than the government
("third parties")'
The Right to Negotiate was agreed with indigenous interests as
part of thenegotiations for the NTA. These negotiations involved
major concessions fromthJindigenous side including an agreement to
validate all potentially invalidinterests granted up to the
commencement of the NTA.
fhe night to Negotiate reflects the special quality of the
attachment thatindigenous people have to land. lt provides a
mechanism for indigenous peopleto have a meanrngful input into
decisions about the development of their landHowever, and most
importantly, it does not constitute a right of veto. The Rightto
Negotiate provides a limited period in which to negotrate an
agreement over aproposed development. lf agreement is not reached
the proposal can go toarbitration, which is subject to Ministerial
override.
Under the 10 Point Plan, this basic native title right will be
removed altogetherin respect of current or former pastoral leases,
thus to a considerable degreenullifying the Wk decision. Also, the
Right to Negotiate will not apply within theboundaries of towns or
cities when native title rights are to be acquired bygovernment for
third party developers. Outside towns and cities, it wrll not
applyif the acquisition relates to private development of
"government-type infrastruc-ture" and even, apparently, to mining
project infrastructure.
It becomes difficult to identify parts of Australia where, under
the proposedarrangements, any native title holders will have any
Right to Negotiate under theNTA.
Where the Right to Negotiate still applies, it will be reduced
in scope andrestricted in opeiation so as to result in considerable
diminution of its utility inprotecting native title rights. The
Right to Negotiate, a central provision of theNTA, will be
effectively reduced to a shadow of its original intent'
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
-
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.9
-
Commentary on each of the 1O Points in the Government's Plan
........
1. Validation of acts/grants between 111194 and
23112196Legislative action will be taken to ensure that the
validity of a1y acts orgrints made in relation to non-vacant crown
land in the period between[assage of the Native Title Ad (NTA) and
the Wrk decision is put beyonddoubt.
lndigenous representatives have made clear their agreement to
the confirmationof all pastoral acts conducted within the terms of
existing pastoral leases.Typically, this would cover raising
livestock and incidental activities such asestablishing fences,
yards, bores, mills and accommodation.
The validation of grants is a different question. These grants
include manyexploration and mining tenements. All governments were
on notice that thequestion of native title on pastoral leases had
not been resolved in the courtsand that the NTA provides processes
(provisions for the Right to Negotiate andfor non-claimant
applications) for making such grants with certainty OnlyWestern
Australia extensively used these processes. ln States which chose
not touse the processes, native title holders were effectively
denied the Right toNegotiate, including over some large mining
developments.
The Government's proposal for blanket validation of grants is
inherentlyunfair, offers little to natrve title holders whose
rights have been side-stepped,and rewards those states which have
ignored or defied the provisions of theNTA. Yet, the Commonwealth
will provide 75 per cent of the compensationcosts to native title
holders with the States to fund the other 25 per cent. ln
thecircumstances, this is certainly a generous offer on the part of
the Common-wealth.
There may also be problems for one-line validation in meeting
Constitutionalrequirements in respect of "just terms" compensation,
when the people entitledare in no position to know that their
rights have been affected by the validation.
.o.aooooCor
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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-
Commentary on each of the 10 Points in the Government's
3. Provision of Serviceslmpediments to the provision of
government seruices in relation to landon which native title may
exist would be removed.
This proposal is obscure. lt seems to mean that native title
holders will not betreated the same as ordinary title holders, and
will not be able to exercise theprocedural rights of ordinary title
holders in respect of the provision of municipalservices by
governments and local governments, short of those requiring
com-pulsory acquisition of native title. The proposal is aimed
particularly at rural andremote areas.
Depending on the definition provided for such activities, there
is the potentialfor significant diminution of native title rights.
Local councils may be able tolargely ignore native title holders,
leaving indigenous people as onlookers in themanagement and control
of native title land.
Current provisions in the NTA are adequate to deal with these
matters, andlocal authorities should be encouraged to negotiate
Co-operative arrangementswith natrve title holders, as already
occurs in some areas.
4. Native title and pastoral IeasesAs provided in the lTrk
decision, native title rights over curent or formerpastoral leases
and any agricultural leases not covered under 2 aboveivould be
permanently extinguished to the extent that those rights
areinconsistent with those of the pastoralist.
All activities pursuant to, or incidental to, "primary
production" (this willbe based on ihe definition in the Incom e Tax
Assessment Act 1934 wouldbe allowed on pastoral leases including
farmstay tourism, even if nativetitle exists, provided the dominant
purpose of the use of the land isprimary production. However,
future government action such as upgrad'ing of iitie to perpetual
or "exclusive" leases or freehold, would necessi'taie the
acquisition of any native title rights proven to exist and
theapptication of the regime described in 7 below (except where
this isunnecessary because the pastoralist has an existing legally
enforceableright to upgrade).
Pastoral leases generally limit the rights of pastoralists to
grazing and incidentalpurposes. The definition of primary
production based on the /ncorne Tax Assess-ment Act 1936 is much
wider including agriculture, horticulture, fishing andforest
operations. Lifting the NTA future act processesl from all prrmary
produc-tion as proposed will provide for States to authorise much
more intensive use ofpastoral land than may be the current
situation without negotiation withnative title holders.
This is unfair to native title holders who may lose any
opportunity for enjoyingtheir residual native title rrghts because
of development of intensive agriculture,tourism ventures, etc, on
native title land.
' 5ee G/ossa,y
P|an........ o..aooro Con
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UPl,
-
Commentary on each of the 10 Points in the Government's
The aftermath of the payment of award wages was the widespread
disposses-sion of Aboriginal communities living on pastoral
leases.
