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Negotiating Settlements: Indigenous people, settler states and Negotiating Settlements: Indigenous people, settler states and the significance of treaties and agreementsthe significance of treaties and agreements
Mining-Indigenous Agreement Making
A Global Context
Bruce HarveyChief Adviser Aboriginal & Community Relations
Neville TiffenChief Counsel Rio Tinto Australia
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Presentation OverviewPresentation Overview
• Rio Tinto • Mining Industry – Indigenous Relations
– 1970’s –1980’s• Paradigm Shift
– 1990’s • Western Cape Communities Co-existence Agreement
– a ‘rights-based’ agreement on Cape York • Globalisation
– an analysis of the global context
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Rio Tinto - Location of OperationsRio Tinto - Location of Operations
Diamonds
TiO2 / Iron
GoldBorates
Copper /Gold /
Silver /Molybdenum
CoalGold
Talc Coal
Talc
Iron oreNickel
Borates
Copper
Gold
Aluminium
TalcCopper / Tin
UraniumGold
TiO2
Copper
Coal
Gold
Copper / Gold
Gold
DiamondsSalt
Iron ore
Aluminium
Aluminium
CoalGold
BauxiteCoalAluminaAluminium
Coal
Copper/gold
Zinc
Iron Ore
Uranium
Copper/gold
Zinc, silver and gold
Talc
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Rio Tinto - Spread of AssetsRio Tinto - Spread of AssetsAssets at end 2001 - US$13 billion
Africa
3%
Europe
3%
Indonesia
4%S America
5%Australia &NZ
45%
USA
25%
Canada15%
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Australian Operations & Land StatusAustralian Operations & Land Status
500km
NWA99005.ppt 02-11-1999
Private Lands
RTE Tenement
Pastoral Leases
Aboriginal Land
Native Title Claim
Rio Operation
National Parks
Darwin
CAP
Peake
Robe
Bell Bay
Comalco Weipa
North Parkes
Pacific Coal
Argyle Diamonds
ERA
Hamersley Iron
Perth
Dampier Salt
Three SpringsCoal & Allied
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Mining Industry Position 1970’s-80’sMining Industry Position 1970’s-80’s
• Mining Industry Solidarity
• 20 years Land Rights Experience : NT/SA
• No recognition of Aboriginal rights
• Stonewalling on Native Title
• Emphasis on legislation & litigation
• Chronic lack of exploration access : NT/SA
• Emerging scenario elsewhere
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Why?Why?
• Farmer, pastoralists, miners: 1970’s & 80’s– Decades of promise & frustration– International demand for commodities – Corporate & national pride – Vital & heroic endeavour
• Paradox of public support wavering– Infringement of Aboriginal rights– Threat to environment
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• A decade of legal debate - Mabo
• Served to clarify & confuse
• Relationships rather than litigation
• Recognition of ‘standing’
• The need for ‘modern’ agreements
Paradigm Shift in the 90’sParadigm Shift in the 90’s
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Leon Davis, Incoming CEOLeon Davis, Incoming CEO
“In CRA, we believe there are major opportunities for growth in outback Australia which will only be realised with the full co-operation of all interested parties”
The Native Title Act….”laid the basis for better exploration access and thus increased the probability that the next decade will see a series of CRA operations developed in active partnership with Aboriginal people”
Securities Institute, March 1995
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Leon DavisCRA MDs ConferenceApril, 1995
Culture Shift -1995Culture Shift -1995
• It is my desire to move away from a litigious framework
• I wish to open channels to those who are not favourably disposed to Rio Tinto
• I want to establish innovative ways of sharing with and/or compensating indigenous people
• I believe that a negative attitude will produce negative results
• I have an open mind on how we should approach the question
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Aboriginal & Torres Strait Islanders Policy
This Policy is based upon recognition and respect.Rio Tinto recognises that Aboriginal and Torres Strait Islander people in Australia:
have been disadvantaged and dispossessed have a special connection to land and waters have native title rights recognised by law
Rio Tinto respects Aboriginal & Torres Strait Islander peoples’ cultural diversity aspirations for self sufficiency interest in land management
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In all exploration and development in AustraliaRio Tinto will always consider Aboriginal and Torres Strait Islander people issues.Where there are traditional or historical connections to particular land and waters, Rio Tinto will engage with Aboriginal and Torres Strait Islander stakeholders and their representatives to find mutually advantageous outcomes. Outcomes for Aboriginal and Torres Strait Islander people will result from listening to them.Economic independence through direct employment, business development and training are among the advantages that Rio Tinto will offer. Strong support will be given to activities that are sustainable after Rio Tinto has left the area.
