Department of Foreign Affairs and Trade

1

Reaching indigenous people in the Australian aid program: guidance noteOverview1. Australiaremainscommittedtoinclusivedevelopmentandassistingthemostdisadvantagedfindpathwaysoutofpoverty.

Recognisingthatindigenouspeoplesoftenexperiencedisproportionateratesofpoverty,andareatincreasedriskofexclusionandmarginalisation,theDepartmentofForeignAffairsandTrade(DFAT)haspreparedthisguidancenotetoassiststafftodesignanddeliverinternationaldevelopmentprogramsthatstriveto:

A. be inclusive of indigenous people’s issues

B. improve outcomes for indigenous peoples

C. engage responsibly with risk and mitigate potential adverse impacts on indigenous peoples.

ThisguidancenoteshouldbereadinconjunctionwithDFAT’sIndigenousPeoplesStrategy,developmentpolicyandsectoralguidance notes.

Why focus on indigenous people in the Australian aid program?2. Thereareanestimated370millionindigenouspeoplesaroundtheworld.TheUnitedNations(UN)reportsthat,although

indigenouspeoplesmakeuponly5percentoftheglobalpopulation,theymakeup15percentoftheworld’spoorandaboutone-thirdoftheworld’s900millionextremelypoorruralpeople(UNDESA,2010).Indigenouspeoplesarecommonlytheminoritypopulationbutmayalsobethemajoritypopulationinsomecountries.

The2010 State of the World’s Indigenous Peoples Reportexploredoneofthemorecomplexquestionssurroundingindigenouspeoples,emphasisingthattheconcept of “indigenous” is not exclusively defined by European colonisation and thatindigenouspeoplesmaybedistinguishedbecauseoftheir:

• specialattachmenttoanduseoftheirtraditionallandsandterritoriesasthebasisfortheircollectivephysicalandsurvival as peoples

• experienceofsubjugation,marginalisation,dispossession,exclusionordiscriminationbecausetheyhavedifferentcultures,waysoflifeormodesofproductionthanthenationalhegemonicanddominantmodel

Giventhediversityoftheworld’sindigenouspeoples,thereisnointernationallyacceptedoragreeddefinitionoftheterm‘indigenous’andtheUNDeclarationontheRightsofIndigenousPeoplesinsteadaffirmedthatindigenous peoples themselves have the right to self-identify.ConsequentlyDFATwillusetheterminologythatisappropriatetoeachcountrycontext.Theprevailingviewintheinternationalcommunityisthatnoformaldefinitionisnecessaryandthatitisbetter to instead identify indigenous peoples withinaspecificcontext.FormerUNSpecialRapporteurMartinez Cobo developed the characteristicsmostcommonlycitedintheinternationalcommunity:

Indigenous communities, peoples and nations are those which, having a historical continuity with pre-invasion and precolonial societies that developed on their territories, consider themselves distinct from other sectors of the society now prevailing in those territories, or parts of them. They form at present non-dominant sectors of society and are determined to preserve, develop, and transmit to future generations their ancestral territories, and their ethnic identity, as the basis of their continued existence as peoples, in accordance with their own cultural patterns, social institutions and legal systems.(Cobo,n.d.)

3. Indigenouspeoplesholdtheirowndiverseconceptsofdevelopment,basedontheirtraditionalvalues,visions,needsandpriorities(UNPFII,n.d.)Howeverindigenouspeoples areatgreaterriskofexclusion,marginalisationanddiscrimination;consequently,theyexperiencepovertytoadisproportionatedegree(UNDESA,2010).TheUNhasfoundthatindigenouspeople’swellbeing,livelihoodsandculturesareatincreasedriskofbeingnegativelyaffectedbylarge-scaledevelopmentprojectsontheirlands(UNCHR,n.d.).

