Talking Back to Policy: Aboriginal Participation in Policy Making
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Talking back to policy: Aboriginal participation in policy making Inara Walden A thesis in fulfilment of the requirements for the degree of Doctor of Philosophy Social Policy Research Centre University of New South Wales March 2016 1 2 Acknowledgements My sincere thanks the Aboriginal community of Walgett who have given so generously of their time to this research, and to the government officers and others whose part is also valued. I have thoroughly enjoyed the time I have spent in Walgett, the friends I have made and experiences shared there during the course of ten separate stays of up to a week. In particular I thank the members of the Walgett Gamilaraay Aboriginal Community Working Party (WGACWP) for providing the invitation, direction and support needed for this research to take place. Special thanks to the Dharriwaa Elders Group which auspiced and oversaw my research and pro bono work in Walgett. This case study of community participation is testament to the enduring and tenacious commitment of Walgett's resilient Aboriginal-run organisations, and to the WGACWP members who strive to promote the needs and aspirations of the community. In conducting analysis of the everyday negotiations between government officers and Aboriginal community members in a small remote community, I have been acutely aware of the particular need and challenges to protect the identities of research participants. I have adopted a number of strategies, including pseudonyms and obfuscating who has spoken. I explain further how I have handled anonymity on page 123. Many thanks to my supervisors Eileen Baldry and Jen Skattebol for their enthusiasm for the research and for providing guidance along my research journey. I thank my Indigenous advisory committee, Larissa Behrendt and Margaret Raven, for contributing sage insights and encouragement; Martin Nakata and other Indigenous academics at the University of New South Wales who foster an academic environment of possibility. Thanks to Trish Hill, my co- supervisor who has always been encouraging and so helpful. I thank the academic staff of the Social Policy Research Centre and my fellow students for making my time there so rewarding. It's been an honour to spend the past 3.5 years immersed in academic life surrounded by such a committed and inspiring group of people. Finally, thanks to my wonderful, supportive partner Peter Solness; to my sons Max and Gilbert who always keep me grounded and have particularly encouraged my pursuit of this research; and to little Tuomo for happily sharing space in his bedroom, where I spread my papers and books while completing this dissertation. Publication arising from this thesis The following article has been published arising from subject matter contained in this thesis: Walden, I., B. Dennis and Walgett Gamilaraay Aboriginal Community Working Party (2014) 'Aboriginal people ‘talking back’ to policy in rural Australia', Journal of Indigenous Social Development, 3 (2): 1-16 3 ORIGINALITY STATEMENT ‘I hereby declare that this submission is my own work and to the best of my knowledge it contains no materials previously published or written by another person, or substantial proportions of material which have been accepted for the award of any other degree or diploma at UNSW or any other educational institution, except where due acknowledgement is made in the thesis. Any contribution made to the research by others, with whom I have worked at UNSW or elsewhere, is explicitly acknowledged in the thesis. I also declare that the intellectual content of this thesis is the product of my own work, except to the extent that assistance from others in the project's design and conception or in style, presentation and linguistic expression is acknowledged.’ Signed …………………………………………….............. Date …………………………………………….............. 4 Abstract Past Australian government policies have controlled, disenfranchised and infantilised Indigenous people, strongly contributing to their ongoing disadvantage and poverty. During Australia’s formal policy phase of self-determination, 1972 to 2004, Aboriginal people emphasised their fundamental desire to define and control their own priorities and destinies. This desire continues today, however the policy landscape is now more ambiguous than ever about the role of Aboriginal people in policy making. This thesis makes a case study of processes taking place when a remote NSW Aboriginal community asserted its right to participate in policy planning and decision-making. The research focused on negotiations between the Aboriginal community and government as a particular policy was implemented. The study aimed to investigate the extent to which Aboriginal people desire and pursue participation in policy making, and whether this is valued and enabled by governments. The methodology is informed by grounded theory and Indigenous research methodologies. Data was collected primarily via semi-structured interviews with Aboriginal community representatives and government officers over a three year period, along with policy analysis and observational data. Reciprocity and relationship building were vital to sustaining the researcher’s collaboration with the community over time. Now enshrined in the United Nations Declaration on the Rights of Indigenous Peoples, participation is an emerging concept and site of debate within the scholarship and practice of Indigenous policy making. This thesis makes a timely contribution to that scholarship by applying concepts of participation developed through four decades of practice, critique and theorising in the sphere of international development. Debates about what constitutes participation are salient to analysis of everyday negotiations between Aboriginal people and governments. The research reveals a strong drive and commitment from Aboriginal community representatives to participate as local decision- makers, and a range of imperatives that urge governments to strive to enable this. However structural and resource challenges undermined the level of Aboriginal involvement and quality of participation achieved. The study indicates that Aboriginal participation in policy decision-making may be essential to re-empower those affected by colonisation, and enable Aboriginal agency in setting goals and aspirations to improve their own lives and livelihoods. 5 6 Contents Acknowledgements ..................................................................................................... 3 Publication arising from this thesis ............................................................................... 3 Abstract ...................................................................................................... 5 List of figures, tables and maps .................................................................................. 16 Abbreviations ........................................................................................................... 17 Glossary of terms ...................................................................................................... 19 Introduction .............................................................................................. 23 Policy context of RSD ................................................................................................. 25 Participation ............................................................................................................. 27 Indigenous participation in policy making ................................................................... 28 Research questions ................................................................................................... 30 Chapter summary ..................................................................................................... 31 Chapter 1: Participation ............................................................................. 33 Etymology of participation and engagement ............................................................... 35 Part I: Theorising participation ................................................................................... 37 Beneficiaries, consumers, citizens: participants in international development ............... 37 Typologies of participation ...................................................................................... 38 Policymaking and community outcomes derived at different levels of participation ....... 40 Unpacking participation .......................................................................................... 42 What is participation for? What difference does it make? ............................................ 43 Participation for empowerment ............................................................................... 43 Power within participatory processes ....................................................................... 44 Major methodologies of participation ......................................................................... 46 Participatory Action Research and social learning ...................................................... 46 Empowered participation ........................................................................................ 47 Participatory Rural Appraisal ................................................................................... 48 Deliberative processes ............................................................................................ 49 7 Four key positive outcomes of participation identified in the literature ......................... 50