World Heritage 3Ext COM

Distribution limited WHC-99/CONF.205/INF.3B Paris, 27 May 1999 Original : English

UNITED NATIONS EDUCATIONAL, SCIENTIFIC AND CULTURAL ORGANIZATION

CONVENTION CONCERNING THE PROTECTION OF THE WORLD CULTURAL AND NATURAL HERITAGE

WORLD HERITAGE COMMITTEE

Third extraordinary session Paris, UNESCO Headquarters, Room XI 12 July 1999

Information Document: Australia’s Kakadu – Protecting World Heritage. Response by the Government of Australia to the UNESCO World Heritage Committee regarding Kakadu National Park (April 1999)

Background

This Information Document contains the response of the Government of Australia to the report of the UNESCO mission to Kakadu National Park, Australia (WHC/99/CONF.205/INF.3A) as requested by the twenty-second session of the World Heritage Committee (Kyoto, Japan 30 November – 5 December 1998)

Other relevant documents

WHC-99/CONF.205/4 State of conservation of Kakadu National Park, Australia

WHC-99/CONF. 205/INF.3A Report on the mission to Kakadu National Park, Australia, 26 October to 1 November 1998

WHC-99/CONF.205/INF.3C Assessment of the Jabiluka Project: Report of the Supervising Scientist to the World Heritage Committee

WHC-99/CONF.205/INF.3D Written independent expert review of the advisory bodies (IUCN, ICOMOS and ICCROM) concerning the mitigation of threats posing ascertained and potential dangers to Kakadu National Park by the Jabiluka mine.

WHC-99/CONF.205/INF.3E Review of an Independent Scientific Panel of the scientific issues associated with the proposed mining of uranium at Jabiluka in relation to the state of conservation of Kakadu National Park. Undertaken between 22 April and 13 May 1999

WHC-99/CONF.205/INF.4 Extracts from Draft Report of the Rapporteur of the twenty- third session of the Bureau of the World Heritage Committee (UNESCO Headquarters, 5-10 July 1999) of relevance to the discussions of the third extraordinary session of the World Heritage Committee AUSTRALIA’S KAKADU

PROTECTING WORLD HERITAGE

RESPONSE BY THE GOVERNMENT OF AUSTRALIA TO THE UNESCO WORLD HERITAGE COMMITTEE REGARDING KAKADU NATIONAL PARK

APRIL 1999 Environment Australia, part of the Commonwealth Department of the Environment and Heritage

© Commonwealth of Australia 1999

This work is copyright. It may be reproduced in whole or in part for study, research or training purposes subject to the inclusion of an acknowledgment of the source and no commercial usage or sale results. Reproduction for purposes other than those listed above requires the written permission of the Department of the Environment and Heritage. Requests and enquiries concerning reproduction and rights should be addressed to the Assistant Secretary, Corporate Relations and Information Branch, Environment Australia, GPO Box 787, Canberra ACT 2601, Australia.

ISBN 0 642 54622 3

Photography:

Mark Hallam Michael Preece Parks Australia, Environment Australia Science Group, Environment Australia

Copies of this document are available on the internet at www.environment.gov.au CONTENTS

Australian Government Position: Summary v Summarises Australian Government case that Kakadu Park is protected not endangered

Chapter One: World Heritage Values and Attributes of Kakadu National Park 1 Defines and describes the natural and cultural values which give Kakadu National Park its World Heritage signficance. The criteria for World Heritage Listings are outlined and, from these, the specific values and attributes of Kakadu are identified. These defined attributes are an important starting point in evaluating claimed threats to these values.

Chapter Two: Kakadu National Park – The Place and its People 13 Background to the Park, providing a picture of the place and its people. A necessary context to understand the multiple interests and uses for which the Park is managed.

Chapter Three: Protecting Natural & Cultural Values: The Australian Framework 31 The range of legislative mechanisms in place under Australian law to protect World Heritage values. The Jabiluka project has had to meet strict environmental, cultural scientific and economic requirements, as well as satisfy legislation relating specifically to the World Heritage values of the region.

Chapter Four: Australia’s World Heritage Record 43 Outlines Australia’s consistently excellent record of achievements in the nomination, promotion, and management of World Heritage Properties. Australia asks that this record be considered when evaluating claims of potential threats to the values of a World Heritage property.

Chapter Five: Protecting the Values of Kakadu – The Jabiluka Process 51 A review of the extensive, thorough and accountable steps of assessment and monitoring of the Jabiluka project. The values of Kakadu have been protected from potential impacts from outside the World Heritage property.

Chapter Six: Response to the Mission’s Report and Recommendations 75 Details Australia’s response to the UNESCO Mission Report. Areas where the Mission’s perceptions of threats to World Heritage values differ from those of the Australian Government are addressed. After careful consideration, those recommendations in accord with Australia’s policy framework are being implemented.

Chapter Seven: List of World Heritage in Danger: Criteria and Benchmarks 103 This chapter outlines the criteria for placing a property on the World Heritage in Danger List, drawing benchmarks from recent State practice. It analyses the threats outlined by the UNESCO Mission, concluding that it would not be consistent for Kakadu National Park to be placed on the List of World Heritage in Danger.

Chapter Eight: Managing Values into the Future 125

Appendices 129 References Appendix 1 Appendix 2 Appendix 3 Appendix 4 Glossary List of Appendices

References 131 Appendix 1 Further examples of Agreements and programs 132 Appendix 2 Extracts relating to mining operations from the Kakadu nomination documents 134 Appendix 3 Analysis of properties included on the List of World Heritage In Danger 135 Appendix 4 Kakadu Statistical Data 138 Glossary 139

List of Figures

Figure 1: Relative size and location of Kakadu National Park, Jabiluka and 5 Ranger Mineral leases Figure 2: Kakadu National Park showing major features and lease areas 16 Figure 3: Aboriginal Land Trusts in Kakadu National Park 20 Figure 4: Clans in Kakadu National Park 30 Figure 5: Ranger and Jabiluka Lease Area—Landsat Image 55 Figure 6: Jabiluka Mine Site within Jabiluka Lease Area 57 Figure 7a: 65 Figure 7b: Chronology of Boiwek and Almudj sites* 66 Figure 7c: } 67 Figure 8: Catchment of the East Alligator River 92 Figure 9: Koongarra, Ranger and Jabiluka Leases, and the township of Jabiru 99

* Note that the orthography used in spelling place and people names varies considerably. ‘Boiwek’ is generally accepted spelling for the site ‘Boyweg’ referred to in the Mission report. SUMMARY OF REPORT

Australian Government Position: Summary

v

Australian GovernmentPosition:Summary forward bytheUNESCOMission. established byrecent practice.Thereport responds specificallytoeach of therecommendations put World Heritageproperty. Eachofthethreats claimedbytheMissionwasanalysedagainst benchmarks area, adjacentto butnotwithinthePark,withoutanydamagetonaturalandculturalvaluesof describing indetailtheprocess undertakentoensure thattheJabilukauraniumminecould proceed inan record inupholdingtheWorld HeritageConvention. Thiscontextualinformationisprovided before legislative frameworkinplaceAustraliatoprotect naturalandculturalvalues;outlinesAustralia’s World Heritage property; describesthehistoryandcontextofKakaduNationalPark; analysesthe Park are protected, notendangered. Thereport definesinobjectivetermsthevaluesandattributesof The AustralianGovernment’s report provides evidencethattheWorld HeritagevaluesofKakaduNational THE AUSTRALIANGOVERNMENT’SREPORT in thatspirit. fully transparent inreporting on itsactionsinprotecting World Heritagevalues.Thisreport ispresented carefully. Australiahasgonetogreat lengthstopresent theevidenceinfullandwishestocontinuebe Therefore, theStatePartybelieves itappropriate fortheCommitteetoconsiderevidencevery property ontheListofWorld Heritage inDanger. in relation toparticularproperties. Thisneedbecomesespeciallyseriouswhenconsideringplacinga Convention needstobeappliedconsistentlyacross World Heritageproperties, andconsistentlyovertime impact thattheywillendangerthevalueofarea asaWorld Heritageproperty. To beeffective, the to establishthatascertainedorpotentialdangersexist,butalsothethreats are ofsuchscaleand that thehigheststandards ofobjectivity, transparency andconsistencyare applied.Itisnecessarynotonly In thissituation,itisnecessarytoensure thatalldecisionstakenare consistentwiththeConventionand objective evidencetothateffect. fundamentally disagrees withtheviewthatvaluesofproperty are endangered andprovides do so,itwouldbewithoutStatePartyconsent,andalsoincircumstances where theStateParty opposes placingtheproperty ontheListofWorld HeritageinDanger. ShouldtheCommitteechooseto While beingresponsivestrenuously totheviewsofUNESCOMission,Australian Government Thisreport inresponse totheUNESCOMissionshouldberead inconjunctionwiththeSupervising • TheCommitteewillthendecidewhetherKakaduNationalParkcouldbeplacedontheListof • review, Afterindependent,expertinternational thereport willbediscussedbytheWorld Heritage • Thisreport istheAustralianGovernment’s response totheclaimsmadeinmissionreport. • World HeritageculturalandnaturalvaluesoftheKakaduNationalPark,Australia.’ prevent furtherdamageandtomitigateallthethreats identifiedintheUNESCOMissionreport, tothe ‘the Australianauthoritiesberequested toprovide, by15April1999adetailedreport ontheirefforts to At thetwentysecondSessionofWorld HeritageCommitteeinKyoto,Japan,itwasdecidedthat: INTRODUCTION KAKADU NATIONAL PARK: PROTECTEDNOTENDANGERED Scientist Report,availableseparately. World HeritageinDanger. Committee inanextraordinary sessioninParisJuly1999. vii

SUMMARY SUMMARY viii Australian GovernmentPosition:Summary These actionsare reported in underway—which isconsistentwiththeintentanddirection ofmostthe Mission’s recommendations. take actiontoensure theprotection ofKakadu.Inparticular, actionhasbeentaken—orwasalready Since therelease oftheMissionreport hascontinuedto inDecember1998,theAustralianGovernment programs. part, therecommendations oftheMissionare policyand compatiblewithAustralianGovernment as expressed inthisresponse. Those areas ofdisagreement shouldnotobscure thefactthatformost majority ofmissionmembers,asexpressed intheMission’s finalreport, andtheviewofStateParty, In suchaclimateitisunderstandablethatthere are strong disagreements betweentheviewsof THE AUSTRALIANRESPONSE momentum whenlinkedwiththeconceptofWorld Heritage. of uranium,indigenouspeoplesandconservation—significantintheirownright—gainedgreater opportunity fordomesticorganisationstoprojectaudience.Theissues theircampaigntoaninternational The difficult taskoftheMissionwasfurthercomplicatedbyfactthat theirreport wasseenasan had toabsorb,analyseandevaluateacomplexemotivesituationinwhichfactswere oftendisagreed. the factthatitconsidered theMissionvisitunnecessary. Inaveryshortperiodoftime, theMissionteam willingly supportedthevisittoAustraliaofUNESCOMissionteaminOctober1998.Itdidsodespite maintainingAustralia’sThe AustralianGovernment, record inupholdingtheWorld HeritageConvention, RECOMMENDATIONSTHE UNESCOMISSIONREPORT and theStatePartyinprotection ofnaturalandculturalheritagesituatedinthatState. Operational GuidelineswiththeConventionandrespective roles oftheWorld HeritageCommittee of theStateParty(andagainstexpress wishesofthatParty),theconsistencyparts theinscriptionofapropertyissues concerning onthe‘InDangerList’withoutrequest andconsent Kakadu NationalParkonthe‘InDangerList’withWorld HeritageConvention.Thosemattersinclude theconsistencyofalisting other matterswhichAustraliahasraisedormaywishtoraiseconcerning This report seekstoaddress theissuesraisedinUNESCOMission’s report andiswithoutprejudice to ascertained andpotentialdangerstotheculturalnaturalvaluesofKakaduNationalPark. essential contextualinformationtoobjectivelyassesstheclaimsofUNESCOMissionsevere can bemadeonthelevelofthreats totheWorld Heritageproperty. Thesamesetoffactsprovides The report putsallthefactsclearlyontable—factswhichmustbeconsidered before anassessment ensured thattheInterimCultural HeritageManagementPlanissubjectedtoindependentpeer • ascertainedthatanyexpansionofurbanandinfrastructure developmentinJabiruasaresult ofthe • undertakenanexhaustiveindependentreview andfurtherriskanalysisofallclaimsscientific • reviewed all theperceived threats toWorld Heritageandinstitutednecessaryprotective measures • (Recommendation 4); review andinvitedfurtherconsultationwith traditional ownerstoprotect allsitesintheleasearea project (Recommendation 3); mine willbeminimal,withtheutilisationofexistinghousing stocktocaterforworkersonthe uncertainty relating totheproject (Recommendation2); (Recommendations 1&2); Chapter Six . The Government hastakenthefollowingactions: . TheGovernment Australian GovernmentPosition:Summary implementing therecommendations needstobecarefully workedthrough. 1976. and theexactingrequirements oflegislationsuchasthe of implementationisinmanywayssetbythetraditionalowners, theirstatutoryrepresentative bodies, hadindicateditiswillingtoinitiatesuchconsultations,theoutcomeandpace the AustralianGovernment Consultation andcross-cultural dialogueonsuchsignificantissuesistimeconsumingandcomplex.While Australian lawasitdefinesandprotects therightsofindigenouslandowners. action relating toAboriginalland(asinRecommendations8,9,10,13,14)has metalltherequirements of Chapter Six).Inthemain,thesequalificationsrelate totheneedensure thatanycommitmentfor Where qualificationshavebeennecessary, theseare reported inanopenandtransparent manner(see responsibility fortheprotection ofWorld Heritagevaluesinitssovereign territory. considered theirapplicabilityandtakenappropriate action,inlinewiththeStateParty’s direct the Missionrecommendations inthecontextofitsongoingmanagement andprotection ofKakadu, These are significantefforts. hasengagedtheintentof It canbeseenthattheAustralianGovernment ensured thattheimpactofintroduced speciesonthewetlandsofKakaduNationalParkcontinueto • ensured thatmechanismsinplacewilleffectively limittheexpansionofJabirutoprevent anythreat • LandCouncil,traditionalownersandtheminingcompanyon soughttheviewsofNorthern • confirmedanongoingpresence oftheEnvironmental Research InstituteoftheSupervisingScientist • commitmenttoconsultationandcross-cultural takenpositivestepstoconfirmGovernment • engagedinhighleveldiscussions,commencingatMinisteriallevel,onoutstandingissuesrelating to • Territory soughttheviewsoftraditionalowners,Northern Land andtheNorthern Government, • acceleratedtheimplementationofKakaduRegionalSocialImpactStudyatCommonwealth, • ensured thatexistingextensiverecords ofculturalvaluesare complementedbyaculturalmapping • instituteddustandvibrationstudiestoensure theprotection ofrock artsites(Recommendation4); • be managedusingbestpracticeapproaches (Recommendation15&16). to theWorld Heritageproperty (Recommendation14);and traditional ownersonthelease(Recommendation13); potential optionsfortheKoongaraMineralLeasependingoutcomesofnegotiationswith (ERISS) inJabiru(Recommendation12); dialogue (Recommendation11); joint managementofKakaduNationalPark(Recommendation10); extending theboundariesofPark(Recommendations8&9); Council onrenomination oftheParkonculturalcriteria(iii)andlandscape economic disadvantage(Recommendation6); Territory andlocallevelswithpracticalprojects designedtoaddress localissuesofsocialand exercise alongthelinesrecommended bytheMission(Recommendation5); The factthatsomeofthetraditionalownerorganisations are notyetwillingtocooperatein Aboriginal LandRights(NorthernTerritory) Act ix

SUMMARY SUMMARY x Australian GovernmentPosition:Summary of World HeritageInDangerandhaveconveyed thatviewtotheUNESCOMission. Other traditionalownershaveindicatedthattheyopposeany listingofKakaduNationalParkontheList cultural valuesoftheParkasawholeare notendangered byaproject inasmallarea outsidethePark. World Heritage property are about2%ofthe totalPark.Themineworksdonotaffect thisland.The members, andsomecontiguouslandintheWorld Heritageproperty. Mirrar-Gundjehmi holdingsinthe Mirrar-Gundjehmi are thetraditionalownersofJabilukaLeaseArea, aclangroup ofsome27 The traditionalownersofKakaduNationalParkcomefrom avarietyofclanandlanguagegroups. The as aresult ofthe proposal tomineuraniumatJabiluka.” World Heritage CommitteethatthenaturalWorld HeritagevaluesofKakaduNationalPark are indanger scientific certaintyisveryhigh.There wouldappear, therefore, tobenojustificationforadecisionbythe Park are notthreatened bythedevelopmentofJabilukauraniummineandthat the degree of concluded that“contrarytotheviewsexpressed bytheMission,natural valuesofKakaduNational degree ofconfidenceinensuringthattheproject willprotect naturalvalues.TheSupervisingScientisthas modest upgradingofengineeringworksattheminesite.Thisprocess of review hasaddedanextra of MeteorologytheSupervisingScientisthasrecommended andtheUniversityofMelbourne, some by expertisefrom theCommonwealthScientificandIndustrialResearch Organisation(CSIRO),theBureau After acomprehensive review of thescientificquestionsraisedbyMissioninwhichhewasassisted isinconsistentwiththefactthat,throughLandCouncil,traditionalownersgave theNorthern • isinconsistentwithrepeated recommendations toextendandrenominate theproperty; and • doesnotacknowledgethatitistheStatePartydeterminesprotection regime forWorld • isinconsistentwiththetreatment ofotherproperties orotherthreats inthehistoryof • doesnotdemonstrateobjectiveassessmentofanypurportedthreats toalevelwhere thethresholds • doesnotreflect thefactthatRanger, alarger, opencutminehasoperatedforalmost20years • givesinsufficient weighttothethree yearsofextensiveenvironmental impactassessmentwork,the • This recommendation: with thatframework,asdiscussedbelowandmore fullyinChapterSixofthisreport. cannot besupportedbyAustralia,Recommendations1,2,3&7are, inparticular, notviewedasconsistent arrangements foritsWorld Heritageproperties. Whileelementsofsomeotherrecommendations also hasanextensive frameworkoflaw,The AustralianGovernment policy, program andmanagement GOVERNMENT RECOMMENDATIONS OFPARTICULAR CONCERNTOTHEAUSTRALIAN Energy Resources Australiain1991. informed legalconsenttominingin1982andconsentedthetransferofthoserights Heritage valueswithinitsjurisdiction; Convention; of ‘InDanger’listingcouldbefairlyapplied; three separatenominationprocesses; without harmingWorldbytheCommitteeduring Heritagevaluesorbeingraisedasaconcern scientific monitoringnecessaryfortheproject tobeapproved; more than70bindingrequirements, thestringentlegislativeframeworkandindependent values oftheParkcausedbyJabilukaandrecommends thattheproject notproceed. RECOMMENDATION 1 claims severe ascertainedandpotentialdamagestotheculturalnatural Australian GovernmentPosition:Summary Environmental Review(PER).Accordingly, anumberofrecommendations havebeen made whichshould Energy Resources ofAustralia(ERA)inthe Environmental Impact Statement(EIS)andPublic demonstrated thatthere were anumberofweaknessesinthehydrological modellingpresented by As aresult of thisassessment,theSupervisingScientistconcludedthata“detailedreview has detailed planningproceeds. design phaseoftheproject hasnotyetcommencedandthesefeatures willtherefore beincludedasthe of theproposal wouldbe,from aprecautionary approach, appropriate. Asin normalpractice,thedetailed assessment isveryhigh”.Thereport onthereview highlightedanumberofareas where somere-design development oftheJabilukauraniummineanddegree ofscientificcertaintythatappliestothis conclusion ofthereport wasthat“thenaturalvaluesofKakaduNationalParkare notthreatened bythe The SupervisingScientist’s report onthereview ispresented separatelytotheCommittee.Thegeneral be implementedtoguaranteesafetyandenvironmental security. assessment process theyhavenowbeenrigorously assessedandchangestothedesignofproject can addressed intheenvironmental impactassessmentprocess. Where issueshavenotbeenexaminedinthe articulated indetailtheMission’s report. Mostoftheissuesraisedbyscientistshavealready been more importantly, thepotentialenvironmental consequencesofthoseuncertainties,havenotbeen relation tohydrogeological modelling, watercatchmentissues,thedisposaloftailingsinminevoids,and The uncertaintiesraisedbytheAustralianscientistsreferred tointheMission’s report, particularlyin cease. standards forthelifeofmineandthroughout therehabilitation oftheminesiteafteroperations many respects thantheRangermine.Thismanagementwillbemaintained toworld’s bestpractice values ofKakadu.TheJabilukaminewillbemanagedunderthesameregime andtohigherstandards in this regime theRangerMinehasoperatedfornearlytwentyyearswithnoimpact ontheWorld Heritage procedures are basedonsoundscience,are unparalleledinanyotherminingprecinct intheworld.Under and depthofenvironmental dataandtheextenttowhichoperational environmental protection impacts ofuraniummining,anddeterminingmeasures toprevent orminimisethoseimpacts.Thescope program intheAlligatorRiversRegion,forspecificpurposesofidentifying potentialenvironmental The SupervisingScientisthas,foralmost20years,undertakenamultidisciplinaryenvironmental research The Mission’s report isnotconsistentwiththeassessmentofknownscientificdataontheseissues. doesnotconsiderimplementationofthisrecommendationThe AustralianGovernment tobenecessary. the Mission. reporting totheCommitteeannuallyonhowitisdealingwithpotentialthreatsthatarecitedby in theWorld HeritageCommitteeanditsassociatedprocesses,Australiawishestobetransparentin While AustraliadoesnotconsiderRecommendation1asappropriateorbalanced,anactiveparticipant Jabiluka mine. assessment processandtheconstructionof forJabiluka,theJabilukaandRangermillingalternatives, to theUNESCOMission,were created bychangestothethree minespolicy, theenvironmental impact Chapter Seven Mission. views oftheUNESCOMissionanddetailsAustralianresponse totherecommendations ofthe earlier chapters,reviews theareas inwhichtheviewsofStatePartyneedtobereconciled withthe Chapter Six and claimsthatthePrecautionary Principlerequires thatminingoperationsatJabilukabeceased. relating totheJabilukaminedesign,tailingsdisposalandpossibleimpactson catchmentecosystems RECOMMENDATION 2 of thisreport, read inthecontextoflegislativeandmanagementprocesses outlinedin analyses, againstWorld HeritageCommitteebenchmarks,thethreats which,according points to concerns expressedpoints toconcerns bysomescientistsonscientificuncertainties xi