2

4. Recognisingtheuniquesituationofindigenouspeoples,manycountries,includingAustralia,havedomesticcommitments,andhavesignedand/orendorsedinternationaldeclarationsorconventionsthatcallforthepromotionandprotectionofindigenouspeople’srightsandinterests.Programmanagersshouldbeawareof,andunderstand,country-specificcommitmentstoindigenouspeoples,andensurethatDFAT’sprogramsarecompliantwithpartnergovernmentlegislationand/orotherrequirements.Forexample:

• The International Labour Organization (ILO) Convention No. 169onIndigenousandTribalPeoplesisalegallybindinginternationalinstrumentthatcallsforspecialmeasurestobeadoptedtosafeguardthepersons,institutions,property,labour,culturesandenvironmentofindigenousandtribalpeople.TheILOreportsthatConvention169hasinfluencednumerouspolicydocuments,debatesandlegaldecisionsattheregionalandinternationallevels,aswellasnationallegislationandpolicies.AlthoughAustraliahasnotsignedILO169,severalofAustralia’spartnercountrieshavesignedandratifiedtheconventionintodomesticlaw.

• The UN Declaration on the Rights of Indigenous PeopleswasadoptedbytheUNGeneralAssemblyin2007andendorsedbyAustraliain2009.Itprovidesauniversalframeworkofminimumstandardsforthesurvival,dignity,wellbeingandrightsoftheworld’sindigenouspeoples.Althoughnotlegallybinding,thedeclarationpromotesthefullandeffectiveparticipationofindigenouspeoplesinallmattersthatconcernthem,andtheabilityofindigenouspeopletopursuetheirownprioritiesineconomic,socialandculturaldevelopment.

• The 2014 World Conference on Indigenous Peoples,ahigh-levelplenarymeetingoftheUNGeneralAssembly,committedtheinternationalcommunitytoworkwithindigenouspeoplestoaddresstheimpactorpotentialimpactonthemofmajordevelopmentprojects,includingwiththeaimofmanagingrisksappropriately.

Guidance for addressing indigenous issues in the Australian aid program5. Consistentwithitsinternationalcommitments,Australiawillstrivetofacilitatetheactiveinvolvementofindigenous

communitieswhenplanning,implementing,andmonitoringandevaluatinganyaidprogramsthatwillhaveanimpactonthem.Asageneralprinciple,DFATprogrammanagersshouldensurethatimplementingpartnersareundertakingtheseeffortsinanyaidprogrammingthatwillaffectindigenouspeoplesand/ortheirlands.

6. ToensurethatindigenouspeoplesarenotbeingoverlookedorinadvertentlydisempoweredorharmedbytheAustralianaidprogram,programmanagersshouldidentifythekeyissuesthatcouldhaveanimpactonindigenouspeoplesasearlyaspossibleintheplanningcycle.Theyshould:

A. beawarethat,evenifindigenouspeoplesare‘included’,social,economic,politicaland/orpowerimbalancesmaypreventthemfromhavingequalaccessorparticipation,ormaybecausingharm

B. analysethecontextualsourcesofexclusion,marginalisation,andeconomicandpowerimbalances,specifictotheparticularcountryand/orregion,thatmaypreventindigenouscommunitiesfromleadingtheirownwayoutofpoverty,or social or economic disadvantage

C. assesswhetherDFAT’sprogram(s)arelikelytoexcludeorincludeindigenouspeoples

D. assesswhetherDFAT’sprogram(s)arelikelytocausepositiveornegativeimpactsforindigenouspeoples.

7. Indigenouspeoplesortheirrepresentativesshouldhavetheopportunitytoidentifytheirneeds,concerns,prioritiesandrecommendationsduringtheconceptanddesignphasesofanyprogramoractivitythatmayaffectthem.Programmanagersshouldensurethatthedesignteamsand/orimplementingpartnershaveundertakenappropriateduediligenceandmadesurethataffectedindigenouspeoples:

• havenotbeen(andwillnotbe)intimidated,manipulatedorcoercedintomakingdecisions

• havebeen(andwillbe)providedwithsufficientadvancenoticebeforedecisionsaremade,andwithsufficienttimetoconsultamongthemselvesandprovidefeedback

• havebeen(andwillbe)providedwithallrelevantinformationabouttheproposedproject,includingitsobjective,nature,size,scope,modalitiesandtimeframes,andcopiesofanyimpactassessments(environment,poverty,social,etc.);andhavefullyunderstoodtheinformation

• havehad(andwillhave)fullandequitableparticipationingood-faithconsultations.

8. Table1(seepage4)providesinitialguidanceforaddressingindigenousissuesthroughouttheprogramcycle.Staffareencouragedtoconductfurtherresearchandconsultwiththerelevantbranchesofthedepartmentformoredetailedandtailored advice.