Leigh CliffordChief Executive
Aboriginal & Torres Strait Islanders Policy
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Policy ImplementationPolicy Implementation
• Regional & Land Access Agreements
• Regional Development Programs
• Rio Tinto Aboriginal Foundation
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Regional & Land Access AgreementsRegional & Land Access Agreements
• Rio Tinto seeks consultative mine development and land access agreements with Aboriginal TO’s & groups affected by Rio Tinto operations.
• Wherever appropriate and possible we seek to include State governments in tripartite arrangements
• Since 1996– 5 major mine development agreements– 30 exploration access agreements
• 2001– Eastern Guruma Agreement – Western Cape Communities Agreement
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Rio Tinto Operations & Land Use AgreementsRio Tinto Operations & Land Use Agreements
Rio Tinto Exploration Tenement
Rio Tinto Operating Site
Land Use Agreement Completed or Pending
500km
Hamersley Iron
Comalco Weipa
Pacific CoalComalcoGladstone
Coal & Allied
KintyreGurama
Yandicoogina
Kimberley MOUBalanggara Benda Bluff
Mt Lean
Century
Western Cape
Hail Creek
Wellington Common
Hunter Valley
Mt Davies De Rose Hill
WA
QLD
NSW
SA
VIC
TAS
Far West Coast SA
Dambinangari
Yulga JinnaWhite Lakes
Mt Candolle
Nyamal
Yamtaji Land
Thalanyji
Pine Ridge
Walgundu
Sth Nicholson
Stokes RangeArgyle Diamonds
NTRobe
Peak Gold
ComalcoBell Bay
ERA
North Parkes
Dampier Salt
Three Springs
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Western Cape Communities Co-existence Agreement
March 2001• Comalco• Cape York Land Council• 11 Traditional Owner Groups• Councils (Aurukun, Napranum, Mapoon
and New Mapoon)• Queensland Government
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Weipa
Mapoon
Aurukun
Napranum
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Western Cape CommunitiesWestern Cape Communities
• Weipa Population 2000» Daily Jet Service to Cairns» Regional Centre » Company Town
• Napranum Population 1000» 7 km from Weipa» Local Council
• Aurukun Population 1000» 200 km by dirt road from Weipa» Shire Council
• Mapoon Population 250» 80 km by dirt road from Weipa» Local Council
• New Mapoon Population 280» 250 km by dirt road from Weipa» Local Council
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1957 – Comalco awarded mining lease from Qld Govt
1961 – First bauxite mined and shipped from Weipa
1963 – Mapoon closed - Forced removal many families
1992 – Mabo decision - Landmark for Native Title rights
1993 – Wik Peoples challenged Comalco Act & Lease
– Native Title Act
1995 – Comalco begins negotiations with CYLC
1996 – Wik: High Court finds Comalco interests valid1997 – Century Zinc Agreement signed
– Alcan agreement with communities; Comalco deal with Alcan
1998 – NTA amendments
2001 – WCCCA signed
HistoryHistory
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• Comalco and Rio Tinto recognised that negotiation and consultation was far preferable to litigation.
• Lease until 2062 – however, a recognised need to “modernise” relationships rather than rely on ad hoc initiatives
• Recognise Traditional Owner rights
• Co-existence agreements (ILUAs) made possible under NT Act to address respective interests
Local Context?Local Context?