SUMMARY SUMMARY xii Australian GovernmentPosition:Summary ERA inthePER review hasdemonstratedquiteclearlythat,ifthedesignofwatermanagementsystemproposed by be implementedbyERAincompletingthedetaileddesignofJabilukaproject. Ontheotherhand, has notbeenchallengedunder Australianlaw. exhaustive consultationwithtraditional owners,asrequired under theAustralianlegislativeregime, and set aside.TheMirrargaveconsenttominingatJabiluka in 1982.Theagreement wassignedafter doesnotsupporttherecommendationThe AustralianGovernment thatthe1982agreement shouldbe potential visualencroachment,bysupplyingsatellitephotographs andlandsatimagesonaregularbasis. The AustralianGovernmentiswillingtokeeptheWorld HeritageCommitteeinformedontheissueof National Park,tourism,andprovides indigenousadministrativesupportforthewiderKakaduregion. Heritage valuesofKakaduNationalPark.Itistheadministrative andessentialservicecentre forthe nature anddevelopmentofJabiruisstrictlycontrolled sothatitdoesnotadverselyimpactontheWorld when theWorld HeritageCommitteelistedtheParkandcongratulatedAustralia onitsmanagement.The exceed 1700.Thisfigure islowerthanthetown’s populationatthepeakofRangermine’s operations, of about1480(in1998).EvenwiththeJabilukadevelopment,Jabiru’s populationisnotexpectedto activity atJabiluka.Thisimpression isfalse.Jabiruasmalltownshipwith acurrent resident population The Mission’s report givestheimpression thatJabiruwillbeextensivelyexpandedasaresult ofmining properties. Danger listingthenthiscouldhavemajorimplicationsforthemanagementofallWorld Heritage development whichisonlyvisiblefrom theairisusedasabenchmarkfor a potentialWorld Heritagein The Jabilukaminecannotbeseenfrom withintheWorld Heritageproperty, exceptfrom theair. Ifa 0.007% ofthearea ofKakaduNationalPark. development, includingtheRanger-Jabiluka haulroad, isapproximately 1.3square kilometres orlessthan kilometres (approximately the sizeofWales orNewJersey, USA).Thearea disturbedbytheJabiluka Jabiluka minewiththatofKakaduNationalPark.Thearea ofKakaduNational Parkis19,804square The Mission’s report doesnotemphasiseimportantissuesofscalewhencomparingtheextent there isanegligiblerisktothenaturalvaluesofWorld HeritageArea. that theconcernsweremisplaced,orprojectdesigncanaccommodateadaptionstoensure Scientist toallmembersoftheWorldreviews, asreportedbytheSupervising HeritageCommittee,show assessment andhassubjectedtheconcernstorigorous,independentpeerreview. Theresultsofthese The AustralianGovernmenthasapolicyofbeingopenandtransparentonissuesenvironmental of theregion willbenegligible.” mine tailingstoconcentrationsofsolutesinground waterthatcomesincontactwiththesurfacewaters concentrations willremain atbackground levelsintheMagelafloodplain”,andthat“thecontributionof of potentialdispersaltailingsintowatercatchments,heconcludedthat“radiumanduranium of tailingsintheverylongtermwillnotconstituteahazard forfuture generations”.Onthespecificissue In relation tothedisposaloftailingsinminevoid,SupervisingScientistconcludedthat“dispersal radiation exposure topeopleoftheregion wouldhavebeenextremely low.” transfer ofownershiptoensure maintenanceofthefundamentalrightstraditionalowners. relationship ofthe Mirrartotheirlandandreconsider thestatusof1982agreement andthe1991 RECOMMENDATION 7 development inandassociatedwiththetownofJabiru. Park through uraniumminingandtheassociatedincremental expansionofurbanandinfrastructure RECOMMENDATION 3 had been implemented,therisktowetlandsofKakaduNationalPark,and identifies threats ofvisualencroachment ontheintegrityofKakaduNational argues that the Australian Government shouldrecogniseargues thattheAustralianGovernment thespecial Australian GovernmentPosition:Summary mining leaseareas,includingnotificationofanyrelevantcourt actionsandtheiroutcomes. Heritage Committeeofanyfuturepotentialchangestothe status ofpropertyrightswithintheexcluded Again, theAustralianGovernmentwillbeopenandtransparent onthisissue,notifyingtheWorld the JawoynAssociationnoted: possible implicationsofanInDangerlistingontheeconomicopportunitiesfortheirpeople.particular regardingIn theirsubmissiontotheUNESCOMission,JawoynAssociationnotedconcerns the to developeconomicopportunitiesthrough miningagreements (outsidethePark)andtourismventures. the World Heritageproperty, haveusedthis specialrelationship andthestatutoryrightsthatthisprovides, times, groups suchastheJawoyn,traditionalownersofStage3area oftheParkandlandsoutside inside theboundariesofWorld Heritageproperty, haveaspecialrelationship totheirland.Inrecent alsorecognisesThe AustralianGovernment thattheotherclansoutsideJabilukamininglease,but adeclineintheAustralianpublic’s supportoftheConventionanditsworthyaims. • pre-empting anydomesticlawprocesses toconsidertheseissues;and • injusticetotheCompanywhohavecompliedwitheverylaw, meteveryrequirement, andrespected • extendingtheambitofWorld HeritageCommittee,unilaterally andinamannerthatisnot • creating aprecedent thatwouldunjustlyprivilegeonesetofacquired rightsoveranother, tothe • To settheagreement asidewouldrisk: equivalents toAboriginalinterests, includingtheMirrarGundjehmiastraditionalowners. Those termsandconditionsincludethecontinuedpaymentofannualrental ($200,000)androyalty conditions forafurther26years,pendingpossiblefuture renegotiation andarbitrationofthoseterms. The traditionalownersandtheNLChaveagreed totheRangerminecontinuingunderexistingtermsand the minewentahead. asrecentlysenior MinistersoftheAustralianGovernment aseightyearsagoinattemptstoensure that agreements whichsetoutrights,entitlementsandassociatedpayments.Furthermore, theyhavelobbied traditional ownerslateragreed tothetransferofownershipleasethrough comprehensive chose toconsentthemineforeconomicandotherbenefitstheynegotiated.Inaddition, Aboriginal Australians.ThetraditionalownersofJabilukahadtherighttovetominebutinstead Aboriginal LandRights(NorthernTerritory) Act1976 TerritoryThe AboriginalpeopleoftheNorthern havearightofvetooverminingontheirlandunderthe every notifiedAboriginalsiteinmanagingtheproject; State Party; ownership whentheConventionitselfexpressly recognises thattheseare mattersfortherelevant consistent withtheConvention,intoquestionsofmineralrights,property law andindigenousland accompanied bypayments,atalaterdate; extent ofallowingonepartytounilaterallyrevoke acontract,whichwasfreely givenand relegated to“in danger”status,itwouldbeofgreattotheJawoyn.’ concern proposed activities woulddamageWorld Heritagevalues,andyoudecidetheParkshould be Heritage status.Ifyourinquiryfinds,asithasinYellowstone andthe Galapagos,thatthe Clearly, asignificantreason whysomanypeoplevisitKakaduNationalParkisitsWorld regionsouthern soastogenerateincomeourpeople. ‘..the Jawoynhavesince[1996]beenactivelyplanning commercial developmentinthe that doesnotapplytolandownedbynon- xiii

SUMMARY SUMMARY xiv Australian GovernmentPosition:Summary Department oftheEnvironment andHeritage Secretary ROGER BEALE We respectfully submittotheWorld Heritage Committee,ourresponse totheUNESCOMissionReport. each andeveryStatePartytotheWorld HeritageConvention. World Heritage inDangerisnolongeranissueforAustraliaalone.Itamatterofvitalimportanceto In short,theissueofwhetherWorld HeritageCommitteechoosestoplaceKakaduontheListof a partytotheConventionandmaydeterotherstatesfrom takingthatstep inthefuture. would represent asignificant change tothebasisuponwhichstatestookseriousstepofbecoming Guidelines whichare consistentwiththeConvention,andbenchmarks ofCommitteepractice.It also couldbeatoddswiththetermsofbothConvention,thoserelevant partsoftheOperational primacy oftherole oftheStatePartyinprotection ofthenaturalandculturalheritage.Suchaction the StateParty, thesafeguarding oftheproperty rightsprovided forinitsnationallegislation,andthe of thefundamentalprinciplesthatunderpinConvention—thatisrespect forthesovereignty of the consentofStateParty, andagainsttheexpress wishesoftheStateParty, couldplaceat risk some The inscriptionofKakaduNationalParkontheListWorld HeritageinDanger withouttherequest and essence oftheWorld HeritageConvention,andtherightsofStateparties under theConvention. Committee shouldindicatetootherStateParties,thecomplexityandseriousnessofthisissue The extentandlevelofdiscussionattheKyotomeeting,factanextraordinary sessionofthe IMPLICATIONS FOROTHERSTATE PARTIES on domesticprocessesforsiteprotection. Australia willcontinuetoinformtheWorld Heritage Committeeonprogresswithmineconstructionand willensuregovernment therecognised Boiweksiteisprotected. to request ahalttothemining.Theagreements forsiteprotection are notbeingbreached. TheAustralian receives fullprotection. Itmustberecognised thatthere are nogrounds fortheAustralianGovernment that agreement.hasguaranteedthesite,asregistered TheAustralianGovernment andagreed consensually agreed tomininginthearea.LandCouncilandcompanystandby TheNorthern extension ofthesiteboundaryisanalysedindetail extension isnotconsistentwithearlieranthropological evidenceorstatementsbytraditionalowners.This torecogniseasking theAustralianGovernment asignificantextensionofboundariessite.The the ore bodythreatens thesacred siteofBoiwek.Inmakingtheseclaims,theSeniortraditionalowneris The seniortraditionalownerhas,inrecent months,assertedthatthecurrent progress ofthedeclineto Heritage Committee. Heritage values.ThisviewhasalsobeenconveyedbytheAustralianMinistertoChairofWorld the companyhadmeteveryrequirement underAustralianlaw, includingrequirements toprotect World Committee’s request tovoluntarilyhalt themine,there wasnobasisforrequesting ahaltordelaywhen The AustraliandelegationatKyotomadeitexplicitlyclearthat,whileacknowledgingtheWorld Heritage REQUEST FORVOLUNTARY SUSPENSION Section 5.6. The Mirrarhaverepeatedly and CHAPTER ONE

World Heritage Values and Attributes of Kakadu National Park

1.1 Kakadu National Park – An Introduction 1.2 World Heritage Criteria 1.3 Natural Values and Attributes 1.4 World Heritage Cultural Values and Attributes Conclusion

1

World HeritageValues andAttributesofKakaduNationalPark Wetlands Importance(theRamsarconvention). ofInternational recognised significanceundertheConvention on fortheir international significance totheAustralianpeople.ThewetlandsofKakadu are Kakadu isalsoontheRegisterofNationalEstateduetoits national members) whorepresent theAboriginalpeopleofPark. for thePark.TheBoard hasanAboriginalmajority(tenoutoffourteen responsible, along withtheDirector, forpreparing plans ofmanagement of ManagementdeterminespolicyformanagingtheParkandis Government’s TheKakaduBoard Director ofNationalParksandWildlife. arrangement betweentheAboriginaltraditionalownersandFederal Act1975 Conservation The Parkisproclaimed underthe their landtotheDirector ofNationalParksandWildlife. in theParkisheldbyAboriginallandtrusts.Thetrustshaveleased toAboriginalland are Title notdisputedbytheAustralianGovernment. remaining area oflandisunder claimbyAboriginalpeople.Theseclaims Aboriginal LandRights(NorthernTerritory) Act1976 Approximately 50%ofthelandinParkisAboriginalunder particularly intherichheritageofAboriginalartandarchaeological sites. 50 000years.Evidenceofoccupationisfoundthroughout thePark, Aboriginal peoplehaveoccupiedthearea continuouslyforatleast very diverse. forest, rivers,billabongs,floodplains,mangroves andmudflats.Thearea isecologicallyandbiologically the Parkincludesandstoneplateauandescarpment,extensiveareas of savanna woodlandsandopen boundary(Figurethe woodedsavannasandriversofitswestern 2).Majorlandformshabitatswithin and basins150kmtothesouth,fromLandsandstoneplateauineast,120 theArnhem Territory,of theNorthern Australia(Figure 1).Itextendsfrom hills thecoastinnorthtosouthern KAKADUNATIONALKakadu NationalParkisaspecialAustralianplace.Itcoversanarea of19804km2inthewet-drytropics PARK –ANINTRODUCTION 1.1 occasions isstillprotected. boundaries. TheuniversalsignificanceforwhichtheKakaduNationalParkhasbeenlistedonthree outsidethe byaproject threatened thatthevaluesandattributesare to sustainanargument todefinetheWorld itispossible summarised. Itisnecessary Heritagevaluesandattributesbefore explained andthevaluesattributesofWorld ofKakaduNationalParkare Heritagearea InthischaptertheWorld threatened. listedand that thevalueswere Heritagecriteriaare claimed to theWorldmine atJabilukawasathreat HeritagevaluesofthePark.TheMissionreport andTraditional uranium Ownerclaimsthataproposed organisation to investigatenongovernment The UNESCOWorld HeritageCommitteesentaMissiontoKakaduNationalParkinOctober1998 CHAPTER ONE:WORLDHERITAGE VALUES ANDATTRIBUTES OFKAKADUNATIONAL PARK and ismanagedthrough ajointmanagement National ParksandWildlife , andmostofthe declaration in1979. Kakadu foratleast Kakadu isaspecial to care forKakadu indigenous people indigenous people non-indigenous since thePark’s and significant have cared for 50,000 years. worked with for 20years, people have Australians. place forall Australia’s Australia’s 3

CHAPTER 1 World Heritage Values and Attributes of Kakadu National Park

1.2 WORLD HERITAGE CRITERIA Kakadu National Park is listed under the following criteria for natural heritage and cultural heritage values:

Natural Heritage Criterion (ii): Outstanding examples representing significant ongoing geological processes, biological CHAPTER 1 evolution and man’s interaction with his natural environment. Criterion (iii): Unique, rare or superlative natural phenomena, formations or features or areas of exceptional natural beauty. Criterion (iv): The most important and significant habitats where threatened species of plants and animals of outstanding Kakadu World universal value from the point of view of science and Heritage conservation still survive. ecology Cultural Heritage geomorphology Criterion (i): Represent a unique artistic achievement, a masterpiece biology of the creative genius. people and their Criterion (vi): Be directly or tangibly associated with events or with environment The escarpment ideas or beliefs of outstanding universal significance. of Kakadu culture and spirit The specific attributes that make up these World Heritage values of (Science Group, unique and rare Environment Kakadu National Park are many and varied. These attributes range Australia) from specific sites and features to Kakadu’s expansive landscapes and exceptional beauty stories of evolution, and include less tangible features such as the art and culture Inset cultural and spiritual associations and interactions between the Billy-goat plum creativity landscape and a living culture. (Planchonia Careya) (Michael Preece)

4

World Heritage Values and Attributes of Kakadu National Park

1.3 NATURAL VALUES AND ATTRIBUTES Outstanding examples of ongoing geological processes and illustrations of the ecological effects of sea-level change in northern Australia. The coastal riverine and estuarine flood plains of the South Alligator, West Alligator, East Alligator, and

CHAPTER 1 Wildman rivers are included within Kakadu National Park and provide important examples of ongoing geological processes and illustrate the ecological effects of sea-level change in northern Australia. The geomorphology and ecology of these coastal floodplains have undergone considerable change in a relatively short geological period. These changes provide a useful record of the development of freshwater floodplains and the successional responses of mangrove environments across northern Australia. The ecosystems of Kakadu’s wetlands, woodlands and the Arnhem Land Plateau provide outstanding examples of significant ongoing ecological and biological processes in the evolution and development of terrestrial, fresh water and coastal ecosystems and communities of plants and animals. In comparison with the rest of the Australian continent, the environments of north Australia have been little affected by European settlement. Attributes contributing to this value include: • the scale and integrity of landscapes and environments, including extensive and relatively unmodified vegetation cover and largely intact faunal composition; Waterbirds of • high flora and fauna species diversity; Kakadu during the wet season • rare and endangered species; (Science Group, • habitat heterogeneity; and Environment Australia) • endemic plant and animal species.

6 World HeritageValues andAttributesofKakaduNationalPark Aboriginal culture intheregion. sites bothreflect thelonghistoryofAboriginaloccupationlandscape andremain centralto archaeological androck artsites andotherareas thathavespecialmeaningtoAboriginalpeople.These people. Specialplacesinthelandscapeincludeceremonial places,sites ofreligious significance, Kakadu NationalParkisalandscapeofcultural,religious andsocialsignificance tolocalAboriginal natural environment. indigenous peopleandrepresentsanoutstandingexampleofman’s interactionwiththe landscape reflects50,000yearsofongoinghumanoccupationandlandmanagementby prominently inthereligiousbeliefsandculturaltraditionsoflocalindigenouspeople.The The naturalfeaturesintheregion,includingplantsandanimalsPark,feature contribute tomaintainingahighlevelofprotection fortheintegrityofKakadu’s World Heritagevalues. Park torespond toandrecover from naturaldisturbancesandcatastrophic events.Thesekeyattributes ecological processes. Thisgreat diversityandsizeenhancestheabilityofecosystemsspecieswithin attributes ofsignificantconservationvalueandprovide anexcellentenvironment forthecontinuationof The diversityoflandscapes,habitatsandspeciesKakaduNationalPark,combinedwithitsvastsize,are shrublandandheath. • mangroves andfloodplains; • wetland,riverine,andcoastalenvironments; • lowlandandsandstonemonsoonrainforests; • openforest andwoodlands; • Kakadu NationalParkcontainsawidevarietyofhabitatsandvegetationtypes,including: landscapes thatconstituteasignificantrepresentationofAustralia’s wet-drytropics. Kakadu NationalParkcontainsawiderangeofenvironmentalgradientsandcontiguous 7 (Mark Hallam) (Mark South The Alligator River Alligator catchment is catchment protected in the in protected Kakadu Kakadu National Park Park National CHAPTER 1 World Heritage Values and Attributes of Kakadu National Park

The joint management arrangements for Kakadu National Park specifically provide for the ongoing use and occupation of the Kakadu landscape by its indigenous landowners and the maintenance of Aboriginal cultural traditions. The continuing practice of fire management by indigenous landowners is one example of how ongoing traditions are directly linked to the conservation management of the Park. Kakadu National Park includes several important and significant habitats where threatened CHAPTER 1 species of plants and animals of outstanding universal value from the point of view of science and conservation still survive. While the diversity of plant and animal species of Kakadu is a significant value in itself, Kakadu also contains the habitats of a variety of species which are of outstanding scientific and conservation value. These include species listed as rare or threatened, species recognised as having special conservation status under international treaties, and species which have experienced drastic range reductions, or are of particular scientific interest, such as relict species. Kakadu Natural Several important plant associations are also restricted to Kakadu Values National Park, including those associated with Eucalyptus koolpinensis, the heath vegetation on the margins of the Marrawal Plateau, and plants and animals woodland containing Terminalia platyptera on Snake Plains. escarpments The landscape of Kakadu National Park is of exceptional natural and plains beauty and aesthetic importance and contains superlative wetlands and natural phenomena woodlands Kakadu National Park contains features of great natural beauty and cliffs and coasts magnificent sweeping landscapes. The on-ground attributes which billabongs and ocean contribute to the values of Kakadu include the: big rivers and • expansive and varied landscapes including coastline, wetlands, small streams floodplains, the Arnhem Land Plateau and outliers; caring for country • exceptional natural beauty of viewfields; science and • unusual mix and diversity of habitats found in such close conservation proximity; and • scale of undisturbed landscape. The north of the Park is characterised by extensive lowlands and a vast expanse of wetlands. These extensive wetlands are listed under the Convention on Wetlands of International Importance, especially as Waterfowl Habitat (the Ramsar Convention). The Ramsar wetlands comprise the catchments of two large river systems, the East and South Alligator Rivers, seasonal creeks and the lower reaches of the East Alligator River, the Magela Creek floodplain, the West Alligator River system, and nearly all the Wildman River system. The wetlands support about one million waterbirds of over 60 species, as well as many other vertebrate and invertebrate species. The two river systems of the wetlands are outstanding examples of the series of large rivers of the Torresian monsoonal biogeographic region draining to the Arafura Sea.