9. Initialguidanceformeetingthespecificneedsofindigenouspeoplesinseveralsectorsisprovidedbelow.Staffareencouragedtoconductfurtherresearchandtoconsultwiththerelevantthematicsectionsand/oradvisersformoredetailed and tailored advice.

3

Natural resources, extraction and infrastructure10. Manyindigenouspeopleliveinruralenvironmentsanddependontheirtraditionallandsforfoodsecurity;theirsurvival

asdistinctpeoples;andtheircultural,spiritualandmaterialwellbeing(UNDESA,2010).ManyUNbodieshavefoundthatlarge-scaleinfrastructureprojectsonindigenouspeople’straditionalterritories—suchasextractiveindustries,logging,infrastructure,damsandfisheries—canhavenegativeeffectsonpeople’slivingconditionsandtheirsurvivalasdistinctpeoples(UNCHR,2007). ProgrammanagersarerequiredtofollowDFAT’smandatorysafeguardpoliciestoavoidorminimiseanypotentiallyadverseimpactsonindigenouspeople.Indigenouscommunitiesshouldbeincludedindecision-makingatallstagesoftheprojectcycle.

Governance11. Indigenouspeoplesareoftenmarginalisedorexcludedfrompolitical,economic,policyandothergovernance-related

processes(UNDESA,2010).Programmanagersareencouragedtoconsideropportunitiestobuildthecapacityofindigenouscommunitiesandorganisations,andempowerthemtoengageeffectivelywithalllevelsofgovernmentandthepublicsector.Inturn,programmanagersshouldseektobuildthecapacityofalllevelsofgovernmentandthepublicsectortoengageandmeettheneedsofindigenouspeople.

Gender equality and empowerment of women and girls12. Menandwomenareaffecteddifferentlybylackofopportunities,andrequiredifferentresponses(UNDESA,2008).

Indigenouswomenandgirlsmayexperiencemultipleformsofdiscriminationandmarginalisation,disproportionateratesofpoverty,gender-basedviolence,andlessaccesstoeducationandhealthcare(UN,2010).Programmanagersshouldfocusonthecontext-specificsituationofindigenouswomenandidentifyopportunitiestopromotegenderequalityandempowermentofindigenouswomeninboththeshorttermandlongterm.Indigenouswomenshouldbeincludedindecision-makingatallstagesoftheprojectcycle.

Education13. Indigenousstudentsoftenhavelowerenrolmentrates,higherdropoutratesandpoorereducationaloutcomesthannon-

indigenouspeopleinthesamecountries,andoftenspeaktheirownlanguagesthataredifferentfromthenationaltongueofinstruction(UNDESA,2010).Programmanagersshouldworkwithpartnergovernmentstodevelopandprovideaccesstogood-quality,andculturallyandlinguisticallyappropriateeducationprogramsforindigenouscommunities(UNDESA,2010).

Health programs14. Indigenouspeopleoftenhavelowerhealthoutcomesandlessaccesstohealthservicesthanthenationalaverages(UNDG,

2008).Programmanagersshouldworkwithpartnergovernmentsandindigenouspeopletodevelop,andprovideaccessto,good-qualityandculturallyappropriatehealthprogramsthattakeintoaccountindigenoushealthperspectivesandsystems(includingtheuseoftraditionalpractitionersandmedicines)(UNDESA,2010).

Disaster risk reduction and humanitarian emergencies15. Indigenouspeoplesoftenliveinruralenvironments,andcanbeatincreasedriskfromnaturaldisastersandothershocks.

Programmanagersshouldbeawareofanyculturalsensitivitiesorspecialneedsofindigenouspeopleinthedeliveryofhumanitarianassistance.Theyshouldbuildtheresilienceofindigenouscommunitiesbyhelpingtoidentifyfuturerisksandhazards,andprovidingdisaster-resilientinvestments.

Livelihoods, economic opportunities, and income and food security 16. Maintainingaccesstocustomarylandsiscriticaltothelivelihoodsandidentitiesofindigenouspeoples.TheFoodand

AgricultureOrganizationoftheUnitedNations(FAO)reportsthatindigenouspeople’sfoodsecuritymaybethreatenedbyinvoluntaryresettlement,denialofaccesstotraditionallandsandfishingorhuntinggrounds,deprivationofaccesstoadequateandculturallyacceptablefood,andcontaminationoffoodsources.TheFAOrecommendsrespectingindigenouspeople’straditionalwaysofliving,strengtheningtraditionalfoodsystems,andprotectingsubsistenceactivitiessuchashunting,gatheringandfishing(FAO,2009).