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• Mutual respect and recognition• Support for future Comalco mining operations• Economic development of indigenous
communities• Increased Indigenous employment in Comalco • Increased Indigenous representation in
consultations about operations• Increased level of cultural awareness among
Comalco employees• Requirement for ILUA registration and native
title applications
Basis for AgreementBasis for Agreement
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• Charitable Trust controlled by majority Traditional Owners, with Community reps., State, CYLC and Comalco as invitees
- $2.5 million Comalco annual contribution
- $1.5 million annual Qld Govt contribution
(both increase with production & prices)
- 60% of annual funding to the Trust is placed in long-term secure investments
Key Aspects Key Aspects
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• $500,000 Employment and Training Budget- managed by Comalco to run programs endorsed by the Coordinating Committee
• $150,000 Cultural Awareness Fund - allowance for bursaries, cultural heritage & Ranger programs
• All Comalco staff to complete Cultural Awareness Course run by TO’s
• Transfer of Sudley Station for agri-business & Indigenous training:- 1325 square km working property(6000 head of cattle; improvements and homestead facilities)
Key aspects (cont.)Key aspects (cont.)
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Coordinating Committee to oversee day to day implementation of Agreement and consult on : - cultural heritage and site management
- Comalco operations and plans
- employment and training initiatives
- environmental & rehabilitation aspects
- land access (mine and recreation)
- Committee has broad representation from all signatories to the Agreement
Coordinating CommitteeCoordinating Committee
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• The Agreement was signed by all parties on Wednesday 14 March 2001 at Weipa
• Premier Peter Beattie issued a formal apology to the people of Mapoon
• Comalco apologised for taking 40 years to come to such an agreement
• Speeches acknowledged a new era for Western Cape Indigenous people - acknowledged responsibilities and provided the means for delivering a better future
CeremonyCeremony
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Globalisation Globalisation
• Transformation of social relations
• Growth global & regional connections
• Reconfiguration of social geography
– Far-reaching implications for governance
• Contrast to sovereign statehood framework of 18th-20th Centuries
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GlobalisationGlobalisation
• Catchcry of the 21st Century
– Vagueness, inconsistency, confusion
– Oversimplification, exaggeration,
– Wishful thinking
• A number of broad usages
– Related, overlapping and not new at all
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‘‘International’International’
• Cross-border activity – sovereign states• Growth in international transaction &
interdependence• Increased movements - state frontiers
– people, – products, – money, investments, – messages, ideas
• Events & conditions in one country inevitably effect others
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Removal of restrictionsRemoval of restrictions
• Movements between countries– ‘open’, ‘borderless’ world economy
• Reduction, even abolition of– Statutory trade barriers
– Foreign exchange controls
– Capital controls
• Privileged citizens & professions are particularly mobile
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‘‘Worldwide’ & ‘Westernisaton’Worldwide’ & ‘Westernisaton’
• Objects & experiences
– Gregorian calendar, automobiles, Chinese restaurants, CSR
• ‘Modernisation’
– Capitalism, rationalism, industrialism, bureaucratism
– Heavily impacting local governance
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Reconfiguration of governanceReconfiguration of governance
• No longer defined soley by– Sovereign states, territorial places & borders
• Large-scale reconfiguration of territorial controls, this is what makes contemporary globalisation new & different– CNN broadcast, electronic finance, climate
change, internet, intercontinental missiles, rules of world trade
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Nation states still matterNation states still matter
• Continue to exert significant influence
• Co-existence
– Fuzzy sovereignty
– Regional currencies
• Euro
• US dollar
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Globalisation is UnevenGlobalisation is Uneven
• Some enjoy greater global connectivity– North America, North‑East Asia, Australasia,
Southern Africa and Western Europe
– Managers, professionals & the wealthy
– Conurbations
• Elsewhere nationalism still reigns– Often brutally
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Nationalism remains strongNationalism remains strong