8 World HeritageValues andAttributesofKakaduNationalPark Termite Mounds Termite and Woodland and in Kakadu in National Park National (Michael Preece) (Michael ephippegera) (Petasida Exquisite Leichhardt’s grasshoppers 9

CHAPTER 1 (Mark Hallam) (Mark Ubirr rockshelter, Kakadu is Kakadu renowned for for renowned its rock art art rock its CHAPTER 1 10 World HeritageValues andAttributesofKakaduNationalPark for artisticexpression, asarecord ofeventssuchasasuccessfulhunt,andtoillustratestories. heroes, andpaintingsofreligious andceremonial life.Paintingswere oftenusedforteachingchildren, knowledge—showing objects,animalsandactivitiesfamiliartoAboriginalpeopletoday, mythological In additiontotheirreligious significance,rock paintingsalsoprovide avaluablestorehouse oftraditional of Aboriginalpeopleintheregion. can portraythespiritualfigures thatcreated thelandscapeandembodyculturalbeliefstraditions activities ofcommunitiestoday. Paintingsreflect thehistoryofAboriginaloccupation ofthelandscape, traditions andbeliefsofAboriginalpeopleinthePark.Thisassociationcontinuessocialcultural A strong associationexistsbetweenAboriginalculturalsites(including rock artsites)andtheliving Aboriginal peoplewiththeMacassanandEuropean cultures, are alsofoundintheNationalPark. multicoloured X-rayart.Drawingsinbeeswaxand‘contactart’,whichdepictsthefirstcontactof and otherstencils,depictionsofanimalshumans,battlehuntingscenes,elaborate A significantaspectoftheartisrangeformsandstylesfoundinKakadu.Thisincludeshand Nourlangie-Mt Brockman massif,Ubirr, NamarrgonDjahdjam,andDeafAdderCreek. paintings. Areas ofparticularsignificanceforrock artincludeCannonHill,NgarradjWarde Djobkeng,the 5000 havebeenrecorded byParkstaff. Manyofthesesitescontainalargenumberindividual that there are more than15000rock artsitesintheescarpment andplateaucountry, ofwhichsome Kakadu NationalParkcontainsoneofthegreatest concentrationsofrock artintheworld.Itisestimated expression ofthelonghistoryindigenousoccupationKakadulandscape. integral tothelivingtraditionsofcontemporaryindigenouslandownersandastrongphysical continuum ofatleast10000yearstothepresent.Thiscollectionartisstronglylinkedand WORLDHERITAGEThe rockartsitesofKakadurepresentauniqueartisticachievement.spansanunrivalled CULTURAL VALUES ANDATTRIBUTES 1.4 World HeritageValues andAttributesofKakaduNationalPark National ParkforallAustraliansandtheworld. suggestions forimprovement.Australiarecognisesthatit holds andcaresforthevaluesofKakadu Australia canshowthatthesevaluesandattributesareprotected whilerespondingconstructivelyto attributes forwhichKakaduNationalParkhasbeeninscribed arerecognised,protectedandpromoted. Kakadu NationalParkisaspecialAustralianplace.TheWorld Heritagenaturalandculturalvalues CONCLUSION the valuesofKakaduasaWorld HeritageArea. develop theculturalpractices,traditionsandcustomsassociatedwithcaringforcountry, contributesto ceremonies continuetobepracticed.Thecontinuingabilityofthesecommunities toundertakeand Traditional beliefsandpracticesremain importantinthedailylifeofAboriginalcommunities andrites beings whichare ofsignificantcultural,religious orsocialimportancetotheAboriginalpeople. Throughout KakaduNationalParkliesacollectionofplacesandlandscapes associatedwiththesespirit continuation ofhumanlife,localAboriginalculture andtheproductivity oftheland. retained theirpowerstoinfluencethelifeofhumansandare considered tobeavitalforce inthe their work,thesebeingsdepartedorrested inthelandscape.They era, whoemergedtogiveformandlifetheearth.Atendof land. Theirspiritualbeliefcentres onspiritbeingsfrom thecreation The Aboriginalpeoplehaveanimportantspiritualbondwiththe cultural traditionofindigenouscommunities. landscape isembeddedinthecontinuinganddeveloping Kakadu representsanoutstandingexampleofwherethe environmental changessincethattime. provide avaluablerecord ofhumanresponses andadaptation to Australian continent,datingasfarback50,000years,theyalso provide theearliestavailableevidenceofhumanoccupation 50,000 yearsofahuntingandgatheringculture. Whilesites evolved incompanywithcontinuingAboriginaloccupationand Kakadu reflects anoutstandingexampleofalandscapethathas human occupationofthecontinent. tradition thatcanbetracedbacktotheearliestknown on aglobalscalebecauseitrepresentscontinuingcultural continent tomoderntimes.Kakaduisparticularlysignificant gathering wayoflifethathasdominatedtheAustralian Kakadu providesoutstandingexamplesofthehuntingand Kakadu CulturalValues people andenvironment archaeology andscience hunting andgathering people andceremony rock artpastpresent people andculture caring forcountry people andbelief cultural tradition culture andart art andpeople future 11

CHAPTER 1 12 CHAPTER 2

Kakadu National Park – The Place and its People

2.1 Kakadu – The Place 2.2 Kakadu – The People 2.3 Inscription on the World Heritage List 2.4 Mission Visit Conclusion

13

Kakadu NationalPark–ThePlaceanditsPeople physical andbiologicalenvironment oftheregion. in theregion. Thebuffalo alsohadastrong impactonthe economic resource tobothAboriginalandnon-Aboriginalpeople across Territory thetopof theNorthern andbecameanimportant abandoned whenthesettlementsclosed.Thebuffalo spread settlements from the1820sforfoodeitherescapedorwere Water buffalo Territory influenced theParkarea inanindirect but majorway. The firstEuropean settlementsinthetopendofNorthern of thePark. one ofthemostimportantaspectsculturalsignificance lived continuouslywithinKakadufor50000ormore yearsis a modelforsocialorganisation.ThatAboriginalpeoplehave These creation figures gavethe peoplelaws,awayoflifeand are regarded asstillpresent inthelandscapeandactivetoday. the RainbowSerpent.Somefigures, liketheRainbowSerpent, land atthetimeoffirstpeoplebycreation figures suchas 1990). Aboriginalpeoplebelievethattheywere placedinthis have arrivedinAustralia(RobertsandJones1994,Robertsetal continuously from around 50000 yearsbefore thepresent; theearliestdatethathumansare believedto very longtime.Archaeological evidencesuggeststhathumanshave lived intheKakaduregion Aboriginal peoplehavebeenassociatedwiththearea oflandnowknownas KakaduNationalParkfora ofthePark History 2.1.1 KAKADU—THEPLACE 2.1 proposal ontheoverallvaluesandattributesofKakaduNationalPark. entered ontotheWorld Heritagelistinginthree stages,isitpossibletoassesstheimpactofJabiluka Only withthefullappreciationofwayinwhichKakaduNationalParkcameintoexistenceandwas ItsinscriptiononthelistofWorld Heritage • TheroleoftraditionalownersinthePark • ThemanagementprinciplesofKakaduNationalPark • oftheminingenclaveslocated intheregion Thehistory • ofthetownJabiru andthemechanismstoensurethatitdoesnotharmvalues Thehistory • ThefactthatfromitsbeginningstheParkco-existedwithAboriginallandowninginterests,mining • ofthePark Thehistory • chapter describes: tobeableassessclaimsthattheWorld The isunderthreat. context isnecessary Heritagearea tothePark.This the AustralianGovernmentgivesanhistorical,socialandculturalbackground CHAPTER TWO:KAKADUNATIONAL PARK—THE PLACEANDITSPEOPLE of thePark interests, andtourisminterests (Bubalus bubalis) that were introduced tothe pastoral activity, mining, indigenous communities Kakadu sincethe1820s. Non-indigenous people settlement ofNorthern Australia impactedon introduction ofwater Changes includedthe have beenassociated buffalo, missionaries, forestry andtourism. with thelandcalled Non-indigenous in manyways. In thischapter 15

CHAPTER 2

Kakadu National Park – The Place and its People

From the latter part of the 1880s, small European settlements in the area of the Park were based on buffalo hunting. In addition to buffalo hunting, other small scale ‘industries’, such as mining, forestry, pastoral activity and tourism, developed over time. These enterprises had a significant impact on Aboriginal society. The work of missionaries, particularly at nearby Oenpelli, also had a

major influence in the region. In recent years wildlife conservation, mining and CHAPTER 2 tourism have become major land uses. Kakadu was established at a time when the Australian community was becoming more interested in advocating for the declaration of national parks for conservation and in recognising the land interests of Aboriginal people. A national park in the Alligator Rivers Region was proposed as early as 1965. Over the next decade several proposals for a major national park in the region were put forward by interested groups and organisations.

2.1.2 The Woodward Inquiry In 1973 the Commonwealth Government set up a Commission of Inquiry into Aboriginal land rights in the Northern Territory. This Commission specially considered how to recognise Aboriginal people’s land interests while providing for conservation management of the land. The Commissioner of this inquiry, Mr Justice Woodward, A National Park concluded that: National Park proposed Ubirr ‘It may be that a scheme of Aboriginal title, combined with for the Alligator Rivers rockshelter, Kakadu national park status and joint management would prove region as early as 1965 (Mark Hallam) acceptable to all interests’ (Woodward 1973). (now part of the Kakadu Kakadu National Park was born from that vision of compromise National Park). and shared land use. Indigenous land interests 2.1.3 The Ranger Inquiry and joint management were considered in the Uranium mining in Australia has been constantly debated since earliest proposals for a uranium was first discovered in 1949. The passage of the Atomic National Park. Energy Act 1953 (Commonwealth) was motivated primarily by a desire to develop the industry for defence purposes. This led to the opening of a number of mines over the following 10 years. In the early 1960s, a moratorium was imposed on further uranium mining activities, including export, as a result of market contractions. In 1967, the moratorium was lifted, as the potential for cheap commercial use for power generation became apparent. In 1974, a new moratorium was placed on uranium exports, this time despite high uranium prices. This was motivated in part by the rising importance of environmental issues in the eyes of the Australian public. Uranium mining policy has been an issue of national significance prior to 1975. Significant uranium deposits were discovered in the Alligator Rivers Region at Ranger, Jabiluka and Koongarra in the early 1970’s. A formal proposal to develop the Ranger deposit was submitted to the Australian Government in 1975. At this time, uranium mining, Aboriginal land ownership and conservation were major national and regional issues, and the Australian governments of the day chose a transparent process to choose a way forward through sometimes conflicting options.

17 CHAPTER 2 the GimbatResumptionand Waterfall Creek Reserve(formerlyknown asUDPFalls)were lateradded proposed Stage3area ofKakaduNationalPark.Otherareas oflandinthe southoftheParkknownas In June1987alandclaimwas madefortheformerGoodparlaandGimbatpastoral leasesinthe be determined. 2 thatwere not grantedhavebeenclaimedagainundertheLandRightsActbutclaimsyetto agreement between theDirector andtheLandTrust wasentered intoinMarch 1991.Theareas inStage the JabilukaAboriginalLandTrust, halfoftheRangerProject includingthenorthern Area. Alease November 1986three areas oflandtothewestandnorthJabilukaProject Area were grantedto Park. Stage2wasproclaimed on28February1984.Thelandclaimwaspartiallysuccessfulandin Act 1976 In March 1978, anAboriginallandclaimwasmadeunderthe under theLandRightsAct(refer Figure 3). near future, oncethenecessaryapprovals hadbeengiven. Pancontinental proposal foramineatJabilukaanddiscusseditintermsof themineproceeding inthe one minebeallowedtooperateatanytime.TheRangerInquiryreferred towhatwasthethen referred tothesequentialdevelopment ofuraniumminingintheRegion;theydidnotspecifythatonly areas notestablishedasnationalpark.TheRangerInquiry’s recommendations onuraniummining 18 Kakadu NationalPark–ThePlaceanditsPeople In June1982,theentire JabilukaProject Area (73km under the to managethelandasanationalpark.StageoneofKakaduNationalParkwasdeclared on5April1979 Act1975 Conservation Wildlife (astatutoryoffice underCommonwealthlegislation,the of NationalParksandWildlife land intheRangerProject Area wasalsoincludedinthisgrantofland.InNovember1978theDirector townsite, wasgrantedtotheKakaduAboriginalLandTrust halfofthe inSeptember1978.Thesouthern Most ofthelandthatwastobecomeStage1KakaduNationalPark,excludingproposed Jabiru Aboriginallandgrantsand the declarationofPark 2.1.4 the AlligatorRiversregion leases atRanger, Jabiluka and Koongarrawhenthe Uranium discovered in and Koongarra)inthe Environmental Inquiry Mineral Resources Pre-existing mineral (at Ranger, Jabiluka National Parkwas established 1975. Ranger Uranium (Land RightsAct)forthelandthatwasproposed tobeincludedinStage2ofKakaduNational early 1970s. established. National Parks and Wildlife Conservation Act1975 Conservation National ParksandWildlife ) andtheLandTrust entered intoaleaseagreement toenabletheDirector stages, andestablishingauraniumindustry. Miningwouldoccurin granting Aboriginaltitle,establishingamajornationalparkin recommendations oftheInquiryincludingthoserelating to acceptedalmostallthe In August1977theGovernment inquire intosubsequentlandclaimsundertheAct. also establishedtheoffice oftheAboriginalLandCommissionerto traditional ownerstolandintheAlligatorRiversRegion.TheAct Ranger Inquiry, todeterminethemeritsofaclaimbyAboriginal Parliament. ThisActallowedtheCommission,setuptoconduct Land Rights(NorthernTerritory) Act1976 Around thesametimeasthisinquirywassetup, pastoral activitiesintheAlligatorRiversRegion. land, establishinganationalpark,uraniummining,tourismand and competinglanduses,includingAboriginalpeoplelivingonthe Inquiry soughtacompromise betweentheproblems ofconflicting Environment Protection(ImpactofProposals)Act Fox whoheadedtheCommissionofInquiry)under Environmental Inquiry(alsoknownasthe‘FoxInquiry’afterJustice established the RangerUranium In July1975,theGovernment 2 ) wasgrantedtoJabilukaAboriginalLandTrust Aboriginal LandRights(NorthernTerritory) . was passedbyFederal National Parksand . TheRanger Aboriginal Kakadu NationalPark–ThePlaceanditsPeople Agreement tominewasreached withtheAboriginaltraditional Ranger Project, theproject wasgazettedinmid-1978. Inquiry’s recommendations regarding theconductof oftheRanger Following endorsementbytheGovernment the Rangerorebody development. Inquiry toexamineallaspectsofuraniumminingandespecially mining andin1975institutedtheRangerUraniumEnvironment inDecember1972reassessedGovernment theissueofuranium Peko-Wallsend OperationsLimited(Peko).AnewFederal of theElectrolytic ZincCompanyofAustralasia(EZ)and Special MineralLeasewasappliedforin1972byaconsortium The Rangermineraldepositswere discovered in1970anda 1970s—before theexistenceofPark. Koongarra leases)(refer Figure 2&9)datefrom theearly mining enclaves(theRangerProject Area andtheJabiluka Alligator Valley duringthe1950sand1960s.Thethree current uranium minesoperatedinthearea, notablyintheSouth by theKakaduNationalParkboundary. Anumberofsmall Mining hasa50yearhistoryinthearea nowlargelyenclosed UraniumMiningandthe Enclaves 2.1.5 accordance withthiscommitment. Ranger Inquiryrecommendations andtheParkismanagedin as Aboriginalland.Thiscommitmentwasbaseduponthe national parkandnotonlythoseareas whichare tobegranted participate intheplanningandmanagementofwhole commitment thatAboriginalpeoplewouldbeableto Ranger Inquiry, madea theCommonwealthGovernment Act 1993 Jabiru township,whichhasbeenclaimedunderthe under theLandRightsAct.Theseareas donotincludethe Some areas oflandwithintheParkremain subjecttoclaim yet tobedetermined. Trust inMarch 1996.Thelandclaimovertherest ofStage3has 3). Aleasewasentered intobetweentheDirector andtheLand was grantedtotheGunlomAboriginalLandTrust (refer Figure about halfofthelandinStage3Park,includingGuratba, there wouldbenomininginthatlocation.InJanuary1996 decidedthat and decision-makingtheAustralianGovernment intense publicdebateovertheissueandafterlengthyreview significant area referred toastheSicknessCountry. There was (Coronation Hill).Guratbaisinthemiddleofculturally whether miningshouldbeallowedtogoaheadatGuratba June 1991.Thestageddeclarationwasduetothedebateover successive stageson12June1987,22November1989and24 to thislandclaim.Stage3oftheParkwasdeclared in . In1978,whenannouncingitsdecisionfollowingthe Native Title granted toGunlomAboriginal Aboriginal landclaimforpart Gunlom tomanagelandasa of proposed stage3ofPark Director NationalParksand Director NationalParksand KALT tomanagelandasa lease agreement between lease agreement between Aboriginal LandGrants part ofstage3declared part ofstage3declared part ofstage3declared Kakadu NationalPark stage 1landgrantedto half ofthestage3land Kakadu NationalPark Kakadu NationalPark Aboriginal landclaim for partofproposed and declarationof the 1978landclaim Kakadu Aboriginal Land Trust (KALT) successful inpart stage 2declared stage 1declared stage 2ofPark National Park National Park National Park national park national park Land Trust 1978 1978 1978 1987 1987 1986 1984 1979 1989 1991 1996 1996 19

CHAPTER 2

Kakadu NationalPark–ThePlaceanditsPeople development; andfinancialinvestment toensure accesstoeconomicresources overthelongterm. Aboriginal languagesinterpreting service;culturalrevitalisation activities;smallbusiness andenterprise (including agedcare); culturalheritageandlandmanagementprograms; development ofaregional the developmentofcommunityinfrastructure; community-basededucation,trainingandhealthprograms programs andprovidebe usedtocomplementGovernment additionalbenefitsintheareas of:housing and Jabiluka minewillcontributeafurther$230milliontoAboriginal interests. Itisexpectedthatthesefundswill production-based royalties canbepaidbefore production commences,itisexpectedthatoveritslife,the The proposed Jabiluka minehasalready generated$5.2millioninbenefitsforAboriginalpeople. Whileno Jabiluka andresulted inconditionalapproval toproceed (seeChapterFiveformore detail). followed byaPublicEnvironmental Review(PER),assessedtheenvironmental impacts ofminingat of miningatJabilukawasre-opened in1996.AnEISprocess, followingachangeinFederalGovernment Jabiluka. ERAcarriedoutadrillingprogram in1993toprovide additionalresource information.Theissue throughtraditional ownerslobbiedtheGovernment seniorministerstoallowminingontheirlandat owners, theJabilukaLeasewastransferred toERAinAugust1991.In thesameyear, Aboriginal theagreement oftheNLC,onconsentAboriginaltraditional to theminenotbeingdeveloped.With in1983,refusalwas granted.FollowingachangeinFederalGovernment tograntanexportlicenceled 1982. AnEnvironmental ImpactStatement(EIS)wassubmittedandaccepted, andpermissiontomine 1982, followingPancontinentalsigninganagreement withtheAboriginal Traditional OwnersinJuly TerritoryMining Limitedin1975andamineralleasewasgrantedbytheNorthern inAugust Government Following discoveryoftheJabilukaorebody in1971,applicationtomine was madebyPancontinental million in1997/98,ofwhichthetraditionalownersreceived $2.4million. including theMirrarGundjehmiastraditionalowners.Royaltypaymentsfrom Rangertotalled$8.1 the continuedpaymentofannualrental ($200,000)androyalty equivalentstoAboriginalinterests, arbitration ofthoseterms.Thosetermsandconditionsinclude further 26years,pendingpossiblefuture renegotiation and mine continuingunderexistingtermsandconditionsfora The traditionalownersandtheNLChaveagreed totheRanger million wasinroyalty equivalentpayments. payments; $3.4millionwasinrental paymentsand$140.5 Aboriginal interests, ofwhich$1.9millionwasinupfront a totalof$145.8millioninpaymentshasbeenmadeto Since agreement wasreached withtraditionalownersin1978, and iscontinuing. completed in1994.MiningofOrebody #3commencedin1996 operate theRangermine.MiningofOrebody #1was Peko assignedalltheirinterests toERA,whichhascontinued established. InSeptember1980theCommonwealth,EZand public company, EnergyResources ofAustralia(ERA),was interests intheRangerminetoPekoandanewAustralian In December1979theCommonwealthagreed todivestits by theAustralianAtomicEnergyCommission,EZandPeko. was aconsortiumcomprisingtheCommonwealth,represented the orebody commencedinAugust1980.Theinitialoperator and operationswere approved inJanuary1979.Excavationof owners inNovember1978throughLandCouncil theNorthern Park ortheWHA of theKakaduNational and haveneverbeenpart Mining leasesare not of integrityare met”. reporting that“allconditions the mineandleasesbefore Evaluation noted 1991 boundaries. outside thepark Koongarra MineralLeasesas and theJabiluka identified theRangermine 1991 the region. exploration andminingin and upfront aboutmineral 1980 IUCN Technical nomination clearly WH nominationclear 21