17. Inadditiontolong-termdevelopmentprograms,socialprotection—ifdesignedandtargetedwell—canhelpbuildresilienceandempowerindigenouscommunitiestomeettheirimmediateneedsintheshortterm.Socialprotectionmeasuresincludecashtransfers,provisionofincome-generatingassets(suchaslivestock),andmotherandchildnutritionprograms.However,althoughsocialprotectioncanenableindigenouspeoplestomeettheirbasicneeds,programmanagersshouldensurethatitsdesigndoesnotdamagethewellbeingandsocialrelationsoftheindigenouscommunity.TheInternationalFundforAgriculturalDevelopmentrecommendsthatdiversificationiskeytoenhancing‘theeconomiccapabilitiesofbothindigenousgroupsandindividuals’(Bage,2007).Examplesarecropdiversificationandintensification,adaptationofproductivity-enhancingtechnologies,microfinance,supporttomicro-enterprises,anddevelopingalternativeincomegenerationopportunitiesfromnaturalresourcessuchasecotourism,andprocessingofmedicinalandfoodproducts(Båge,2007).

4

Works citedBåge,L2007,Policies and lessons for reaching indigenous peoples in development programs: 2020 focus brief on the world’s poor and hungry people,InternationalFoodPolicyResearchInstitute,Washington,DC.Cobo,Mn.d.,Study of the problem of discrimination against indigenous populations,UnitedNationsdocument E/CN.4/Sub.2/1986/87,UN,NewYork.FAO(FoodandAgricultureOrganizationoftheUnitedNations)2009,Joint brief: right to food and indigenous peoples,FAO,Rome.UnitedNations(UN)2010,Gender and indigenous peoples,SecretariatoftheUNPermanentForumonIndigenousIssuesandtheUNDepartmentofEconomicandSocialAffairs,UN,NewYork.UNCHR(UnitedNationsCommissiononHumanRights)2007,Report of the Special Rapporteur on the situation of human rights and fundamental freedoms of indigenous people, Rodolfo Stavenhagen, UnitedNationsdocumentE/CN.4/2003/90,submittedinaccordancewithCommissionResolution2001/65.UNDESA(UnitedNationsDepartmentofEconomicandSocialAffairs)2008,Resource kit on indigenous peoples’ issues,UN,NewYork.UNDESA(UnitedNationsDepartmentofEconomicandSocialAffairs)2010,2010 state of the world’s indigenous peoples,UN,NewYork.UNDG(UnitedNationsDevelopmentGroup)2008,Guidelines on indigenous peoples’ issues,UN,NewYork.UnitedNationsInter-AgencySupportGrouponIndigenousPeoples’Issues2014,Education and indigenous peoples: priorities for inclusive education,UN,NewYork.UNPFII(UnitedNationsPermanentForumonIndigenousIssues)n.d.,Whoareindigenouspeoples?,factsheet,UN,NewYork.

Further reading DenmarkMinistryofForeignAffairs(Danida)2006,Monitoring and indicators: indigenous peoples in bilateral assistance,technicalnote,MinistryofForeignAffairsofDenmark,Copenhagen.Hinds,R2014, Aid programmes targeting indigenous peoples,GovernanceandSocialDevelopmentResourceCentreHelpdeskResearchReport1109,GSDRC,UniversityofBirmingham,Birmingham,UK.ILO(InternationalLabourOrganization)2009,Indigenous and tribal people’s rights in practice: a guide to ILO Convention No. 169,ILO,NewYork.Strachan,AL2014,Integrating indigenous peoples and ethnic minority issues in development programmes, GovernanceandSocialDevelopmentResourceCentreHelpdeskResearchReport1138,GSDRC,UniversityofBirmingham,Birmingham,UK.UnitedNationsExpertMechanismontheRightsofIndigenousPeoples2009,Study on lessons learned and challenges to achieve the implementation of the right of indigenous peoples to education,A/HRC/EMRIP/2009/2,UN,NewYork.Walton,O2012,Policies on IPs,GovernanceandSocialDevelopmentResourceCentreHelpdeskResearchReport,GSDRC,UniversityofBirmingham,Birmingham,UK.