• Well established or still emerging– Industrialisation & division of labour– Effective large-scale public administration– Imperative of cultural association
• Five factors define nationality– collective name – common myth of ancestry – distinctive shared culture – specific territory – sense of solidarity
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Nationalism remains strongNationalism remains strong
• Well established or still emerging– Industrialisation & division of labour– Effective large-scale public administration– Imperative of cultural association
• Five factors define nationality– collective name – common myth of ancestry – distinctive shared culture – specific territory – sense of solidarity
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Governance challenge of 21Governance challenge of 21stst C C
• New social contracts• Confined to economic reach• Sets aside need for cultural coercion• Transformation of social geography
– Decentralised– Local authorities
• Human rights, economic growth, ecological integrity attain a higher priority
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Governance challenge of 21Governance challenge of 21stst C C
• New social contracts• Confined to economic reach• Sets aside need for cultural coercion• Transformation of social geography
– Decentralised– Local authorities
• Human rights, economic growth, ecological integrity attain a higher priority
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No demise of Sovereign StateNo demise of Sovereign State
• Robust survival
• Some are stronger than ever
• Change on traditional understanding
– ‘sovereignty’, ‘crown’ ownership, ‘royalties’
• Multilateral rather than unilateral governance now the norm
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Nationalism & GlobalisationNationalism & Globalisation
• Military forces, currencies, public policy, state-sponsored amenity– Optimising scale arsing from industrialisation
• Shipping, railways, telegraphy
• Globalisation– Optimising scale of the information age– Expanded scale, but limit scope– Do not seek to control everything
• Confined to economic sphere• Not social, cultural & spiritual
– No such thing as ‘National Socialist’ corporation
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Sub-state & Supra-stateSub-state & Supra-state
• Regional & local regimes have gained– e.g. Scottish and Welsh assemblies– Virtual ‘city states’ dominate world finance
• Supra-state institutions– EU, IMF, NATO, OECD, WTO, other
international agencies• Dispersion of authority
– ‘up’ & ‘down’– lateral
• Governance is multi-layered & diffuse
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Sub-state & Supra-stateSub-state & Supra-state
• Regional & local regimes have gained– e.g. Scottish and Welsh assemblies– Virtual ‘city states’ dominate world finance
• Supra-state institutions– EU, IMF, NATO, OECD, WTO, other
international agencies• Dispersion of authority
– ‘up’ & ‘down’– lateral
• Governance is multi-layered & diffuse
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‘‘Global Culture’?Global Culture’?
• Has failed to emerge– Except maybe in international airports & hotels
• People are choosing to accentuate their local identity– Celebration of diversity, …..or– Political fragmentation
• Paradox?– Countervailing nature of humanity– Tribalism, local culture is alive and well!
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Corporate CitizenshipCorporate Citizenship
• Enlightened vision & ‘self-interest’ alone cannot guarantee
• Shareholder activism, ethical investment, consumer boycotts
• Pension, insurance & investment funds – need for mobility!
• Democratic government cycles vs instant market response
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Corporate CitizenshipCorporate Citizenship
• Enlightened vision & ‘self-interest’ alone cannot guarantee
• Shareholder activism, ethical investment, consumer boycotts
• Pension, insurance & investment funds – need for mobility!
• Democratic government cycles vs instant market response
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ConclusionConclusion
• A change in social geography• Question of governance
– Multi-layered, diffuse identity & regulation– Counterweight to sovereign governance deficit?
• Governance evolution– 16th century
• personified ‘divine majesty’– 20th century
• geographic, constitutional, comprehensive public sectors
– 21st century • ? Global agencies & local constituencies
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ConclusionConclusion
• A change in social geography• Question of governance
– Multi-layered, diffuse identity & regulation– Counterweight to sovereign governance deficit?
• Governance evolution– 16th century
• personified ‘divine majesty’– 20th century
• geographic, constitutional, comprehensive public sectors
– 21st century • ? Global agencies & local constituencies