CHAPTER 2 CHAPTER 2 22 Kakadu NationalPark–ThePlaceanditsPeople directly orindirectly associated withuraniumminingintheregion and,inlinewithrecommendations of The townshipofJabiru(refer Figure 2&9)wasestablishedwithinKakaduNationalParktohousepeople Jabiru 2.1.6 cultural valuesoftheKakaduregion, includingWorld Heritagevalues. potential impactsand,asaresult, issubjecttomore than70requirements toprotect thenaturaland values. TheJabilukauraniumminehasbeenthesubjectofmoststringentassessmentsuch proposals canmeetstringentassessmentsthataddress anypotentialimpactsonnaturalandcultural approved. willprovide ThepolicyinsteadnotesthattheGovernment necessary approvals onlyifsuch The AustralianGovernment’s policyisnotthatproposals relating touraniumminesautomaticallybe Australia ended. policymeantthatthislimitation ontheconstructionofnewuraniumminesin Government extraction ateithertheJabilukaorKoongarraMineralLeases.InMarch 1996,achangein Olympic DaminSouthAustralia)andtherefore effectively excludedthepossibilityofuraniumore uranium minesinAustraliatothree,Territory namedmines(RangerandNarbalekintheNorthern and had athree minespolicywithrespect touraniummining.Thispolicylimitedthenumberofoperational different BetweenMarch AustralianGovernments. 1983andMarch 1996theAustralianGovernment The stop-startnature ofuraniumminingapprovals hasbeentheresult ofthepolicydecisionstakenby over theyearsanditispresently ownedbytheFrenchutilityCOGEMA. Government proceed. Assuch,theproject hasnotbeendeveloped.Theownershipoftheleasechangedhands didnotgivenecessary consentswhichwouldhaveallowedthedevelopmentto 1983, theGovernment Traditional OwnersinJune1983forminingtoproceed. FollowingachangeinFederalGovernment development approval wasgivenin1981andtheownersreached agreement withtheAboriginal prepared adraftEIS,whichwassubmittedinDecember1978.FollowingacceptanceoftheFinal The Koongarrauraniumdepositwasdiscovered byNoranda(Australia)Limitedin1970.Thecompany 1480peopleliving • Strictplanning • Jabirunowan • Township originally • Jabiru in Jabiru controls. tourism industry. people andthe for indigenous important centre mining. with uranium people associated developed for the townshipofJabiru.Under thetermsofleaseagreement, the TerritoryNorthern authority, Government toestablishanddevelop the Director totheJabiruTown DevelopmentAuthority(JTDA),a In 1981,a13km LandCouncilbeconsultedintheproposals theNorthern for • thearea ofthetownbe leasedfrom theDirector ofNational Parks • theprinciplesfordesigningtownbesetoutinPlanof • thepopulation ofthetownbelessthan3500(inJune1998, • thetownbe ‘closed’,cateringonlyfortheminingcompanies, • thesitebe withinthenationalparkonlandexcludedfrom • developed thetownaccording tothefollowingprinciples: the RangerUraniumEnvironmental Inquiry, theCommonwealth the town. and and Wildlife; Management forKakaduNationalPark; 1700 withtheJabilukadevelopment); population was1480—theisnotexpectedtoexceed officials;agents andGovernment Aboriginal landgrants; 2 area ofthePark (NTPortion2272)wasleasedby Kakadu NationalPark–ThePlaceanditsPeople mining ofore beginsatJabiluka. approximately three tofouryearsafterthe mining ofore atRangerwillceasein2004, that envisagedbytheRangerInquiry. The growth forJabiru willbemuchlowerthan township (seePhotograph1).Population and willnotleadtothecreation ofanynew immediately adjacenttotheRangerLease mining ofore begins atJabiluka.Itis at Rangerwillceasewithinfouryearsafter adjacent Rangerfacilitiesandminingofore will beminimalcompared withtheexisting infrastructure impact oftheJabilukamine end ofthelifeRangermine.The Jabiluka willbeginproduction towards the The RangerInquiry(Second)Reportstates(p223,Conclusion,paragraph1): otherlawsapplicabletothePark. • the • theJabiruTown Planapproved Regulations; bytheDirector undertheNationalParksandWildlife • thelease; • theKakaduNationalParkPlanofManagement(thefourthplancommencedinMarch 1999) • the • the towninconformitywith: The leasebetweentheDirector andtheJabiruTown DevelopmentAuthorityrequires theAuthoritytouse tourism servicesinJabiru. become more andmore significantintheregional economythere hasbeenfurtherinterest indeveloping the town.AsKakaduhasbecomemore importantasaplacewhere touristscomeandastourismhas a caravanparkwithlodgeaccommodationandotherfacilitiesforvisitorshavebeendevelopedin In 1988theGagudjuCrocodile HotelownedbytraditionalownerswasopenedinJabiruandsincethen organisations andcommunitygroups. NLC andthetraditionalAboriginalowners’.Thetownisnowavitalhubforworkof Park’s secondPlanofManagementallowedfortourismaccommodation‘withtheconcurrence ofthe centre, developedlaterasvisitorstoKakaduNationalParkbeganusefacilitiesinthetownand servicesandservice industries. Asecondaryroleoperations, government forJabiru,asatourismservice The ideaofJabiruasa‘closedtown’allowedfortownlivedinbypeopleconnectedwithmining activities inJabiru. JTDA subleasessitestooccupantsandcontrols leasesandlicencestocommercial andbusiness Wildlife Regulationsrelating tothetown; Wildlife getting intoproductionduringthelifeofRangermine.’ associated withtheRangerminebutitallowsforpossibilityofPancontinentalMine[Jabiluka] smaller thebetter. toaccommodatepeople Thisisamuchlargernumberthanwillbenecessary ‘We recommendstronglythatthenumberofpeopleintown[Jabiru]not exceed3500;butthe wishes ofAboriginalsandtheprotection oftheParkenvironment); describes howJabiruwillcontinuetobedevelopedinanorderly waythat is consistentwiththe Jabiru Town DevelopmentAct1978 Act1975 Conservation National ParksandWildlife ; and and thosepartsoftheNationalParks 23 (Science Group, (Science town small The Environment of Jabiru of Australia) CHAPTER 2 CHAPTER 2 24 Kakadu NationalPark–ThePlaceanditsPeople Director of National Parks and Wildlife andtheKakaduBoardDirector ofManagement.Themainpurposea ofNational ParksandWildlife Management hasrecently comeintooperation.ThePlanofManagement isproduced jointlybythe The Actrequires thatthePark hasaPlanofManagement(seeChapter4)andthePark’s fourthPlanof land inthePark,andcontinuingdaytorelationship betweenparkstaff andtraditionalowners. Act1975 Conservation Parks andWildlife Joint managementinKakaduencompassesthelegalstructuralframeworksetplaceby ManagingtheParkTogether —jointmanagementandplanning 2.1.7 of NationalParks lease theirlandtotheDirector by indigenouspeoplewho Over halfofKakaduisowned Kakadu in1992 World Heritagemanagementin recognised Australia’s successin World HeritageCommittee introduced buffalo • weedmanagement • fire regimes • managementofartsites • interpretation of • planning • Best practicemanagementin: has anindigenousmajority Kakadu Board ofManagement Joint management eradication indigenous culture the exemplarymanagementofPark. Committee complimentedAustralianauthoritiesin1992for recognised asachievingbestpractice.TheWorld Heritage interpretation ofAboriginalculture andplanningare widely eradication, fire regimes, management ofartsites, for thePark.Parkpracticesinweedmanagement,buffalo management practicesandthisdesire isreflected intheleases park managementtocomplementtheirtraditional partners tocontributecurrent ‘bestpractice’knowledgeabout practised. Thetraditionalownerswanttheirjointmanagement knowledge incaringforcountrytheParkcontinuetobe management partnersistomakesure thattraditionalskillsand national parkbestpractice.Animportantobjectiveofthejoint and culturalenvironment oftheParkinaccordance with Aboriginals, andcommittheDirector tomanagingthenatural The leaseagreements bothprotect andpromote theinterests of under the Aboriginal traditionalownerswhohavebeengrantedland groupings. Membershipisnotconfinedtorepresentatives of Aboriginal peopleintheregion aswellthemajorlanguage representation ontheBoard coversthegeographicspread of Management wasestablishedin1989.TheAboriginal Boards andsetsouttheBoard’s tasks.TheKakaduBoard of for majoritymembershipofAboriginalrepresentatives onthese established forparkareas onAboriginalland.TheActprovides andprovides forBoardsand Wildlife ofManagementtobe establishes thestatutoryoffice oftheDirector ofNationalParks The , leaseagreements withthetraditionalownersofAboriginal National Parks and Wildlife Conservation Act1975 Conservation National ParksandWildlife Aboriginal LandRights(NorthernTerritory) Act1976. National Kakadu NationalPark–ThePlaceanditsPeople The ParkwasoneofthefirstAustralianplacestobelistedasasiteWorld Heritagesignificance. conservation significance;manyAustralianspushedfortheParktobeestablishedasaarea. tourism industry. Kakaduisaplaceofnationaltourismand Australia. Itisalsoimportanttotheregional economy, especiallythe Kakadu isespeciallysignificantasaconservationarea innorthern attachment tothePark. a placeforrecreation. Manyof thesepeoplealsofeelastrong senseof neighbours, theParkisnotonlyaplacewhere theyliveandwork,but and importantplacetomanyotherpeople.To localresidents and As wellasbeingimportanttotraditionalowners,Kakaduisaspecial outlines howtheseexpectationswillbeprogressed. not detractfrom thevalueofPark.ThePlanManagement opportunities tobenefitfrom theirlandwhere thesenewactivitiesdo Bininj/Mungguy benefit. This,ofcourse,wouldnotprevent partnershipsbetween for tourismandtheyhaverequested thatprimetourismresources oractivitiesare reserved fortheir are beingmet.Thetraditionalownersparticularlydesire toreceive more benefitfrom theuseoftheirland employment intheParkandbyproviding servicestotheParkmanagement authority. Theseexpectations The traditionalownersexpecttobenefitfrom theirlandbeingmanagedasanationalparkthrough direct tourism andresearch issues,through consultativecommittees. Aboriginal people.Otherstakeholdersare involvedthrough publiccommentprocesses and,inrelation to development ofthearea plansrequires extensiveconsultationwithtraditionalownersandrelevant otherwise notbeaddressed inthePlanofManagement.AswithManagement, level. Thepreparation ofindividualarea planshasthebenefitofaddressing sitespecificissuesthatcould The PlanofManagementiscomplementedbysubsidiaryarea planningdocumentsatamore detailed passage through Parliament generally runforafiveyearperiodandtakenearlytwoyearstoproduce, from advertisingofintentto Aboriginal interests, caringforcountry, providing fortouristsandtellingpeopleaboutthePark.Plans articulates fourguidingprinciplesforhowtheParkshouldbemanagedrelating toprotection of with importantobligationstopast,current andfuture generationsoftraditionalowners.Thecurrent Plan culture isthat Plan ofManagementistodescribehowitproposed tomanagethePark.Amainpartoftraditional Bininj/Mungguy to developtourismventures. Theyalsowishtobeableexplore anddevelopnew (Aboriginals) are responsible forcaringcountry—thisisaresponsibility Balanda/Mam conservationarea • culturallandscape • caringforcountry • Kakadu (non Aboriginals)and 25 (Mark Hallam) (Mark Aboriginal The Cultural Centre, Cultural Cooinda and an and Cooinda interpretive display of the of display seasons seasons CHAPTER 2 Kakadu National Park – The Place and its People

2.1.8 Agreements and Programs

Kakadu In addition to the joint management arrangements and lease agreements in place with the traditional owners of the Park, a wide • tourism and range of joint initiatives and programs have been undertaken with recreational use indigenous communities to ensure their interests were represented and CHAPTER 2 that cultural heritage values were protected and conserved. • tourism not to be more important Of particular interest are initiatives such as the opening of the Warradjan than caring for Cultural Centre in 1995, the incorporation of traditional fire practices into park management, the establishment of the Cultural Resource country Management Committee, the review of cultural heritage management in 1995, and the Kakadu Region Social Impact Study in 1996. Further examples are provided in Appendix 1.

2.2 KAKADU—THE PEOPLE There are two classes of affiliation that identify Aboriginal people with an area of land in the Kakadu region. Both of them are inherited through the paternal line. These are language and gunmogurrgurr. The origin of these affiliations is located in the Dreaming when creator figures deemed or caused particular tracts of country and landscapes to be of a certain language (eg Gagudju, Erre, Gundjehmi) or of a certain gunmogurrgurr (eg Mirrar, Badmardi, Wilirrgu) and further, distributed the first generation of human beings to occupy the central sites of each territory. The patrilineal descendants of this original generation inherited the language and the gunmogurrgurr of their respective tracts of country. There are about 16 extant clans of Kakadu traditional owners. Currently there are 11 language groups in the area covered by the Park (See Figure 4 page 30). Title to Aboriginal land in the Park is held by Aboriginal The ‘Window land trusts. on the Wetlands Kakadu National Park is an Aboriginal place. While the Park has been established to conserve its natural Visitor Centre’ near Kakadu and cultural values and to provide for appropriate visitor use, it is also a place where the rights of presents and Aboriginal people as the traditional owners and managers of the land are recognised and can be enjoyed. interprets the It is especially important to the traditional owners that their children and future generations of traditional landscape owners can enjoy the same rights, responsibilities and understanding of their culture as the current to visitors traditional owners. The Aboriginal population of the Park has grown substantially since its establishment, (Mark Hallam)

26 Kakadu NationalPark–ThePlaceanditsPeople establishing income-generatingbusinessesintheregion. Association. TheDjabulukguAssociationhasbecomemore activeinthelastdecadeandisactively lease. AllmembersoftheGundjehmiAboriginalCorporation are alsomembersoftheDjabulukgu owners andmembershipisbasedonthelandowningclans of theJabilukaleaseandclansadjoining recipient ofmining-related paymentsfrom the Jabilukamine.Theassociationcomprises90traditional uranium mine.Underthe1982miningagreement, theDjabulukguAssociationisprimarylocal The DjabulukguAssociationwasestablishedasaconsequenceofthe1982agreement fortheJabiluka Uranium mine. opposition totheJabilukamineandreview oftheend-usemining royalties from theRanger the GagudjuAssociation,principalfocusofGundjehmiAboriginalCorporationhasbeen Aboriginal Corporationare alsomembersoftheGagudjuandDjabulukguAssociations. Onsplittingfrom people or5%ofthetraditionalownersKakaduNationalPark.AllmembersGundjehmi Aboriginal peopleaffected bytheRangerUraniumMine.Ithasamembership of27adultAboriginal The GundjehmiAboriginalCorporationrepresents theinterests oftheMirrarclansandsupportsthose Association, andformedtheGundjehmiAboriginalCorporationinJuly1995. 1994 whentheMirrarGundjehmibecamedissatisfiedwithdirection and prioritiesoftheGagudju The associationbetweentheMirrarGundjehmiandGagudjuAssociationbecamecomplicatedin especially intouristaccommodationdevelopmentsorder tosecure long-termincomeforitsmembers. people intheregion. TheGagudjuAssociationmademajorinvestments intheregional economy, witnessed theassociationdeveloptobecomecentralserviceandbusinessorganisationforAboriginal The previous seniortraditionalowneroftheMirrarGundjehmiisapasthead oftheassociationandhe The MirrarGundjehmiclanhavehadacloserelationship withtheGagudju Associationformanyyears. Mine. Theassociationhasabout300membersfrom anumberoflandowning clansintheKakaduregion. Association wasestablishedin1980asaconsequenceoftheminingagreement fortheRangerUranium Association, theDjabulukguandGundjehmiAboriginalCorporation.TheGagudju The three groups withadirect interest inlanddecisionsand managementofJabilukaare theGagudju resentments betweenindividuals,clangroups andorganisations. historical connections.Recently, emergingpoliticsofanti-uraniummininghasexacerbateddivisionsand among andbetweenthegroups overownershipofcountry, andrelative associationswithplacesand The KakaduRegionalSocialImpactStudyReport(KRSIS)observedandreported onsomedisagreements groups are notalwaysinagreement ontheirviewsandprioritieslandmanagementissuesinKakadu. There are severalAboriginalgroups inKakaduwithtraditionallandinterests inthePark.Naturally, the andOrganisations AboriginalGroups 2.2.1 a populationofaround only139in1979whentheParkwascreated. Aboriginal communities.In1996,there were 533AboriginalpeoplelivinginthePark.Thiscontrastswith made theregion more accessibletoAboriginaloccupation,particularlythegrantingoflandrights to thearea. Themigrationandreturnwastriggered bythepolicydevelopmentsoflate1970swhich being supplementedbymigrationfrom otherareas andthereturnofpeoplewithtraditionalassociations 27

CHAPTER 2 CHAPTER 2 28 Kakadu NationalPark–ThePlaceanditsPeople World Heritagevaluesisadequate”. Kakadu area. In itsreport, theBureau notedthat “progress hadbeengood, andthecare takentoprotect mining suchthatitdoesnotaffect theWorld Heritagevaluesorothernaturalandcultural valuesinthe The AustralianDelegationtothemeetingadvisedof progress todateinimposing conditions on Kakadu NationalPark. organisations thattheproposed Jabilukauraniumminewouldthreaten theWorld Heritagevaluesof MISSIONVISIT At itsJune1998meeting,theWorld HeritageBureau considered representations from non-government 2.4 Australia onitsmanagementofKakaduandextensionthePark’s boundaries. uranium mines(includingJabiluka).TheCommitteeacceptedtheintegrityoflistingandcommended the World HeritageList,theWorld HeritageCommitteewasexplicitlyadvisedofthecurrent andproposed the proposed ParkortheGazettedPark.Onoccasionofmostrecent inscriptionoftheParkon of thecurrently operatingorproposed minesintheregion are withintheParkorhaveeverbeen The boundariesoftheWorld Heritageproperty are thesameasthoseofKakaduNationalPark.None development ofthePark(seeAppendix2). Subsequent renominations (1986,1991)andresultant inscriptions(1987,1992)havefollowedthestaged The firststageoftheParkwasnominatedforWorld HeritageListin 1980 andinscribedin1981. 1975 INSCRIPTIONONTHEWORLDHERITAGEThe variousstagesoftheParkwere declared underthe LIST 2.3 provision toindigenouspeople. immediate attentiontoissuessuchasenvironmental health(including housing issues)andservice Mr Collins,intendstofocusintheshorttermondevelopinganeffective implementation structure and developments intheKakaduregion. A keyaspectoftheKRSISistomaximisebenefitsandmitigatenegativesocialimpactsarisingfrom all Action Plan. recommendationsto leadateamimplementgovernment-endorsed ofthe1997KRSISCommunity TerritoryIn November1998,theCommonwealthandNorthern appointedMrBobCollins governments the chairsofProject CommitteeandoftheNLC). Gundjehmi) andanindependentlychaired StudyAdvisoryGroup (comprisingkeystakeholdersincluding Project Committee(comprisingAboriginalpeoplefrom Kakadu,includingrepresentatives oftheMirrar LandCouncil (NLC).Thetwo-stageapproachAustralia LtdandtheNorthern includedanAboriginal KRSIS wasjointlysponsoredTerritory bytheAustralianandNorthern EnergyResources Governments, of the region. community developmentprogram toenhanceormitigateimpactsassociatedwithdevelopmentof of Aboriginalexperiences,valuesandaspirationsregarding developmentoftheregion andtodevelopa The KakaduRegionalSocialImpactStudy(KRSIS)wascommissionedin1996toprovide aclearstatement KakaduRegionalSocialImpactStudy 2.2.2 : Stage1in1979;21984;and3successivephases1987,19891991. National Parks and Wildlife Conservation Act Conservation National ParksandWildlife Kakadu NationalPark–ThePlaceanditsPeople commitment remainsinplaceandhascharacterisedthecarefuldevelopmentofJabilukaproject. given legislativeforce,toprotectthenaturalandculturalvaluesofWorld Heritageproperty. That has alwaysbeenafeatureofthePark,withbalancebeingachievedthroughanover-riding commitment, need toexploitmineralresourcesforthebenefitofeconomyasawhole.Co-existingmultiplelanduse andprotection,the issues oftraditionalAboriginallandconnections,acommitmenttoconservation The World HeritagepropertyofKakaduNationalParkemergedfromnationalconsiderationthecomplex CONCLUSION Committee sessionsinNovember-December 1998. organisationsandthemining company,non-government andreport totheWorld HeritageBureau and mission wouldexaminethesituationfurther, havediscussionswithrelevant Aboriginalgroups, officials, Committee withtheparticipationofDirector oftheWorld HeritageCentre, IUCNandICOMOS.This mission toKakadubeundertakenbyateamheadedtheChairpersonofWorld Heritage However, because oftheimportance,complexityandsensitivityissueBureau proposed thata 29

CHAPTER 2

CHAPTER 3

Protecting Natural & Cultural Values: The Australian Framework

3.1 The Australian Federal System 3.2 Environment and Heritage Legislation (Commonwealth) 3.3 Aboriginal Land, Sacred Sites and Native Title Legislation 3.4 Uranium Mining 3.5 International Conventions and Agreements Conclusion