Creative CommonsWiththeexceptionoftheCommonwealthCoatofArmsandwhereotherwisenoted,suchas

copyrightedimages,thisbookletislicensedunderaCreativeCommonsAttribution3.0Australia licence http://creativecommons.org/licenses/by/3.0/au/.Thedocumentshouldbeattributedas:CommonwealthofAustralia,DFAT,Reaching Indigenous Peoples in the Australian Aid Program: Guidance Note,June2015ISBN978-1-74322-229-4(printed),ISBN978-1-74322-230-0(PDF)

Use of the Coat of ArmsThetermsunderwhichtheCoatofArmscanbeusedaredetailedonthe'It'sanHonour'websitehttp://www.itsanhonour.gov.au/coat-arms/index.cfm.

ContactInquiriesaboutthisdocumentshouldbedirectedto:DepartmentofForeignAffairsandTradeRGCaseyBuildingJohnMcEwenCrescentBartonACT0221AustraliaTelephone+61262611111Fax+6162613111

PublishedbytheDepartmentofForeignAffairsandTrade,June2015TypesettingbyBiotextPtyLtdArtworkbyNatalieBateman,adaptedbyBiotextPtyLtd

The artistNatalieBatemanbelongstothelargestYuinfamilyontheFarSouthCoastofNSW.HergreatgreatgrandmotherisEmilyJaneGagooWalker,herhusbandisTedStewartandtheirtotemis“ambaara”blackduck.NatalielovesraisingherthreechildreninhertribalhomelandNaroomawheresheconnectswithherlandandnourishestheenergythattheland gives.

The meaning of the artworkCurledinthehandistheearth,itissurroundedbywaterandsundotwork.Eightlimbsbranchoutfromthepalmofthehand,representingtheMillenniumDevelopmentGoals,givingitlightonthejourneyandsymbolisinggrowth,setbackbarriers,andachievements.Deepearthredsthatfadetoorangerepresentthedepthtoassistglobally.Yellowochreandbrownsarethecoloursofour ancient culture. White dots represent workdonebythepeople,goodness,assistance,aid,universal.

Table 1: Checklist for addressing indigenous people’s issues in the aid program

Strategy and planning

• Haveyouundertakenpoverty,economic,politicaland/orsocialanalysistoidentifytheextenttowhichindigenouspeoplesarebenefiting(ornot)fromtheeconomicandsocialdevelopmentofthecountryand/orsector?

• Whateffortsareneededtofindindigenouspeoples,tounderstandtheirspecificchallenges,andtoconsultandincludethem?

Concept and design

• Areindigenouspeoplesbeingconsultedonthedecisionsthataffectthem?Arethereanyorganisationswithatrackrecordforfacilitatingindigenouspeople’sparticipationthatDFATcouldworkwith?

• Haveyouassessedhowtheplannedinvestmentwillhaveeitherapositiveoranegativeeffectonindigenouspeoples?Howwilltheplannedinvestmenthelptobuildcapacityand/orempowertheindigenouscommunity?Are there opportunities to increase cooperation and communicationbetweenindigenouspeoplesandnational,provincialorlocalgovernments?Mighttheplannedinvestmentinadvertentlygenerateanysocial,economicorpowerimbalancesinanyway?

• Haveyouidentifiedareasinwhichindigenouspeoplesareexcludedormarginalised,orareatriskofbeingexcludedormarginalised?Howwilltheinvestmentworktotoensuremarginalisationorexclusionofindigeneouspeoplesdoesnotoccur?

Performance & evaluation

• Aretheprogram’stargetsandindicatorssufficientlydisaggregatedforyoutotrackandassesswhetherindigenouspeoplearebenefiting?

Cross-cutting issues

• Areindigenouspeoplesinvolvedindecision-making?• Aretheprogramsculturallysensitiveandcontextspecific?• Haveyouidentifiedtheparticularneedsofindigenous

womenandgirls,youthandolderpeople,andpeoplelivingwithdisability?

Risk management

• Istherepotentialfortheprojecttohaveanegativeimpactonindigenouspeoplesand/ortheirtraditionalterritories?Ifso,haveyouestablishedtherequiredmeasurestomitigatepotentialadverseimpactsonindigenouspeoples?