The Government's proposal means that those who currently have
access willhave that situation confirmed. However, those who have
strong traditionalaffiliations but have been denied access may not
obtain the access they seekeven when they have passed the stringent
registration test for their claim.
The requirement for current physical access is illogical,
unfair, and rewardsthose pastoralists who have obstructed lawful
access to traditional country.lndeed it may encourage pastoralists
to deny access prior to the commencementof the amendments.
6. Future mining activityFor mining on vacant crown land there
would be a higher registration testfor claimants seeking the right
to negotiate, no negotiations on explora'tion, and only one right
to negotiate per project. As currently provided inthe NTA, states
and territories would be able to put in place alternativeregimes
with similar right to negotiate provisions.
For mining on other "non-exclusive" tenures such as curent or
formerpastorat leasehold land and national parks, the right to
negotiate wouldcontinue to apply in a state or territory unless and
until that state orterritory provided a statutory regime acceptable
to the Commonwealthwhich included procedural rights at least
equivalent to other parties withan interest in the land (eg the
holder of the pastoral lease) and compen-sation which can take
account of the nature of co'existing native titlerights (where they
are proven to exist).
In relation to mining activity on vacant Crown land, the 10
Point Plan is essen-tially stating that the GovernmentS previously
proposed amendments to theRight to Negotiate will go ahead. These
amendments impact on most parts ofthe operation of the Right to
Negotiate provisions. They will, among otherchanges, make it harder
for native title holders to access the Right to Negotiate(through a
more stringent registration test), allow only one Right to
Negotiate forprojects (either through exclusion of exploration or
through a conjunctiveagreement covering both exploration and
mining), and make it easier forgovernments to avoid or override
negotiations (eg through increased opportunityfor ministerial
intervention).
The extingurshment proposals under Point 2 in respect of
"exclusive tenures"will cut out the Right to Negotiate processes
altogether for affected areas.
These changes will significantly reduce the rights of indigenous
people tohave some say about activity on their land and 9o well
beyond the requirementsof workability. The Right to Negotiate
reflects the special quality of the attach-ment that indigenous
people have to land. lt reflects indigenous law and customand can
be seen as an incident of native title. lt is not possible for the
Govern-ment to significantly reduce the operation of the Right to
Negotiate and at thesame time claim to be respecting the principles
of native title.
Plan ..o..... .... oooo Con
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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UOl,
-
Commentary on each of the 10 Points in the Government's Plan
........
Under the current NTA any compulsory acquisition of native title
rights for thebenefit of a third party must go through the Right to
Negotiate procedure.
The 10 Point Plan takes away this right where:. the third party
is providing government-type infrastructure (ie privatedevelopment
of public infrastructure); or. the land is within the boundary of a
town or city; or. the native title rights which are being acquired
are on a "non-exclusive"tenure such as a pastoral lease (eg to
allow for an upgrade of a pastorallease).
These proposals represent a significant loss of rights for
native title holders.ln respect of privately developed
infrastructure, this proposal raises
problems of definition between "government-type" infrastructure
(para7.2 ofExplanation document) and what is clearly for private
purposes. lt is understoodthat since the Explanation document was
released, this exemption from theRight to Negotiate has been
widened-out to cover dedicated infrastructureassociated with mining
projects, ie private purpose infrastructure.
ln respect of towns and cities the proposal means that native
title rights willyield to others, such as subdivision developers,
with only the limited proceduralrights of other landholders.
The acquisition of native title rights for the benefit of third
parties onpastoral leases, without the Right to Negotiate applying,
is no ordinary type ofcompulsory acquisition of property. The
taxpayer will fund the compulsoryacquisition of the property rights
of one group of private citrzens (native titleholders), in order to
enhance the rights of another group of private
citizens(pastoralists).
Most Governments in Australia limit their compulsory acquisitton
powers toland needed for public purposes. This proposal will give
legitimacy to a govern-ment taking from one citizen to give to
another. lt is fundamentally unfair anddiscriminatory. The
provision of compensation, required by the Constitution,does not
justify this expropriation of rights.
The Prime Minister has also announced that for such future acts
of compul-sory acquisition by the States the Commonwealth will
contribute to the compen-sation required on a 75 per cent to 25 per
cent split. This arrangement, new toCommonwealth/State arrangements
in respect of future acts affecting nativetitle. will expose the
Commonwealth to a potentially very large financial burden.
ln respect of national parks, forest reserves, and the taking of
timberand gravel on pastoral leases, it appears that any native
title rights are largelyto be set aside, and that there will be
little or no input from native title holderson the management of
such resources, even though native title rights may existat
law.
The Ten Point PIan on Wik and Native Title - lssues for
lndigenous Peoples
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........
a.......
Uel,
-
Commentary on each of the 10 Points inthe Government's Plan
........
10. AgreementsMeasures would be introduced to facilitate the
negotiation of voluntarybut binding agreements as an alternative to
more formal native titlemachinery.
Agreements provide a potentially useful mechanism for dealing
with develop-ment and native title. However, the other proposals of
the t 0 Point Plan mayreduce their utility. There may be little
incentive for governments and others tonegotiate agreements if
there is to be such an extinguishment of native title and,where it
survives, such a dismantling of the Right to Negotiate.
ReferenceFor details of the indigenous position in respect of
the Government's responseto Wik and native title matters see
Coexrstence - Negotiation and Certainty:lndigenous Position in
Response to the Wik Decision and the Government'sProposed
Amendments to the Native Title Act 7993 National lndigenousWcrking
Group, April 1997.
For copies please contact Kylie Higgins, ATSIC Wik Team, on 06
289 3348.
The Ten Point Plan on Wik and Native Title - lssues for
lndigenous Peoples
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