31

Protecting Natural&CulturalValues:Protecting TheAustralianFramework obligations impactontheStates andTerritories, they shouldbegiveneffect inacooperativemanner. position agreed betweentheFederal,StateandTerritory thatwhere Governments Australia’s treaty property. Thisuseofboth FederalandTerritory lawstogiveeffect tothoseobligationsisconsistentwiththe effect toitsobligations undertheWorld HeritageConventionwithrespect totheKakaduWorld Heritage World Heritage property (seeChapters3.2to3.4).Acombinationoftheselawsenables Australiatogive Assembly haveeachpassedlawsrelevant totheprotection ofthenaturalandculturalvalues oftheKakadu TerritoryPursuant tothepowersmentionedabove,FederalParliament andtheNorthern Legislative an AustralianState. exercised thatpower inamannerthatwouldresultTerritory intheNorthern beingtreated differently to Territory,status oftheNorthern there havebeenfewoccasionsonwhichtheFederalParliamenthas Territory.including theNorthern However, giventheself-governing ability tolegislatecomprehensively withrespect totheTerritories, Through theTerritories power, theFederalParliament retains the valid lawoftheFederalParliament,thenfederalwillprevail. if there isaninconsistencybetweenaStateorTerritory lawanda the Federal,StateandTerritory legislatures are concurrent. However, In relation toanumberofsubjectmatters,thelegislativepowers legislation,eachhaveagenerallegislativepower.or self-government The AustralianStatesandTerritories, undertheirownconstitutions trade andcommerce. affairs,dealing withexternal Australia’s Territories, corporationsand Australian Constitution.TheseincludethepowersallowingCommonwealthtopasslegislation However, ithaspassedarangeoflawsinthatarea byrelying onexistingheadsofpowersunderthe Federal Parliamentdoesnothaveacomprehensive legislativepowerinrelation toenvironmental matters. Under theAustralianConstitutionFederalParliamenthasalistofenumeratedlegislativepowers.The National Parkislocated. andthreeTerritories,Governments self-governing Territory, includingtheNorthern where theKakadu shared ordistributedbetweentheFederal,StateandTerritory There Governments. are sixState THEAUSTRALIANFEDERALSYSTEM inwhichthelegislative,executiveandjudicialpowersareAustralia hasafederalsystemofgovernment 3.1 that thevaluesofKakaduNationalParkwerenotdamaged. framework andEISprocessbecauseofitslocationtheGovernment’s priorityemphasisonensuring property atthetimeofnomination.However, theprojectwassubjectedtomoststringentlegal National Parkandasapre-existingpropertyrightwasspecificallyexcludedfromtheWorld Heritage The proposedminesiteisnotandneverhasbeenpartoftheWorld HeritagepropertyortheKakadu in internationalconventionsandagreements. legislation andlooksatAustralia’sparticipation land andculturalheritagelegislation,examinestheimpactofspecificuraniumminingcontrol andheritagelegislation,discussesthe applicableAboriginal extensive frameworkofenvironmental This chapterdescribestheAustralianFederalsystem,outlines that appliestotheregion. andheritagelegislation toconsidertheframeworkofenvironmental itisnecessary under threat, FRAMEWORK CHAPTER THREE:PROTECTINGNATURAL ANDCULTURAL VALUES: THEAUSTRALIAN To are assesswhetherthevaluesandattributesofWorld Heritageproperty government: three levelsof Australia has local • state/territory • federal • 33

CHAPTER 3 CHAPTER 3 34 Natural&CulturalValues:Protecting TheAustralianFramework of anEnvironmental ImpactStatementoraPublicEnvironment Report. preparation and publicreview ofaPublicEnvironment Report;and,assessmentwithoutthepreparation preparation and publicreview ofanEnvironmental ImpactStatement;assessmentfollowingthe consultation). Thefourlevelsare: examinationbyaCommissionofInquiry;assessmentfollowingthe possible levelsofenvironmental assessmentandtherequirements forassessment(whichincludepublic impact assessment.TheEPIPActandadministrativeprocedures approved undertheActprovide forfour referred totheMinisterforEnvironment whodeterminestheappropriate levelofenvironmental If theMinisterorauthorityresponsible fortheCommonwealthactionsodetermines,proposal is promote orfacilitateactionthatwill,islikelytoaffect theenvironment toasignificantextentor • examined andtakenintoaccountinrelation toactionsbytheCommonwealthGovernment. that, tothegreatest extentpracticable,mattersaffecting theenvironment toasignificantextentare fully assessed underthisAct(seeChapter5.1inrelation toJabiluka).TheobjectoftheEPIPActisensure environmental impactassessmentlegislation.BoththeRangerandJabilukaminingproposals were The ENVIRONMENTANDHERITAGE(a) LEGISLATION (COMMONWEALTH) 3.2 Heritage Legislation Environment and Relevant Australian result insuchan effect. (No 2)1998 Bill Conservation and Biodiversity Environment Protection Act 1983 Properties Conservation World Heritage Commission Act1975 Australian Heritage Act 1975 Conservation Wildlife National Parksand Act 1974 (Impact ofProposals) Environment Protection Environment Protection(ImpactofProposals)Act1974 Environment Protection(ImpactofProposals)Act permitorcauseanactionthatisotherwiseunlikelytohappen • affect theenvironment toasignificantextentorresult in • Action willbeenvironmentally significantifitwill,orislikelyto: environment toasignificantextent. must determinewhethertheactionisamatteraffecting the Jabiluka mineproposal wastheMinisterforResources andEnergy) the relevant Commonwealthaction(whichinthecaseof The CommonwealthMinisterorauthorityresponsible fortaking authority,other government, bodyorperson. authorities,eitheraloneorinassociationwithany Government by, andAustralian oronbehalfof,theAustralianGovernment incurringofexpenditure • making,ortheparticipationinmakingof,decisions • negotiation,operationandenforcement ofagreements • carryingoutofworksandotherprojects; • formulationofproposals; • Commonwealth actionisdefinedbroadly bytheAct.Itincludes: significant extentorresult insuchaneffect; or and thatwill,orislikelyto,affect theenvironment toa such aneffect; or and recommendations; and, and arrangements; 1974 (EPIP Act)istheCommonwealth’s Protecting Natural & Cultural Values: The Australian Framework

The Act and administrative procedures authorise the Minister for the Environment to make such comments, suggestions or recommendations to the Minister or authority responsible for the Commonwealth action that the Minister for the Environment thinks necessary or desirable for the protection of the environment. This may include suggestions or recommendations concerning conditions to which the action should be subject. The Minister or authority responsible for the action must ensure

that the suggestions or recommendations made by the Minister for the Environment (any Environmental CHAPTER 3 Impact Statement or Public Environment Report) are taken into account in relation to the action. (b) National Parks and Wildlife Conservation Act 1975 The National Parks and Wildlife Conservation Act 1975 (the NPWC Act) provides for: • the establishment of parks and reserves in Commonwealth areas; • the management of those parks and reserves by the Director of National Parks and Wildlife; and • joint management between the Director and Aboriginal people where parks and reserves are wholly or partly within Aboriginal owned land. The Act commenced in 1977 and since that time 16 parks and reserves, of which Kakadu National Park is one, have been established under it. Three of the parks: Kakadu, Uluru-Kata Tjuta and Booderee are on Aboriginal owned land, which is leased to the Director of National Parks and Wildlife. The NPWC Act provides for these parks to be managed by the Director in conjunction with a Board of Management, of which the Aboriginal owners of the land choose a majority of members. The Act also preserves the right of Aboriginals to use the land for hunting or food gathering and for ceremonial and religious purposes. Parks and reserves must be managed in accordance with a plan of management. The Director and Boards of Management prepare a plan with input from the public. In preparing a plan regard must be had to a number of specific objects, including: Mt Cahill from • the encouragement and regulation of the appropriate use, appreciation and enjoyment of the park Nourlangie Rock by the public; (Michael Preece) • the interests of the traditional Aboriginal owners of land in Kakadu, Uluru-Kata Tjuta and Booderee National Parks; • the preservation of the park or reserve in its natural condition and the protection of its special features, including objects and sites of biological, historical, palaeontological, archaeological, geological and geographical interest; • the protection, conservation and management of wildlife within the park or reserve; and • the protection of the park or reserve against damage. (c) Australian Heritage Commission Act 1975 The Australian Heritage Commission Act 1975 (the AHC Act) establishes the Australian Heritage Commission to keep the Register of the National Estate and advise the Commonwealth government in relation to the national estate.

35 CHAPTER 3 36 Natural&CulturalValues:Protecting TheAustralianFramework provides thatWorld Heritageisoneofseveralmattersnational environmental significance.TheEPBC to haveasignificantimpacton amatterof“nationalenvironmental significance”.TheEPBCBillexpressly In relation toenvironmental protection, theEPBC Billwillapplytoanyactionthathas,have,orislikely Act, currently before theCommonwealthParliament,ifpassed,willreplace theEPIPAct,NPWCWHPC The (e) World Heritage values,andlaiddownconditionswhichassure this. Kakadu NationalPark,becausethestringent3yearEISprocess specificallyaddressed the protection of The Commonwealthhasnotfounditnecessarytouseits powers undertheWHPCActinrelation to occasions, theCommonwealthhasintervenedunderWHPC Act. Commonwealth totakeactionwhere aWorld Heritageproperty islikelytobedamagedordestroyed. On within Australia,muchofwhichismentionedinthisresponse. However, theWHPC Actenablesthe There isawiderangeofFederal,StateandTerritory legislationusedtoprotect World Heritageproperties The WHPCActisnottheonlylegislationrelevant totheprotection ofWorld HeritagewithinAustralia. significance toAboriginalpeoplewithinproperties towhichtheWHPCAct applies. Act alsomakesspecificprovision fortheprotection orconservationofsites,whichare ofparticular relation toaWorld Heritageproperty whichisbeingorlikelytobedamageddestroyed. TheWHPC tospecifyactivities,whichwillbeprohibitedThe WHPCActenablestheCommonwealthGovernment in properties includethoseinscribedornominatedforinscriptionontheWorld HeritageList,suchasKakadu. conservation ofproperties inAustraliathatare ofoutstandinguniversalnaturalorculturalvalue.Such The (d) recommendations undertheEPIPActonJabilukamineproposal. from theAHCwastakenintoaccountbyMinisterforEnvironment whenmakinghis subject tostringentaccessprohibitions andprotection measures. Asrequired undertheAHCAct,advice Australia (50,000-60,000years).ThesiteswithintheAHCexclusionareas havebeenmappedandare (AHC) exclusionareas. ThisincludesMalakunanjaII,currently theoldestdatedarchaeological sitein National EstateundertheAHCActandprotected withintwodesignatedAustralian HeritageCommission majority aresitecomplex,whichislistedontheRegisterof withintheDjawumbu-Madjawarna The JabilukaMineralLeasecontainsapproximately 230art,archaeological andsacred sites.Thevast proposed actionandgivetheCommissionareasonable opportunitytoconsiderandcommentonit. values ofaplacethatisintheRegisteritmustinformAustralianHeritageCommission Before takesanyactionthatmightaffect thegovernment toasignificantextentNationalEstate and,allmeasuresalternative; thatcanreasonably betakentominimisetheadverseeffect willbetaken. the NationalEstatevaluesofaplacethatisinRegisterunlessthere isnofeasibleandprudent The AHCActrequires nottotakeanyactionthatwilladverselyaffect theCommonwealthgovernment ofthePark,whichliesoutsideRegion,wasincludedin1989. corner in 1980.Thesoutheastern The AlligatorRiversRegion,whichincludesmostofKakaduNationalPark,wasincludedintheRegister Commonwealth Act. the NationalEstateevenifitsconservation,improvement orpresentation isdealtwithbyanother have aesthetic,historic,scientificorsocialsignificanceotherspecialvalue.Aplacemayformpartof The nationalestateconsistsofplacesthatare partofthenaturalorculturalenvironment ofAustraliathat World Act1983 HeritagePropertiesConservation Endangered SpeciesProtectionAct1992 Environment Protection and Biodiversity Conservation Bill(No2)1998 Environment ProtectionandBiodiversityConservation Environment Protection and Biodiversity Conservation Bill(No2)1998 Environment ProtectionandBiodiversityConservation World Act1983 HeritagePropertiesConservation and the Whale ProtectionAct1980 (the WHPCAct)provides fortheprotection and (the EPBCBill),whichis . of theEPBCBilldealingwithjointmanagement. Protecting Natural&CulturalValues:Protecting TheAustralianFramework . ABORIGINALLAND,SACREDSITESAND NATIVE(a) TITLELEGISLATION 3.3 Aboriginal traditionalownersofKakaduandUlur Parliament on27April1999.TheMinisterfortheEnvironment hasalsorecently haddiscussionswiththe an inquiry(includingpublichearingsandsubmissions).TheCommitteeisexpectedtoreport tothe The EPBCBillhasbeenreferred toacommitteeoftheCommonwealthParliamentwhichhasconducted be nodiminutionofpowersovertheenvironment. management plansandthejointofCommonwealthreserves on Aboriginalland.There will existing reserves suchasKakaduNationalPark).Theseincluderequirements forthepreparation of The EPBCBillalsosetsoutrequirements forcreating andmanagingCommonwealthreserves (including provides awiderandmore effective rangeofenforcement optionsfortheprotection ofWorld • creates animproved environmental impactassessmentprocess forproposals thatmayhavea • prohibits anyactionthathas,willhaveorislikelytoasignificant impactontheWorld • values ofWorld Heritageproperties. InparticulartheEPCBBill: The partsoftheEPBCBillrelating toWorld Heritageprovide improved protection fortheWorld Heritage legislation, whileproviding greater protection tothemattersofnationalenvironmental significance. Bill isintendedtosimplifyexistinglegislationandremove duplicationbetweenCommonwealthandState The mainpurposeofthe land inKakaduNationalPark, andtheentirety oftheJabilukaMineralLease. has beengrantedtoAboriginal LandTrusts undertheLandRightsAct.Thisincludesabout50%of Since theLandRightsActcommenced in1977approximately Territory 42%ofthelandinNorthern a leasetothird party. Incertaincircumstancesgovernment). aLandTrust cangrantanestate orinterest intheland,forexample sold ortransferred (exceptthatitcanbetransferred toanotherLandTrust orsurrendered tothe of AboriginalsentitledbyAboriginaltraditiontotheuseor occupation oftheland.Thelandcannotbe The titletolandthatisgrantedundertheLandRightsAct held byaLandTrust. Itisheldforthebenefit including mining. available tootherAustralians,especiallytherightclaimland, andtoreject certainusesoftheirland, The LandRightsActrecognises thespecialstatusofindigenousAustraliansandgivesthemrightsnot granted undertheLandRightsAct. relationships to,land;and,toprovide Aboriginalpeoplewitheffective control overactivitiesontheland purposes oftheLandRightsActinclude:recognition oftraditional Aboriginal interests in,and Territorygrant traditionalAboriginallandintheNorthern to,andforthebenefitof,Aboriginals.Other Heritage properties, includingpenaltiesofupto$5.5million. must besubjecttothisprocess inorder toobtainapproval); and significant impactonWorld Heritagevalues(aproposal thatrequires approval from theMinister noapproval isrequired becausetheproposal hasbeenconsidered underanapproval process (b) the actionhasbeenapproved bytheMinisterforEnvironment; or (a) Heritage valuesofaWorld Heritageproperty unless: accredited bytheCommonwealth. Aboriginal LandRights(NorthernTerritory) Act1976 Aboriginal LandRights(NorthernTerritory) Act1976 u-Kata Tjut a NationalParksinrelation totheprovisions (Commonwealth) (the LandRightsAct)isto 37

CHAPTER 3 CHAPTER 3 The (b) committee isnowseekingtheviewsofinterested peopleonthereport. The report ofthatreview has beenreferred toacommitteeoftheCommonwealthParliament.The hascommissionedareviewThe Commonwealthgovernment oftheoperationLandRightsAct. sacred sitesandAboriginalland. The LandRightsActalsoincludesprovisions restricting theabilityofnon-Aboriginalpeopletoaccess an agreement inrelation tothe JabilukaMineralLeasein1982. LandCouncilenteredfor theLandRightsActmustalsogivehisorherconsent.TheNorthern intosuch The (c) or todesecrateasacred siteunlessauthorisedtodosoundertheNTASS Act. This Actmakesitanoffence toenterorremain onasacred site,tocarryoutworkonoruseasacred site, to performworkinthevicinityofasacred site. sites andfacilitatesdiscussionsbetweencustodiansofsacred sitesandpersonsperformingorproposing establishes andmaintainsaregister ofsacred sites,issuescertificatesallowingworktobedoneonsacred custodians ofsacred siteswhoare appointedfrom apanelnominatedbytheLandCouncils.TheAAPA Protection Authority. TheAuthorityiscomprisedof12members.Ten ofthemembersare Aboriginal Aboriginal landinthecourseof theiremployment. TerritoryThe Northern employeeswhoneedtoenter mayalsoissuepermitstogovernment Government remain onAboriginal landtobeissuedbytherelevant LandCouncilorthetraditionalowners oftheland. entitled bytradition,toenterorremain onAboriginalland.Itprovides howeverforpermits toenterand 38 Natural&CulturalValues:Protecting TheAustralianFramework Cultural Legislation Aboriginal Landand Northern Territory AboriginalSacredSitesAct1989 Aboriginal LandAct(NorthernTerritory) Native Title Act1993 Native Title Protection Act1984 Strait IslanderHeritage Aboriginal andTorres Territory)(Northern Aboriginal LandAct Act 1989 Aboriginal Sacred Sites TerritoryNorthern Act 1976 Territory)(Northern Aboriginal LandRights Northern Territory AboriginalSacredSitesAct1989 Aboriginal LandAct(NorthernTerritory) interest willbesubjectto.TheCommonwealthMinisterresponsible conditions onwhichexplorationwillbeallowedorthatthemining the relevant LandCouncil.Theagreement setsoutthetermsand agreement hasbeenentered into betweentheintendingminerand cannot begrantedinrelation toAboriginallandunlessan Exploration formineralscannotbecarriedoutandminingrights Council establishedunderthisLandRightsAct. responsibility LandCouncil,anAboriginal oftheNorthern Kakadu andtheJabilukaMineralLeaseare areas withinthe toassistAboriginalpeopleseekingagrantoflandunderthe • tonegotiateonbehalfofthetraditionalowners;and, • toconsultthetraditionalownersaboutproposals foruseof • toprotect theinterests oftraditionalownersland; • tofindoutandexpress whatAboriginalpeoplethinkabout • Land Councils.ThefunctionsofaCouncilare broadly: The LandRightsActprovides fortheestablishmentofAboriginal Land RightsAct. their land; how Aboriginallandshouldbemanaged; makes itanoffence forpersonsotherthanAboriginals (the NTASS Act)establishestheAboriginalAreas Protecting Natural&CulturalValues:Protecting TheAustralianFramework Scientist whosefunctionsinclude: The Environment Protection (AlligatorRiversRegion)Act1978establishesthepositionof Supervising (b) oversee theenvironmental aspectsofminingoperationsintheAlligatorRiversRegion. National Park,andthecreation ofthepositionSupervisingScientistforAlligatorRiversRegionto decision notthedevelopAustralianuraniummines’.Itrecommended theestablishmentofKakadu milling uranium,ifthoseactivitiesare properly regulated andcontrolled, are notsuchastojustifya the Region,andrecommended waystominimisethoseimpacts.Itconcluded‘Thehazards ofminingand conditions. Theinquiryestimatedtheenvironmental impactsexpectedtooccurasaresult ofminingin permitted toproceed Territory, intheAlligatorRiversRegionofNorthern andifso,underwhat the Environment Protection (ImpactofProposals) Acttodeterminewhetheruraniumminingshouldbe PolicyandLegislationFramework establishedtheRangerUraniumEnvironmentalIn 1975,theCommonwealthGovernment Inquiryunder URANIUMMINING (a) 3.4 Act.Theclaimhasyettobedetermined. Native Title The townshipofJabiruandsomeadjoiningareas inKakaduNationalPark have beenclaimedunderthe business activityonlandorwaterswhere indigenouspeoplemayhavenative titlerightsandinterests. industryandthegeneralpublic.ItalsoprovidesGovernments, waystonegotiatefuture publicworksand rights andinterests. TheActprovides waystodeterminenativetitleandprotect theexistingrightsof The (e) views ofindigenouspeopleinmakingassessmentssignificance. according toindigenoustraditions,observances,customsandbeliefs thatprimacybegiventothe heritage protection issuestoberesolved bynegotiationand/ormediation;significancetobeassessed The ATSIHP Billincludesprovision fortheaccreditation ofStateandTerritory heritageprotection regimes; and Territories inprotecting indigenousheritage. processes fordealingwithapplicationsprotection undertheAct.ItalsoseekstoengageStates particular significancetoAboriginalpeoplesandTorres StraitIslanders.TheATSIHP Billreforms the As inthe1984Act,ATSIHP Billprovides fortheCommonwealthtoprotect areas andobjectsof ATSIHP Bill)ispresently before theCommonwealthParliament.Ifpassed,itwillreplace the1984Act. for thebenefitofallAustralian’s. The (d) The reporting; consultationwithrelevant Aboriginals;and,thereturnanddisposalofAboriginalremains. declaration. TheActalsomakesprovision inrelation tothediscoveryofAboriginalremains including: objects thatare underthreat ofinjuryordesecrationandmakesitanoffence tocontravenesucha tomakedeclarationsinrelationThe ActenablestheCommonwealthgovernment tosignificantareas and objects thatare ofparticularsignificancetoAboriginalsinaccordance withAboriginaltradition. The purposesofthisActare thepreservation andprotection from injuryordesecrationofareas and Native TitleAct1993 Aboriginal andTorres StraitIslanderHeritageProtectionAct1984 Environment Protection(AlligatorRiversRegion)Act1978 Native TitleAct1993 Aboriginal andTorres StraitIslanderHeritageProtectionAct1984 recognises andprotects Aboriginal andTorres StraitIslanderpeoples’nativetitle (Commonwealth) Aboriginal andTorres StraitIslanderHeritageProtectionBill protects Aboriginalsignificantsites (Commonwealth) 39 (the CHAPTER 3 CHAPTER 3 ConventiononBiological DiversityadoptedatRiodeJaneiro on5June1992andwhichentered • Animals1979(theBonnConvention). ConventionontheConservationofMigratorySpeciesWild • Trade ConventiononInternational FaunaandFlora1973(CITES). inEndangered SpeciesofWild • 40 Natural&CulturalValues:Protecting TheAustralianFramework aTechnical Committeetoconsiderprograms forresearch into,andprograms for, thecollectionand • anAdvisoryCommitteeasaformalforumforconsultationonmattersrelating totheenvironmental • anAlligatorRiversRegionResearch Institute(ERISS)toundertakeresearch intotheenvironmental • The toadvisetheMinisterforEnvironment onenvironmental matterswithinandbeyondthe • tocoordinate andsupervisetheimplementationofrequirements, underanyprescribed instrument, • todevise,developandpromote standards andpracticesinrelation touraniumminingoperations • todevise,develop,coordinate theimplementationof,andassessprograms forresearch intothe • environmental regimes developing international Australia aworldleader ensuring human • respecting indigenous • protecting and • protecting the • conventions: to manyinternational Australia isasignatory into force generallyandforAustraliaon29December 1993. of miningoperationsintheRegion. assessment ofinformationrelating to,theeffects ontheenvironment intheAlligatorRiversRegion effects ofuraniumminingintheAlligatorRiversRegion;and elsewhere asappropriate; effects ofuraniumminingintheAlligatorRiversRegion,andintootherenvironmental issues Alligator RiversRegion. associated withenvironmental aspectsofuraniumminingintheAlligatorRiversRegion;and and rehabilitation intheAlligatorRiversRegion; environmental effects ofuraniumminingintheAlligatorRiversRegion; Environment Protection(AlligatorRiversRegion)Act1978 rights rights valuing heritage environment Convention onWetlandsImportance ofInternational • TheConventionfortheProtection oftheWorld’s Cultural • particular relevance toKakadu.Theseinclude- conservation oftheenvironment andbiodiversitythathave agreementsnumber ofinternational relating toprotection and environmentalinternational regimes. Australiaisapartyto active, andoftenleading,role ithasplayedinthedevelopmentof evidenced byitsearlyratificationofmajorconventionsandthe for environment, heritageandbiodiversitymanagement.Thisis Australia recognisescooperation theimportanceofinternational INTERNATIONAL CONVENTIONSAND 3.5 the Convention. Convention). Theentire KakaduNationalParkislistedunder especially asWaterfowl Habitat1971(theRamsar the Convention. Park, havebeeninscribedontheWorld HeritageListunder Thirteen Australianproperties, includingKakaduNational and NaturalHeritage1972(theWorld HeritageConvention). AGREEMENTS also establishes: Protecting Natural&CulturalValues:Protecting TheAustralianFramework should beprotected,AustraliahassubjectedtheJabilukamineproposaltostrictestscrutiny. Party totheWorld HeritageConventiontodecide onhowtheWorld Heritagevaluesofitsproperties process. Thecompanymustmeetmorethanseventystringentconditions.InexercisingitsrightasaState exactingenvironmentalconditionsimposedduringtheassessment mine operatorhasmetallofthevery monitored andevaluated.ThisincludedcarefulexaminationofanyeffectonWorld Heritagevalues.The subject tothreeyearsofrigorouspublicenvironmentalimpactassessment,whichhasbeenindependently Under theframeworkoflegislationoutlinedinthisChapter, theproposednewmineatJabilukahasbeen protected andwillcontinuetobeprotected. to theWorld HeritageCommitteethatthevalues andattributesofKakaduNationalParkhavebeen obligationrequiredunderitsownlegislationandcanguarantee The Australiangovernmenthasmetevery protection andAboriginallandrightslegislationmethodicallyinanopentransparentmanner. In relationtotheJabilukamineproposal,Australiahasapplieditsenvironmentprotection,heritage control andmanagementensuringthatthevaluesattributesofKakaduNationalParkareprotected. with specificlegislationrelatingtotheminingandprocessingofuranium,itprovidesahighlevel Australia’s environment andheritageprotection legislationisstringentandcomprehensive. Inconjunction CONCLUSION TheConventionontheRightsofChild. • TheConventionagainstTorture and OtherCruel,InhumanorDegradingTreatment • CovenantonCiviland Political Rights. TheInternational • CovenantonEconomic, CulturalandSocialRights(ICESCR). TheInternational • ConventionontheElimination ofallformsRacialDiscrimination(CERD). TheInternational • indigenous peoplesrights.Theseagreements include- conventionsandagreementsAustralia ispartytoanumberofinternational onhumanrightsand or Punishment(CAT). 41

CHAPTER 3 42 CHAPTER 4

Australia’s World Heritage Record

4.1 Australia’s World Heritage Properties 4.2 Management and Funding 4.3 Indigenous Involvement 4.4 Multiple Land Use, Ecologically Sustainable Development 4.5 Australia’s role on the World Heritage Committee and Bureau 4.6 Commitment to Rights of State Parties Conclusion

43

Australia’s World HeritageRecord enhancedmechanismsforconsultingandinvolving local • implementationofbestpracticemanagementframeworks • management. Ofparticularnoteare the: been manyachievementsinAustralianWorld Heritage Apart from Australia’s uniquedomesticlegislation,there have under theWorld HeritageConvention. further improve theAustralia’s abilityto meetourobligations legislation currently before the AustralianParliamentwill obligations undertheWorld HeritageConvention.New have putinplacedomesticlegislationspecificallyaddressing its the Convention.Forexample,AustraliaisonlyStatePartyto developments, somewhichare uniqueamongStatesPartiesto the World HeritageConvention,andincludesmanypioneering identification andmanagementextendsthroughout thelifeof Australia’s involvementinthepracticeofWorld Heritage Heritage List,themostrecent ofwhichwere listedin1997. Australia nowhasthirteenproperties inscribedontheWorld obligations undertheConvention. Convention andhassethighstandards asaStatePartythrough itsapproach tomeetingallofits quarter ofacentury. leadershiprole Australiahastakenaninternational inthepromotion ofthe objectives oftheConventionthroughout thesucceeding Heritage Conventionin1974,hascontinuedtopromote the asoneofthefirsttoratifyWorldAustralian Government, significance ofthoseplacestoAustraliaandtheworld.The the Australiancommunityhaslongrecognised the Australia isrichinplacesofoutstandinguniversalvalue,and AUSTRALIA’S WORLDHERITAGE 4.1 Australia’s excellentrecord. exampleof Kakadu NationalParkhasbecomeanexemplary is acknowledgedasworldclass.Themanagementof thevaluesofPark,which meansofprotecting primary indigenous involvementinmanagementisanintegraland InKakadu, community involvement,andprotection. ofmanagement, anditshighstandards Heritage properties, World itsthirteen its commitmentstotheConventionseriouslyanddemonstratesthisthrough fortheWorld HeritageConventionanditsapplication.Australiatakes Australia’ssupport reaffirms CHAPTER FOUR:AUSTRALIA’S WORLDHERITAGE RECORD management ofproperties; communities andinterested stakeholdersinthe World Heritage values; the developmentofstrategicplanswhichaimtoprotect in eachofAustralia’s World Heritageproperties, including PROPERTIES A greater area under • Legislationtoprotect • 18yearsexperiencein • 13World Heritage areas • * “exemplarymanagement UNESCO Einsteinmedal • UNESCO PicassoGold • Consultation andpublic • Managementplans • World’s BestPractice • management: its World Heritage Australia isveryproud of than anyotherStateParty World Heritageprotection World HeritageinAustralia Heritage inAustralia management ofWorld nomination, planningand WHC onKakaduin1992 operation atthePark”, Marine Protected Area to Great BarrierReef Management in1995 Medal toUluru’s Board of involvement Management This chapteroutlinesand 45

CHAPTER 4 Tourists are are Tourists a major user user major a of Kakadu of National Park National CHAPTER 4 whenapproving therenomination ofKakaduNationalParkinDecember1992,theWorld Heritage • DrJimThorsellasIUCNSeniorAdvisor, notedthat“Australiahasdonemore to implementthe • theGreat BarrierReefMarineParkAuthoritywasawarded theUNESCOEinsteinMedalfor • Government haspursuedthedevelopmentofbestpracticemanagementarrangementsacrossGovernment allWorld While responsibility foron-ground managementvariesfrom property toproperty, theCommonwealth Act1983 Heritage PropertiesConservation managers ofAustralia’s World Heritage properties. Environment Australiaalsoadministersthe 46 Australia’s World HeritageRecord inApril1995,theBoard ofManagementtheUlur • These efforts havebeenrecognisedlevelonseveraloccasions,including: attheinternational cooperativemanagementandadministrationarrangementsdevelopedwithStategovernments • Committee commendedAustraliaonits“exemplarymanagementoperationatthePark”. World HeritageConventionthananyothersinglecountry”;and quality ofitsplanningandmanagementprocesses; management; Nature ConservationAgencywere awarded theUNESCOPicassoGoldMedalforWorld Heritage Australia’s World Heritage responsible formanagingWorld Heritageproperties. properties plusmoney $50 millionayearin Federal funding from theStates with international bodies, State governments, andon-ground bodies,Stategovernments, with international programs relating toWorld Heritage,isresponsible forliaising inrelationGovernment totheConvention,managesnational World HeritageUnitwhichprovides advicetotheAustralian Heritage Convention.Theagencyincorporatesaspecialist ensuring AustraliameetsitsobligationsundertheWorld for theEnvironment) isthefederalagencyresponsible for MANAGEMENTANDFUNDING Environment Australia(partoftheCommonwealthDepartment 4.2 . u-Kata Tjut management agencies,localcommunities, consultation withtherelevant State management plansare prepared in protection ofWorld Heritagevalues.These and providing comprehensive andspecific plan, prepared tobest-practicestandards property hasan up-to-datemanagement ensuring thateachWorld Heritage Australia hasplacedahighpriorityon Heritage properties. annum towards themanagementofWorld funding ofmore than$50millionper aims, theCommonwealthalsoprovides high standard. To furtherachievethese properties are managedtoa consistently Convention are metandthatallthe ensuring Australia’s obligationsunderthe Heritage properties withtheaimof a NationalParkandtheAustralian World Tjut Tjut Australia’s World HeritageRecord arrangements putinplaceatthePark. Heritage managementbyindigenouspeoplethrough the efforts standards insetting newinternational forWorld World Heritage management.Themedalrecognised Australia’s Agency were awarded theUNESCOPicassoGoldMedalfor In April1995,theBoard ofManagementtheUlur and preparing plans ofmanagement. are responsible fordeterminingpolicymanagingtheParks form amajorityontheParks’Boards ofManagement,which in jointmanagementoftheseproperties. Traditional owners In theparticularcasesofKakaduNationalParkandUlur policies andprograms inAustralia. in thedevelopmentandimplementationofWorld Heritage Accordingly, indigenouspeoplehavebeenconsistentlyinvolved celebrated asrepresenting outstandinguniversalvalue. Australia, theculture ofAustralia’s indigenouspeoplehasbeen INDIGENOUSINVOLVEMENTFrom theearliestWorld Heritage property inscriptionsin 4.3 encouraged andfacilitated. thisframework,theinterchange ofideasbetweenscientificandcommunitybasedgroupsWithin is scientific advisorycommitteewhichprovides expertandtechnicalinputto management decisionmaking. environmental organisationsandrecreational usergroups. Thesecommitteesare complementedbya for eachproperty, whichincluderepresentatives oflocalcommunities,industrygroups, tourismoperators, relevant expertisefoundinthecommunity. Communityadvisorycommitteesare inplaceorbeingestablished Convention) and,insodoing,hastappedintothewealthof function inthelifeofcommunity...” (Article5ofthe Australia givesahighprioritytoproviding World Heritage“...a supported byacommitteeofCommonwealthandStateofficials. from whichis bothCommonwealthandStategovernments, throughgovernment aMinisterialCouncil,comprisingMinisters Typically,governments. thisoccursatthehighestlevelsof communication betweentheStateandCommonwealth arrangements are inplaceforeffective coordination and Where properties are managedbyaStategovernment, Heritage, andsubsequentlytabledintheAustralianParliament. Management andtheMinisterforEnvironment and traditional owners,thenapproved bytheBoard of Park PlanofManagementisprepared inconsultationwith and interested stakeholders.InthecaseofKakadu,National a NationalParkandtheAustralianNature Conservation a NationalPark,indigenouspeopleare effectively engaged u-Kata u-Kata Cultural andgeographicdiversity Wilderness World HeritageAreas Wilderness established formostAustralian management arrangementsto Australia adrivingforce behind protect World Heritagevalues Indigenous involvementonthe living traditionsofindigenous management andplanningin Federal legislationtoprotect This criteriaenabledtherich, cultural landscapecriteriain World Heritageassessment landscape criteriaadopted. Wet Tropics andTasmanian Community andScientific Boards ofManagement at Indigenous involvementin people toberecognised Ministerial Counciland extended sincecultural World Heritagevalues Advisory Committee’s World HeritageAreas Effective dayto Kakadu andUluru internationally. 47

CHAPTER 4 CHAPTER 4 48 Australia’s World HeritageRecord Convention andprotecting World Heritage.Inparticular, wehaveencouragedothernations,especially In recentrole years,Australiahasadvanceditsinternational inpromoting theobjectivesof current memberoftheCommitteepresently sitting. Convention, Australiahassincebeenre-elected totheCommitteeontwo furtheroccasions,andisa since theearliestdaysofConvention.AsamemberfirstCommitteeestablishedunder AUSTRALIA’S ROLEONTHEWORLDHERITAGE COMMITTEEANDBUREAU Australia hasbeenanactiveandconstructivememberoftheWorld Heritage CommitteeandBureau 4.5 the protection ofWorld Heritage values. the managementofallAustralianWorld Heritageproperties, theprimaryobjectiveformanagementis provision ofgeneralinfrastructure fortransport,communicationsandelectricitysupplies.Consistentwith of landandotherresources. These includetourism,recreation, fishing,apiary, agriculture, mining,and Bay, theGreat BarrierReefandKakaduNationalPark,there are anumberofdifferent andongoinguses For example,withinAustralianWorld Heritageproperties, suchastheWet Tropics ofQueensland,Shark the World Heritagevalues. development, multiplelanduseissupportedinWorld Heritageareas where thoseusesdonotimpacton not adverselyimpactonidentifiedWorld Heritagevalues. ensure thatthevarietyoflanduses,suchastourism,conservation,research andextractiveindustries,do in awaywhichprovides foravarietyofdifferent landuses.Australiahasinplacemanagementplansto MULTIPLEAs isthecaseforallWorld Heritageproperties, Australia’s LANDUSE,ECOLOGICALLY World SUSTAINABLE Heritageproperties mustbemanaged DEVELOPMENT 4.4 nations tosigntheWorld Australia hasencouraged managed inWorld Multiple landuses constructive memberof Heritage areas to Australia anactiveand protect values. Heritage Convention other Asian/Pacific the WHC Further, in the contextofprogressing ecologicallysustainable must bemanaged,bothstrategicallyandonaday-to-daybasis. Australia recognises thatthere isarangeofdifferent land usesthat and iscommontoprotected area managementthroughout Australia. The principleofmultiplelanduseisembodiedintheNationalStrategy and short-termenvironmental, economicandsocialconsiderations. that decisionmakingprocesses shouldeffectively integratebothlong Sustainable Development,agreedis byallAustralianGovernments, A guidingprincipleofthe1992NationalStrategyforEcologically management andprotection. contribution totheadvancementofWorld Heritage Australia intendstocontinueitsactiveinvolvementinand Asia, theWest Pacific, AustraliaandNewZealand. network ofregional World HeritagemanagersinSouth-East Ravenshoe, Queensland,whichsuccessfullyestablished a region. Australia hostedthe1996regional workshopin supporting workshopsforWorld Heritagemanagersinthe promoted best practicemanagementthrough facilitatingand Throughout the Asia-Pacificregion, Australiahasactively be activeparticipantsintheWorld HeritageConvention. those intheAsia/PacificRegion,tobecomesignatoriesand Australia’s World HeritageRecord the future. managing theprojectdevelopmentatJabilukaconfirmsthat thatrecordisworthyandwillcontinueinto managementoperationatthePark”.Ourintensive,stringentandaccountableprocessfor “exemplary Heritage Committeein1992wasawareoftheJabilukaproject whenitcommendedAustraliaonthe done moretoimplementtheWorld TheWorld HeritageConventionthananyothersinglecountry”. steptoensurethosevaluesareprotected.TheIUCNhassaidthat“Australia necessary take every with indigenousownersontheestablishmentandmanagementofKakaduNationalPark.Australiawill the ParkitdidsoknowingrecordofStateParty. Australiahasworkedcloselyandcooperatively investigate claimsthattheproposeduraniummineatJabilukathreatenedWorld Heritagevaluesof When theUNESCOWorld HeritageCommittee sentitsMissiontoKakaduNationalParkin1998 CONCLUSION of becomingapartytotheConventionandmaydeterotherstatesfrom taking thatstepinthefuture. Convention. Itwouldrepresent asignificantchangetothebasisuponwhichstatestookseriousstep the OperationalGuidelineswhichare consistentwiththe with thetermsofbothConventionandthoserelevant partsof heritage. Suchactionwouldalso,inAustralia’s view, beatodds role oftheStatePartyinprotection ofthenaturalandcultural rights provided forinitsnationallegislation,andtheprimacyof sovereignty oftheStateParty, thesafeguarding oftheproperty Convention. Inparticular, theprinciplesofrespect forthe place atrisksomeofthefundamentalprinciplesthatunderpin State Party, andagainsttheexpress wishesoftheStateParty, could Heritage inDangerwithouttherequest andtheconsentof An inscriptionofKakaduNationalParkontheListWorld seeksassistanceintheprotection ofoneitsproperties • isresponsible fortheprotection oftheproperty; and • nominatesproperties forinclusionontheList; • the Convention,itisterritorialStatewhich: principal role oftheStatePartyinprotecting World Heritageproperties situatedwithinitsterritory. Under communityasawhole,italsoclearly recognisesinternational theprimacyofStatesovereignty andthe It ishoweverimportanttonotethat,whiletheConventionrecognises thevalueofWorld Heritagetothe under theWorld HeritageConvention,inpromoting theprotection ofWorld Heritagevalues. COMMITMENTTORIGHTSOFSTATEAustralia recognises andrespects theimportantrole oftheWorld HeritageCommittee,provided toit PARTIES 4.6 which maybeunderthreat. Heritage Committeeand respects thesovereignty Protection ofWorld between theWorld Cooperative spirit Convention “fully Heritage values of theState” State Parties paramount 49

CHAPTER 4 50 CHAPTER 5

Protecting the Values of Kakadu: The Jabiluka Process

5.1 The Environmental Impact Assessment Process 5.2 Consultation and Decision Making 5.3 Permits 5.4 Environmental Monitoring 5.5 Mechanisms used by the Supervising Scientist to Protect the Environment 5.6 Cultural Heritage Places Protection: The Boiwek and Almudj Sites Conclusion

51

Protecting theValuesProtecting ofKakadu:TheJabilukaProcess Proposals) Act1974 assessment process (EIA)underthe Jabiluka havebeensubjecttoatransparent environmental impact Kakadu NationalPark.Theproposals tomineandmilluraniumore at The Jabilukamineralleaseisnotandneverhasbeenpartofthe ImpactAssessmentofJabiluka Environmental 5.1.1 THEENVIRONMENTAL IMPACT 5.1 thosevalues. taken bytheAustralianGovernmenttoprotect assessment ofimpactonWorld ofactions Heritagevaluesneedstotakeintoaccountthehistory toBoiweksiteisoutlined.Any ofsiteassessmentrelating Heritage values.Thehistory Accordingly,consultation hasbeenakeyelementofthatprocess. willbenoimpactonWorld there Public remedied. necessary on World andassessedwhere monitored Heritagevaluesare thatanypotentialimpacts imposedbythegovernmentwillensure Themeasures the leasearea. biologicalandsocialvalueswithinoutside assessmenttoprotect proper company toprovide havebeenimposedonthe UnderAustralianlawbindingmeasures totheproposal. relation in bytheAustraliangovernment undertaken impactassessmentprocess extensive environmental didnotaccountforthe threatened the UNESCOMissionclaimingthatvaluesofKakaduwere CHAPTER FIVE:PROTECTINGTHEVALUES OFKAKADU—THEJABILUKAPROCESS ASSESSMENT PROCESS (the EPIPAct).Theassessmentprocess hasbeen Environment Protection(Impactof protecting World • comprehensive and • transparent • mandatory • Assessment Environmental Impact Heritage values exhaustive The report of The report 53 (Michael Preece) (Michael Magela floodplain and floodplain the Jabiluka the outlier, Kakadu outlier, National Park National CHAPTER 5 CHAPTER 5 54 theValuesProtecting ofKakadu:TheJabilukaProcess assessment ofthepotentialthreat toWorld Heritagevalues,andprovision fortheprotection ofthesevalues. Throughout theprocess, andarticulatedclearlyintheMinister’s consideration,hasbeenacareful Company’s proposals, stringentconditions havebeenapplied,and/orunsatisfactoryoptionsrejected. The EIAprocess hasadhered tothehigheststandards. Where anydoubthasexistedinrelation tothe whichseparatelyevaluatedtheoutcomes. Assessment wasconductedjointlywiththeNTGovernment comprehensive andexhaustive,carriedoutoverathree yearperiod,withwidepublicandexpertinput. ore toRangerfor • underground mine • (RMA) Alternative Ranger Mill over70stringent • ensured protection • Environmental • The EIAProcess minimal visual – nopolluted – no tailingsat – disposal: and tailings milling, processing at Jabiluka Kakadu project toprotect on theJabiluka conditions placed environmental values inKakadu of World Heritage comment subject topublic Impact Statement Jabiluka effects at Jabiluka water at Jabiluka the year2000. the minebecamefullyoperational, atthattimeexpectedtobearound would considerissuinganexportpermitforuraniumwhen government need tocomplywiththerequirements before theCommonwealth to ERA.TheMinisterforResources andEnergystatedthatERAwould Minister’s recommendations, andtookthemintoaccountinhisadvice The MinisterforResources andEnergy, endorsedtheintentof World Heritage values. project toproceed. Theseconditionswillensure there isnoimpacton proposed thatmore than70stringentconditionsbemetbyERAforthe with particularattentiontotheprotection ofWorld Heritagevalues, The MinisterfortheEnvironment examinedtheassessmentreport, and consideration bytherespective Ministers. Planning andEnvironment prepared assessmentreports for Department oftheEnvironment andtheNTDepartmentofLands, Commonwealth andNTEnvironment Ministers.Thereafter the took intoaccountpubliccomments,wassubmittedtotherespective Corporation, whichstrongly opposedthemine.ThefinalEIS,which review, includingthoseraisedbytheGundjehmi Aboriginal to theEISwhichspecificallyaddressed theissuesraisedduringpublic public comment.AfterthisERAwasrequired toprepare asupplement The DraftEISprepared byERA wasreleased foralmost12weeks were madeavailableforpubliccommentaperiodoffourweeks. under the proposal Territory wasalsosubjecttoNorthern impactassessment Environment Protection(ImpactofProposals)Act1974 of theJabilukaRMAproposal, inaccordance withtheCommonwealth’s ERA wasdirected toprepare anEnvironmental ImpactStatement(EIS) from traditionalowners. from theJabilukamineatRangerwouldrequire additionalconsent and consentofthetraditionalowners,Mirrar. Millingore extracted The miningaspectoftheRMAwascovered bythe1982Agreement a policyofzero waterrelease from theminesitewouldbeimplemented. tailings damontheJabilukasite,visualeffects wouldbeminimised,and tailings disposal(refer Figure 5).Underthisproposal there would beno transported totheexistingRangermineformilling,processing and underground minewastobeestablishedatJabilukawiththeore being Under ERA’s initialpreferred (RMA),an option,theRangerMillAlternative TheRangerMillAlternative 5.1.2 Environmental AssessmentAct1982 . GuidelinesfortheEIS in 1996.The

CHAPTER 5 56 theValuesProtecting ofKakadu:TheJabilukaProcess Territory underthe Government recommendations coveringissuessuchasprotection ofWorld ERA wasrequired tocomplywithanadditional15 the company’s preferred optionasindicatedinthePER. recommended that more stringentmeasures berequired than processing and disposaloftailings,theEnvironment Minister Because ofanumberscientificuncertaintiesrelating tothe safeguards and agreementstheuseofuranium. governing Department ofForeign Affairs andTrade, oninternational Regional SocialImpactStudyandreports prepared bythe Minister alsogavefullconsiderationtothereport oftheKakadu his decisionsinrelation tothemineandmillingoptions, Minister forResources andEnergyinAugust1998.Inmaking The MinisterfortheEnvironment reported onthePERto additional informationatthistime. proposed managementoftailings.ERALtdalsoprovided independent review byscientistsattheUniversityofNSW make hisdecision.DuringthistimetheMinistersoughtan Environment Ministerobtainedanextensionofthree weeksto At theendofstatutorydecisionmakingperiod the remainder depositedinmined-outunderground workings. disposal of50%thetailingsonsiteinpurposebuiltpits,with involved themixingoftailingswithacementpasteand ERA’s preferred optionfortheJMAasdescribedinPER and KakaduBoard ofManagement. had madesubmissionstotheearlierRMAEIS,asdidNLC Torres StraitIslanderCommission(ATSIC) madesubmissionstotheJMAPER.TheGundjehmiAssociation media thattheywouldnotparticipateintheprocess.LandCouncilandAboriginal TheNorthern (representing traditionalowners) didnotmakeasubmissiontotheJMAPERandmadecommentin account ofpubliccommentsforconsiderationbytheirMinisters.TheGundjehmiAssociation and theNTDepartmentofLands,PlanningEnvironment prepared AssessmentReports,taking The PERwasreleased forpublicreview inJune1998foraperiodoffourweeks.Environment Australia available forpubliccomment. underthe Government, Formal environmental assessmentoftheJMAproposal wascarriedoutin1998bytheCommonwealth TerritoryCommonwealth andNorthern Governments. further assessmentprocess, aPublicEnvironment Report(PER),wasrequired ofthecompanyby The JMAisfullyconsistentwiththeconsentofMirrarrecorded inthe1982Agreement. Asaresult a dispose tailingsattheJabilukaminesite(refer Figure 6),referred (JMA). toastheJabilukaMillAlternative Land RightsAct,ERAsoughtenvironmentalmethodtomilltheore clearanceforanalternative and Therefore, inaccordancecommitmenttoindigenousrights,underthe withtheAustraliangovernments party tothe1982agreement withtheminingcompany)hasnotgivenherconsenttothismillingoption. Jabiluka ore atRanger. Theseniortraditionalowner, (daughteroftheseniortraditionalownerwhowas Under thetermsof1991transferagreement ERAneedstheapproval oftheAboriginalownerstomill Report Environmental TheJabilukaMillAlternative—Public 5.1.3 Environment Protection(ImpactofProposals)Act1974 Environmental AssessmentAct1982 additional environmental • furtherenvironmental • ERAdevelopedan • seniortraditionalowner • (JMA) Jabiluka MillAlternative . GuidelinesforthePERwere made strict standards for – effective – protection ofvaluesin – measures: Environment Report assessment—the Public (the JMA) process tailingsatJabiluka tomillorealternative and did notapprove theRMA rehabilitation management andsite environmental indigenous people communication with nearby Kakadu , andbytheNorthern View west (approx) of Jabiluka mine site taken from within the Lease boundary. Note that the ridge between the two outliers separates the mine site from the Oenpelli Road and the Magela floodplain beyond and blocks visibility of the mine site from the ground. CHAPTER 5 58 theValuesProtecting ofKakadu:TheJabilukaProcess owners anditispossiblethattheJMAwillbeprogressed. ERA understandsthatconsentforthedevelopmentofRMAhasnotbeengivenbytraditional RMA tobeasuperiorproposal intermsofenvironmental considerations,project economicsandlogistics. Territory theNorthern over 70conditions,theAustralianGovernment, andERAconsiderthe Government While boththeRMAandJMAhavereceived environmental clearance,subjecttocompliancewith property fortwentyyears.TheJMAwillhavenoimpactonWorld Heritagevalues. which hasoperatedwithoutanysignificantenvironmental effect ontheneighbouringWorld Heritage and conditionstobeappliedJabilukaare inallcasesequaltoorexceedthosesetfortheRangerMine, address anypotentialimpactsonthesevalues.Itisimportanttonotethatenvironmental standards and protection ofbiologicalandsocialvalueswithinoutsidetheJabilukaLeasewilladequately The measuresandERAhavebeendesignedtoprovide developedbytheGovernment proper assessment option. for ERAtofollowifitwishespursueanalternative the disposalof100%tailingsdeepunderground intotheminevoid,andotherrelating toaprocess management. Inaddition,theMinisterforResources imposedafurthertworequirements onERA:onewas Heritage values,communicationwithAboriginalpeople,rehabilitation ofthesiteandenvironmental archaeological and • NLCandATSIC submitted • LandCouncil Northern • localindigenous • 6monthspublicreview • extensiveandeffective • making Consultation anddecision mineral leasearea information onsitesinthe generated much anthropological workhas written proposals Environment Australia discussed issueswith at Jabiluka environmental assessments participate in community declinedto development oftheplan. Presently thetraditional ownersare notcooperatinginthe the leasearea through aconservationmanagementplan. However theoutcomeprovides fortheprotection ofallsitesin the EISoutofrespect forthetraditionalowners’wishes. within thearea isverywellknown.Thesewere notdetailedin the leasearea, and theextentnature ofamajoritysites anthropological surveyshavepreviously beenconductedwithin Additionally, atleastthree majorarchaeological and preparation ofEnvironment Australia’s assessmentreports. submissions from NLCandATSIC were takenaccountofinthe LandCouncilstaffNorthern inrelation tobothassessmentsand Despite this,officers ofEnvironment Australiametwith field basedresearch withthe appropriate AboriginalPeople. relevant agenciesandsecondarysources ratherthanonnew PER wasbasedoninformationdrawnfrom discussionswith treatment ofAboriginalculturalissuesinthefinalEISand either oftheenvironmental assessmentsmeantthatthe The decisionoftheAboriginalcommunitynottoparticipatein Darwin andoneatJabiru. general publicmeetingswere heldinrelation totheEIS,oneat six monthswasallowedforpublicreview. Additionally, two involved extensiveperiodsofpublicconsultation.Intotalalmost The assessmentprocess fortheJabilukaRMAandJMAoptions CONSULTATION ANDDECISION MAKING 5.2 Protecting theValuesProtecting ofKakadu:TheJabilukaProcess supported by Northern Territorysupported byNorthern regulatory arrangements. an ongoingresponsibility toensure thattherequirements are metoverthelifeofmine.Thiswillbe the MinisterforEnvironment, havebeen met. Inthecaseofmanyrequirements, ERAwillhave satisfied thattherequirements hehasplacedonERA,whichgiveeffect totherecommendations from When consideringanapplicationforexportpermitJabiluka uranium,theMinisterwillneedtobe happen untilabout2001. for Industry, ScienceandResources. NopermitshavebeenissuedforJabilukauraniumandthiswillnot Export permitsforuraniumare issuedonashipment-by-shipmentbasisbytheCommonwealthMinister Territory’s MiningAct. then MinisteradministeringtheCommonwealth’s AtomicEnergyAct,asisrequired bytheNorthern Environmental Requirements wereTerritory, attachedto theleasebyNorthern oninstructionfrom the Requirements Territory attached totheJabilukalease,whichwasissuedbyNorthern in1982.The In additiontothis,theMinisterbasedrelevant requirements onthecontextofEnvironmental (NT), theControl ofWaters Act(NT),andanyregulation made undereitherofthoseActs. accordance withanyrequirements imposedbytheActandSoilConservationLandUtilisation person shallminelandfor‘prescribed substances’,includinguranium, within theregion exceptin lessen anydamage,whichmaybecausedtotheenvironment oftheRegion. TheActrequires thatno The objectofthe (NLC) issimilarlyconsultedandcanmakerecommendations. consulted, andmakessuchrecommendations asare considered appropriate.LandCouncil TheNorthern company appliesforanAuthorisationunderUMEC,theCommonwealth’s SupervisingScientistis Control) Act1979 Authorisations heissuedunderNTlegislation.Thislegislationisthe Development anundertakingthattheNTMinisterwouldgiveeffect tosuchrequirements in To thatendtheMinisterforResources andEnergysoughtreceived from theNTMinisterforResource effective meansofimplementingtheEnvironment Minister’s recommendations. to this,theMinister’s requirements usedtheexistinglegislativeandadministrativeoverlaytoprovide an The Resources Ministertransferred alltherecommendations intorequirements placedonERA.Inaddition stringent conditionsbemetbythemine’s operator. (Impact ofProposals)Act1974 As aresult oftheenvironmental assessmentsoftheJabilukaproject underthe environment from theeffects ofmining. the developmentofstandards, practicesandprocedures fortheprotection andrestoration ofthe the SGisresponsible forresearch andadviceontheeffects ontheenvironment oftheRegionandfor (NTDME). TheNTDMEisresponsible fortheday-to-dayregulation ofuraniumminingintheRegionand Scientist andhisScienceGroupTerritory (SG)andtheNorthern DepartmentofMinesandEnergy The interlockingarrangementsintheNTreflect anappreciation oftherespective roles oftheSupervising for theNTandPrimeMinisterin1979,updated1995. Alligator Riversregion were endorsed,through aMemorandumofUnderstanding,bytheChiefMinister forthecoordinationGovernment andregulation ofenvironmental aspectsofuraniummininginthe Working Territory arrangementsbetweentheNorthern andtheCommonwealth (NT)Government arrangements betweenFederalandStategovernments. and responsibilities ofvariousauthoritiesandinthenature ofthelegislationandworking PERMITS The specialnature oftheuraniumminingactivitiesinAlligatorRiversRegionisreflected intheroles 5.3 UMEC Act (UMEC). Thismechanismgivesa‘force oflaw’totheserequirements. Whenthe is tocontrol theminingofuraniuminAlligatorRiversRegionorder to , theMinisterforEnvironment andHeritageproposed thatover70 Uranium Mining(Environment Environment Protection 59

CHAPTER 5 CHAPTER 5 60 theValuesProtecting ofKakadu:TheJabilukaProcess The established inadditiontothoseavailableunderthe ENVIRONMENTALIn recognition oftheuniqueenvironment oftheKakaduregion, MONITORING statutoryenvironmental measures were 5.4 these are not,in thejudgementofSupervisingScientist,consistentwithmonitoringdata. to eitherpeopleorecosystems.Claimsthecontraryhave beenmadebymembersofthepublicbut well withinestablishedlimitsandare notjudgedbytheSupervisingScientisttohaveresulted inanyharm mining. TheRegionincludesthearea covered bytheKakaduWorld Heritageproperty. the environment oftheAlligatorRiversRegion,andongoingscrutinyenvironmental effects of in20yearsofmining • Rangermineoften • Environmental Research • SupervisingScientistfor • specificlegislationto • Monitoring Environment Protection(AlligatorRiversRegions)Act1978 National Park impacts onKakadu been noenvironmental at Rangerthere have in theworld closely regulated mine described asthemost the mine environmental auditof Jabiru toconduct Supervising Scientistin Institute ofthe and supervision monitoring, reporting to provide independent Alligator RiversRegion Kakadu NationalPark) Rivers Region(includes protect theAlligator or airintheWorld Heritageproperty, theseelevationshavebeen radionuclides abovebackground levelshaveoccurred inthewater values ofKakaduNationalPark.Where measured elevationsof have beennosignificantenvironmental impactsofthemineon In thetwentyyearsofmine’s developmentandoperationthere a year. yearly publicenvironmental reviews andreports toParliamentonce operation whichcouldimpactontheenvironment, publishestwice Scientist researches andmonitors everyaspectofthemining as themostcloselyregulated mineintheworld.TheSupervising As aresult ofthisregime, the Rangermineisfrequently described LandCouncil. Northern through consultationwiththeSupervisingScientistand conform toenvironmental protection standards established company mustconductastringentmonitoringprogram and Mines andEnergy. Territory UnderNorthern law, themining regulation Territory oftheminebyNorthern Departmentof supervisory regime isadditionaltothedaymonitoringand and procedures forenvironmental protection. Theresearch and consultative mechanisms;andbydevelopingstandards, practice and technicalreview oftheminingoperationandstakeholder located atJabiru,inKakaduNationalPark;byenvironmental audit Environmental Research Institute oftheSupervisingScientist(ERISS) advice basedonscientificresearch undertakenbythe protects theenvironment byproviding independentandexpert (Environmental Control)Act1979 Territoryassociation withtheNorthern Region from theimpactofuraniummining.ThisActworksin and supervising,toprotect theenvironment oftheAlligatorRivers Rivers Region,whoserole is,byindependentmonitoring,reporting establishes thepositionofSupervisingScientistforAlligator The Environment Protection(AlligatorRiversRegion)Act1978 National Parks and Wildlife Conservation Act1975 Conservation National ParksandWildlife specifically provides fortheprotection of . TheSupervisingScientist Uranium Mining . Protecting the Values of Kakadu: The Jabiluka Process CHAPTER 5

Mt Brockman in the dry season (Michael Preece)

5.5 MECHANISMS USED BY THE SUPERVISING SCIENTIST TO PROTECT THE ENVIRONMENT A number of mechanisms are used by the Supervising Scientist to ensure adequate protection at the Ranger mine, and to a lesser extent, the Nabarlek mine which is in the rehabilitation phase. These mechanisms will also apply to any other mine which is approved in the Alligator Rivers Region (ARR), including the Jabiluka mine. The main mechanisms are:

Research The Environmental Research Institute of the Supervising Scientist (ERISS) at Jabiru near the Ranger uranium mine was established to develop techniques to detect and minimise the environmental impacts of uranium mining in the Alligator Rivers Region. In addition to research projects conducted throughout the region, ERISS established several co-operative research projects with ERA to address key environmental issues at Ranger, including water management, rehabilitation and final tailings disposal. Current research at Nabarlek comprises monitoring of radon emissions from the infilled and rehabilitated mine pit. ERISS manages the Alligator Rivers Region Technical Committee which is a forum of stakeholders and research organisations with interests in the setting of research priorities and development of research programs in the Region. In 1993 the role of ERISS was expanded to undertake other research relevant to its expertise, principally research into wetlands management.

Environmental audits A key component of the Commonwealth’s supervisory arrangements for the uranium mines of the Alligator Rivers Region is a twice-yearly review of the environmental performance of each uranium mining operation (Environmental Performance Review). The reviews are undertaken jointly with the Northern

61 CHAPTER 5 62 theValuesProtecting ofKakadu:TheJabilukaProcess adescriptionofthestatutory regime forsiteprotection anditsapplicationsinthiscase. • achronology ofeventsintherecording andmappingofBoyweg,itssignificance, • anintroduction tosacred sitesinKakadu; • Heritage Committeeofthebackground andcurrent statusofthisissuetheStatepartysubmits: owners havedeclinedopportunitiestoparticipateinsuch processes. Inorder toinform theWorld The UNESCOmissionrecommended culturalmappingoftheBoiwek-Almudjsitecomplex.Thetraditional CULTURAL HERITAGE PLACESPROTECTION:THEBOIWEK 5.6 Minesite Technical Committee. Region. Thedocumentalsocontainsageneraldescriptionofthefunctionseachcurrently operating The Working Arrangementsare genericinwording andapplytoalluraniumminesintheAlligatorRivers LandCouncilasrepresentativesbetween thosetwopartiesandtheNorthern ofthetraditionalowners. exchange ofinformation,andemphasisestheneedforcloseconsultationbetweenNTDMEOSS implementing theprocedures describedabove,describesexpectationsforappropriate reporting and TerritoryNorthern TheMOUclarifiesthe roles Governments. ofNTDMEandtheSupervisingScientistin The ‘Working Arrangements’isamemorandumofunderstandingbetween theCommonwealthand Working Arrangements Minesite Technical Committee. framework, aprocess commonlystrongly influencedbytheSupervisingScientistasamemberof Technology (BPT).Assessmentsofmajorapplicationsfrom ERAare madeunderaBPTassessment The RangerEnvironmental Requirements specifythatoperationsmustbeconsistentwithBestPracticable his decisionsonmatterswhichrelate toenvironmental protection attheuraniummines. for MinesandEnergymust“haveregard to”recommendations madebytheSupervisingScientistinmaking are evaluatedandfeedbackisprovided, mainlytothecompanyand/orNTauthorities.TheMinister Mines andEnergyfortheintroduction ofnewprocedures andchangesinminingoperations.Thesereports development ofnewoperationaltechniques)andapplicationsfrom thecompaniestoNTMinisterfor the ARR.Thecommitteesreceive regular environmental reports andspecialreports (eg.relating to The SupervisingScientistisrepresented ontheMinesiteTechnical Committeesestablishedforeachminein Technical assessment established todiscussenvironmental issuesintheARRandtoexchangeinformation. Region AdvisoryCommitteefollowingcompletionoftheEPR.Thisisacommunitybasedcommittee each question.Thereview teamthenprepares asummaryreport forpresentation totheAlligatorRivers verify theresponses given,asiteinspection,andanevaluationoftheadequacyresponse givento with thecompaniestogatherresponses tothequestionnaire, examinationofdocumentaryevidenceto The EPRprotocol involvesdesignofanextensivequestionnaire onenvironmental performance,meetings conducted todateandtwoduringtheconstructionphaseofJabiluka. Territory DepartmentofMinesandEnergy(NTDME).Ten EPRsofRangerandNabarlekhavebeen connections toothersites;and AND ALMUDJSITES Protecting theValuesProtecting ofKakadu:TheJabilukaProcess owners andothers. andjamun Djang traditional owner. wasnotaware Until1997theAustralianGovernment ofanyclaimthatBoiwekwasa sites inconjunctionwiththeAboriginaltraditionalowners, includingthefatherofcurrent senior tailed Gecko(‘Boiwek’)andtheRainbowSerpent(‘Almudj’). Anthropologists havedocumentedthese since 1975.Boiwekwaslistedasa‘ The siteofBoiwekhasbeendescribedinreports byanthropologists onsacred sitesintheJabilukaregion has focussedattentiononthesitesofBoiwek(orBoyweg)and Almudjassacred sites. archaeological androck artsites are ontheleasearea andare beingprotected, recent publiccomment identification andprotection ofallthesitesinproject area were necessary. Whilemanysignificant For anydevelopmentprocess tocommence,inaccordance withAustralianlaw, measures forthe Djang andjamun: Djang: Aboriginal sacred siteswithinKakaduNationalParkvaryintypeorpower from being: estate. Traditional ownersfrom otherclanestatesshare custodialresponsibilities. lease, theMirrarclanholdsprimaryresponsibility, astraditionalowners,forprotecting thesitesintheirclan Those shared responsibilities are definedthrough marriageandotherformsofrelatedness. OntheJabiluka estate. Theymayalsoshare responsibility forsiteslocatedinadjacentorevenmore distantclanterritories.” members havetheresponsibility tophysicallyprotect, andrituallylookafter, theDreaming siteswithintheir As Chaloupka(1993:72)explains,“TheextentoftheclanestateisdefinedbyasetDreaming sites...Clan groups are associatedbydescent withareas ofland,theirinheritedclanestates. of outstandinguniversalsignificanceandisprotected assuchinthemanagement ofthePark.Particular Kakadu NationalParkisinscribedontheWorld HeritageListforitsdirect associationwithlivingtraditions sitesinKakadu Sacred 5.6.1 is committedtoensuringthatthesepointsare acknowledgedandunderstood. laws andnegotiatedlanduseagreements, there are oftenpointsoftension.TheAustralianGovernment be accommodatedinchangingcircumstances. Intheinterfacebetweenanoraltraditionandasystemof the landbasedculturalheritagecared forbyAboriginalpeopleandrespected underAustralianlaw, can proponents andtheStateParty. Theseissuesrelate tothewaysinwhichsacred sites,akeyelementof A numberofissuesarisethatillustratethecomplexitysituationforAboriginalpeople, protection legislationisalsoavailabletorespond tocommunityrequests fortheprotection ofsites. Areas Protection Authorityalsohasastatutoryrole intheprotection ofsites.Commonwealthheritage protected, andtraditionalownersfullyconsultedbefore anydevelopmentcantakeplace.TheAboriginal responsibility toconsultandnegotiateforsuchuse.Theyhavearesponsibility toensure thatsitesare be usedbyanyoutsideparty, LandCouncilhasthestatutory TheNorthern includingGovernments. Territory, permissionmustbesoughtandgivenfrom traditionalownersorcustodiansbefore thelandcan regulations controls accesstoandmanagementofsacred sites.OnAboriginallandintheNorthern TerritoryIn Australiaingeneral,andtheNorthern inparticular, anextensivenetworkoflawsand place thatwasespeciallydangerous orhadspecificrestrictions onaccessbytraditional are considered especiallydangerous andhaverestricted access. places thatrelate tocreation and becauseoftheirparticularreligious significance places thatrelate tocreation or theDreaming, through tositesthatare, djang ’ sacred siteinvolving theancestraldreaming figures theKnob- 63

CHAPTER 5 CHAPTER 5 64 theValuesProtecting ofKakadu:TheJabilukaProcess applying toindigenousheritage. The Jabilukaminewillproceed inaccordance withtheextensiveprovisions inAustralianlaw and significance. declined toregister theextendedsite,citingdisagreement amongstcustodiansoveritslocation In 1997theAboriginalAreas Protection Authority, withamajorityofAboriginalsitecustodians, has confirmedtheconsultationprocess wasadequateandeffective. current seniortraditionalowner. Thosepermissionswere freelyLandCouncil givenandtheNorthern statements andpermissionsgivenbetween19761997 bytraditionalowners,includingthe ore body. Therecent claimsare notconsistent withanthropological records ortheprevious sacred tosacred anddangerous, andinvolvingsub-surfacemanifestations,perhapsdefinedby the covering thewholeofMineValley. Theserevisions alsoupgraded thecategoryofsitefrom It wasnotuntil1997thatclaimswere madeaboutapossibleextendedarea forBoiwek,possibly permits sopermitholderswouldnotinadvertentlyenterthearea ofanysacred sites. be attachedtoanypermitsissuednon-Aboriginalpeople.Themapwas a smallsiteatthesoak.Thismapidentifiedpartsofleasewhere particularconditionswould working committeethecurrent seniortraditionalowner ratifiedin1992amapshowingBoiwekas confined tothearea ofthesoak.Thisisreflected inthe1982Agreement. AsamemberoftheBininj owners consistentlyindicatedtotheofJabilukaMineralLeasethatmajorsitewas When negotiatingagreements foraccessandmining, theprevious andcurrent seniortraditional claimed tobepartofthesacred sitebetweenBoiwek andAlmudj. Between 1971and1978,Pancontinentaldrilledsome250holesinMineValley inthearea, now LandCouncilonsitepermitsforworkersinthe DecisionsbytraditionalownersandtheNorthern • Theresearch necessaryforregistration ontheNationalEstateforsiteslease,including • Theclaimbookforthe1982AlligatorRiversstagetwolandclaim; • The1977FoxInquiry; • wetlands were discussedandconfirmedin: The locationanddefinitionoftheBoiweksiteasadiscrete swamporsoakontheedgeof then madein1999.Itisthisextendedarea which,it isclaimed,willbethreatened ordisturbed. senior traditionalownertobeasacred site.Thisclaimwasfirstmadein1997andanexpanded registered. Thearea betweenthesesites(includingtheearthbeneaththisarea) isnowclaimedbythe This siteislinkedbyadreaming tracktoanotherseparatesite,knownasAlmudj,alsoprotected and protected byconditionsofapproval. but notnecessarilyadangerous site.There willbenodamageordisturbancetothissite.Itis swamp ontheedgeofwetlandslocatedtowestJabilukaminevalley. Itwasasacred, current seniortraditionalowner, havedefinedthesiteofBoiwekasasmall,discrete soakageor highly regarded anthropologists, workingcloselywithtraditionalowners,includingthefatherof From 1975on,thesiteofBoiwekhasbeenstudied,photographed,mappedandprotected. Several not intheWorld Heritageproperty norlinkedtositesintheWorld Heritageproperty. Almudj. BoiwekandAlmudj,according toallreports reviewedare bytheAustralianGovernment, Claims havebeenmadethattheJabilukaproject threatens thesacred sitecomplexofBoiwek- THE BOIWEKSITE Jabiluka leasearea. Boiwek andAlmudj;

CHAPTER 5 68 theValuesProtecting ofKakadu:TheJabilukaProcess describing it:“ inclusion ontheRegisterofNationalEstate.Heincludes BojwegBagolu,photographingthespring, In 1978Chaloupkaprepared a comprehensive outlineoftheDjawumbu-Madjawnjasitecomplexfor stopped here andmadehimselfadreaming’ (Keen1980). ‘A permanentspringattheedgeoffloodplain.Buywekcamedownfrom theoutliertoeast, known asBuywekbakulwuy(knobtailedgeckocamedown).Theclaimbookdescribesitssignificance: traditional ownersincludingthecurrent owner’s fatherandmappedtwentysites,includinga In 1978,1979and1980,DrIanKeen,aspartoflandclaimresearch visitedMirrarsiteswithsenior holes inMineValley inthearea betweenBoiwekandAlmudj. Between 1971and1978,before thearea becameAboriginalland,Pancontinentalhaddrilledsome250 been madeimmediatelybesideit. that thespringsassociatedwithBuywegare locatedinthePancontinentaldeposits, andtestdrillingshave dreaming. Idon’t reckon -springwateristhatbitofground there. Buywegmadeitthatway.” Henoted senior traditionalowner, “Thatonewentrightthrough toBuyweg-where thatBuywegare -that’s who travelledfrom thatplacetotheswampwhere itmadepermanentspringwaters.”Hequoteda named) accompaniedtheresearch team.OnedesignatAlmudjwassaidto“probably represent Buyweg Kamarrawu, notedtheAlmudj(RainbowSnake)andBuywegDreaming. A female traditionalowner(not extension withNipperKabirriki,ThomasBalmana,AlbertKennyAldersonandMatthew In 1978DrIanKeeninreviewing sitesofsignificanceinthevicinity proposedHighway Arnhem commented thatitis“detailed;obviouslywasprepared withcare, and,webelieve,withobjectivity”. In 1977,JusticeFoxoftheRangerUraniumEnvironmental Inquiryconsidered Chaloupka’s report and escarpmentofthe Jabilukaoutlier.south-east ontheeastern the ancestralbeingassociatedwithBoywekhadtravelledfrom anothersite,Almudj,locatedsome5km been degradedasaresult oftramplingbyferalbuffalo (Figure 7a).Hewastold(byFrankDjandjul)that In 1976,Chaloupkarecorded swampthathad BoywekBagoluiasaspringontheedgeofWirrmuyurr Namingum, Chaloupkalocated35placesanddepictedtheroutes takenbymythologicalcreator beings. TobyGunjeimbi clanestatewithseniorowners.With Gangali,JimmyMadjandi,NipperGabarrigiandGeorge Territory museumandDrIanKeen,anAustralianNationalUniversityanthropologist, mappedtheMirrar In 1975,GeorgeChaloupka,arespected siterecorder androck artspecialistworkingfortheNorthern Phase One:PreLandRights in thedocumentsquoted. accordingtodifferent sources.Thefollowingaccountusesthespellingrecorded people andclans)vary Note: ofSiteRecording Boiwek:Chronology 5.6.2 property (seeFigure 7a). covered bytheJabilukaMineralLease.Thedreaming track has noconnectionwiththeWorld Heritage It travelsthelengthofMineValley, connectsBoiwek andAlmudj,isconfinedtothearea now Dreaming figure across largeareas ofAustralia.Amapinthereport shows the lineofdreaming track. of theminevalleynamed‘Almudj’.ThesiteAlmudjrelates totheRainbowSerpent,aprominent Oenpelli road. The report statesthatBoiwekisconnectedbyadreaming tracktoasacred sitetotheeast located tothewestofJabilukaMineValley. Thesite liesimmediatelytothewestofwhatisnow The 1978Chaloupkareport describesBoiwekasasacred siteasasmall,discrete soakageorswamp the wetlandsdryout.ThisisbelievedtobebecauseAlmudj, theRainbowSnakeisbelowground here.” but alsoadangerous mythologicalbeing.Thesoakneverdriesup,evenwhenduringextreme drought the orthographyofregionhasundergoneseveralrevisions.Placenames(and Djang , adreaming site of bojweg , aknobtailedgecko( Nephurus asper) , anactualanimal djang site Protecting theValuesProtecting ofKakadu:TheJabilukaProcess spring andAlmudjasaseparate site.TheMineValley wasclearofsites. identified.” Theminutesindicatedthatallagreed touseamapshowingBoywekassmallsiteatthe avoid confusionandtoensure peoplegoingintoArea AnearBoywekandothersacred sitesare Alderson, LiamMaherandJonathanNadji)discusseda“map tobeattachedallpermitapplications In August1992,theBininjWorking Committee(includingYvonne Margarula,JosephBumarda, Mick to becomerestricted. Between 1992and1993afurther31drillholeswere madebyERA,including5inthearea thatwaslater Mine Valley forthispurpose. (MineValley)extraction ontheeastern sideoftheroad (Figure 7a).Agravelpitwasexcavatedwithin restricted (Boiwekside)of theproposed gravel extractiononthewestern road butallowed unrestricted In 1989,theOenpelliRoadrealignment wassurveyedbytheNLCandaworks clearanceprovided which approval fortheconstructionofaccessroad tothemine. from thetraditionalownersthrough theNLCfordrillingworksinandaround MineValley, aswell After the1982Agreement, Pancontinental(andlaterERA)soughtandreceived asuccessionofapprovals Mine Valley (includingthenewextendedsitearea) byPancontinental. consider thestatusorboundariesofBoiwek,toissuesarisingfrom thedrillingprogram in Nayinggul andBigBillNeidjie)onwhichtheNLChasrepresentation. TheCommitteewasnotaskedto Bininj Working Committee,formedbytraditionalowners(includingatthe timeToby Gangele,Jacob The 1982Agreement alsosetoutprocesses tobefollowedshouldsacred siteissuesarise,includinga of thisdeed.”TheAgreement definestheextentofoperationalarea andrefers toitasthe‘FencedArea’. intention ofconferringuponanyplacethestatusasacred sitewithinthe FencedArea duringtheterm sites withinthefencedarea. Traditional AboriginalownershaveinstructedNLCthatthey havenopresent stated, inpart,“Itwasagreed byNLConbehalfoftraditionalAboriginalowners thatthere are nosacred In 1982,afterthisexhaustiveconsultationprocess, anagreement (the1982Agreement) wassignedthat the finalagreement. opportunity toexpress theirviewsonsitesthatrequired protection andtohavethoseviewsreflected in were fullyinformedabouttheproject byNLCstaff andconsultantanthropologists andhadample traditional ownersandaffected AboriginalcommunitiesovertheJabiluka project. Traditional owners LandCouncilcarriedoutextensiveconsultationwith In theyearsleadingupto1982,Northern Phase Three:TheAgreement:1982–1997 any threat. perceived byJusticeToohey, onthebasisofevidencebefore himfrom traditionalowners,tobeunder Although theproposal wasmuchlargerthanthepresent initiative,thesitedoesnotappeartohavebeen facilities, andtotheprotection ofsacredoverBoywekorAlmudjwere sites,noconcerns noted. showing theeffect oftheproject ontheJabilukaoutlierandconsiderationofchangestositing attention totheproposed Jabilukaproject (asitwasplannedthen),includingthereproduction ofamodel In 1981,JusticeToohey reported hisfindingsontheLandClaim.Whilereport givesconsiderable up there backandforthnow...”. up here where thebuffalo wallowisnow...It usedtobeasacred placebefore butpeopleare justwalking provided byToby Gangale,thecurrent traditionalowner’s fatherwhodescribedBoywekBalgoluyias“just In 1980,JusticeToohey heard evidenceintheAlligatorRiversStageTwo LandClaim.Evidencewas Phase Two: AlligatorRiversStageTwo LandClaim 69

CHAPTER 5 CHAPTER 5 70 theValuesProtecting ofKakadu:TheJabilukaProcess anydisturbancewoulddestroy the community. • thesitehassub-surfacemanifestations; and • thesiteisthree ancestors; • Boiwek.Inbriefthesewere:concerning traditional ownersoftheJabilukaMineralLease,senior traditionalownermadeseveralstatements At ameetingbetweentheMinisterforEnvironment andHeritage,on9February1999,the Recent Actions owners onthenature andextentofthesite. The AAPA decidednottotakeaction,dueinsufficient evidenceand disagreement betweentraditional Boiwek, afterpolicecontractorscleared areas adjacenttotheOenpelliRoadvacatedbya protest camp. At therequest oftheNLC,AAPA carriedoutafurtherinvestigation intopossibledesecrationof being carriedoutbytheCompanyandhasnotsoughttouse itspowerstolimitorrestrict thoseworks. Mine Valley, giventhecontinuingdoubtsaround theissue.AAPA hasbeenkeptfullyinformedoftheworks AAPA alsodeclinedtoissueERAanapproval forworksintheformofanAuthoritycertificate the siteandtheynotedattheir36thmeeting,held2–3June1998,that: A comprehensive anthropological investigationwasundertakenbyAAPA oftheclaimed significanceof staff intothearea. of influenceandthearea isshowninERA’s PublicEnvironment Report.Thecompanybansentrybymine (particularly minevents)byERAinthe1996DraftEIS.TheNLCadvisedoflocationthisarea extends intotheFencedArea andcoverslocalitiesplannedfortheinstallation ofminefacilities soakage orswamp,whichinthepasthadbeenrecorded astheBoywegsite.Muchofenlargedarea being listedbytheNLCforBoyweg(Figure 7b).Thisarea ismanytimeslargerthanthatoftheimmediate anthropological investigationwascarriedoutbytheNLCwhichresulted inanenlargedarea ofinfluence approached theNLCseekingregistration ofthesitecomplexBoyweg-Almudj.Acomprehensive In mid1997,followingthepreparation oftheDraftEISforJabilukaProject, thetraditionalowners These reports havenotbeensuppliedtotheAustralianGovernment. extensively andconsistentlycleared.leasearea. Anotherboundaryextendsovermostofthewestern wide corridorinwhichminingwasbanned,includinganarea directly overtheminesite,whichhasbeen to bebasedonanthropological research carriedoutbytheNLC(Figure 7b).Onemaphadakilometre several square kilometres describedastheBoyweg/Almudjsitecomplex.Thesemapswere understood During 1997,ERAwaspresented withaseriesofmapsdepictingseveralboundariesfornewsite research, andthefindingsofJusticeToohey. the apparent contradictionofthe1982Agreement, inconsistencieswiththeextensiveanthropological proceeds’. Noinformationwasprovided onwhythesitewasdangerous, thesources oftheinformation, ‘there ispotentialforthesacred integrityofthissitetobecompromised ifthe[Jabiluka]development fact recorded bytheNLCasadangerous sacred site(ie 1997) ontheDraftEISforJabilukaProject. ThesummarystatesthatBoywegisnot‘ The nextavailableinformationcomesfromLandCouncil(NLC)submission(in asupplementaryNorthern Phase Four:TheJabilukacampaign1997–1999 creating substantialdoubtfrom alegalpointofviewthatthearea proposed forregistration isasacred site.’ Disagreement onthepartofsomeseniorcustodianswithproposed registration hadtheeffect of Aboriginal tradition,there were widelydivergentandstrongly heldpositionstakenbyvariouscustodians. of thesiteandphysicalfeatures thatconstitutethesiteandsignificance ofthesiteaccording to ‘In thecourseofdiscussionitwasnotedthatonanumberkeyissues,includinglocationandextent djang andjamun ). Thesubmissionnotedthat djang ’ butisin Protecting theValuesProtecting ofKakadu:TheJabilukaProcess landowners andcustodians. and, bothinminedesignand environmental ofthe practice, hassoughttotakeaccountoftheconcerns ERA statesintheSupplement that itisveryconsciousoftheimportanceBoiwekarea ofinfluence on thelatterseeearliersectionsofthischapter). agreements, and alsotherecommendations andrequirements setbyAustralianMinisters(forinformation ERA haslistedintheSupplementmeasures whichithasundertakentocomplywitheachofthese tocomplywiththedecisionsandrequirements Territory oftheNorthern AboriginalAreas Protection • torealign the AccessRoadtoaroute acceptabletotheNLC,and • tonot,withoutthepriorwrittenapproval oftheNLC,enteruponoroccupyanypart • boundary: agreed toanumberofadditionalmeasures whileawaitingconfirmationandcompleteadviceonthesite Under the1998DeedPoll(resulting from arbitrationoverchangestotheJabilukadevelopment),ERAhas requested nottocarryoutanyworkinthearea otherthantocross itviatheexistingtrack. would beanyrestrictions onoperationalormonitoringactivitywithinit), howevertheyhavebeen have notreceived completeadviceastotheimpactofextendedarea ofBoiwek(iewhetherthere ERA statesintheSupplementtoitsInterimCulturalHeritageManagementPlan(October1998)thatthey the area oftheMineralLeasecovered bytheoperationalarea ofthemine. may takeonthatstatusovertime.Theprovisions relate especiallytotheprotection ofsacred siteswithin to theprotection bothofsacred sitesknownatthetimeof1982Agreement andthoseplaceswhich The 1982Agreement hasprovisions toprotect sacred sitesfrom mineconstruction.Theprovisions relate Act 1976 sites willbeprotected. TheAgreement wassignedunderthe The 1982AgreementLandCouncil(NLC)andPancontinentalstatesthatsacred betweentheNorthern The andcomment regime Statutory significance isnotconsistentwithprevious descriptionsofthesite. requested hasconfirmedthatthisinformationonboundariesand bytheAustralianGovernment larger locationfortheboundariesofsite(seeFigure 7c).Independentanthropological assessment could destroy thecommunity. In1999,theofficial Mirarrwebsitedisplayedamapshowinganeven to thetwoadditionaldreaming ancestors,thatithassub-surfacemanifestationsanditsdisturbance hasnotpreviouslyThe AustralianGovernment beenprovided withtheinformationthatsiteisrelated bubble upfrom theground, causingfloodingandseriousharmtothepeople. traditional ownersthatdisturbanceofthisground willcauseittosink,becomeboggyandthatwater Almudj (rainbowcreation figure) andBoiwek,mixedupunderground. Ithasbeenexplainedbythe ore bodybelowtheBoiwek-Almudjsitecomplexismanifestationof‘kudduk’(faeces) Traditional officers, owners,incommentsmadetoAustralianGovernment claimthatthesubterranean tosubstantiatetherecenttraditional ownerstotheAustralianGovernment claims. traditional ownerasrecently as1992.Despiterequests, nootherevidencehasyetbeensuppliedby anthropologists, andspeltoutinlegalagreements andsitepermitsagreed bythecurrent senior These are inconsistentwithprevious informationprovided bytraditionalowners,researched by Boiwek–Almudj complexcanbeconstructedwithinthosesites. Authority withrespect towhetherornottheventswhichithasproposed toconstructon the extended area, Aboriginal LandRights(NorthernTerritory) Act1976 , whichincludesprovisions fortheprotection ofsacred sitesonAboriginalLand. Aboriginal LandRights(NorthernTerritory) (the Act) 71

CHAPTER 5 CHAPTER 5 72 theValuesProtecting ofKakadu:TheJabilukaProcess of greatersignificance(moreancestors, moredangerous)needstobeweighedagainstthe historicalfacts Recent claimsthatthesiteislarger, (covering awiderarea)deeper, (extendinglatelytotheorebody)and have beenrecognisedandprotected. to beprotected.Forover20yearsthesiteatBoiweklocated atthesoakageandAlmudjonoutlier Commonwealth andNorthernTerritory legislationthroughwhichtraditionalownerscouldapplyforsites The sacredandsignificantsiteprotectionmeasuresavailable totraditionalownersincludeboth to theWorld HeritagevaluesofthePark,ortosacredsitesinprojectarea. monitoring inplace.Thisassessmentprocessspecificallyincluded bindingmeasurestoensurenodamage environmental impactassessment.Thereisanextensiveand comprehensiveprogramofenvironmental The Jabilukaprojecthasbeensubjectedtothreeyearsof intensive, exhaustiveopenandtransparent CONCLUSION site asidentifiedbytheNLCtoAAPA. (mainly ventilationshafts,weathermonitoringpost,accesstracks)awayfrom thearea ofinfluencethe In termsofotherpossibleimpactsrelating toBoiwek,ERAundertook moveanysurfacefacilities impact onthesite. the deepandshallowaquiferthusmineconstructioncouldexpecttohavelittleornohydrological address theserequirements. Themodellingsuggeststhatthere couldbelittleornoconnectionsbetween Due toaccessrestrictions imposedbythetraditionalowners,ERAhasrelied ondesktopmodellingto conduct baselinestudiestoestablishthedegree ofconnectionbetweendeep andshallowaquifers. dewatering effects attheBoywegsite.Itisalsorequired toprevent contaminationofgroundwater and Minister forResources andEnergy, ERAisrequired totakeallreasonable stepstoidentifypotential Under therecommendations andrequirements listedbytheMinisterforEnvironment andthe Jabiluka Projectstatutoryrequirements to hisboyhood. is understoodthathehasalong-termunderstandingofthesiteanditssignificancewhichstretches back Gundjehmi. Hehasadeepandcomprehensive knowledgeofthesacred sitesofthisarea ofKakaduand This latterpersonisacontemporaryofthefathercurrent seniortraditional owneroftheMirrar- traditional owneroftheMirrarGundjehmiclanandsenioraneighbouringclan. the sitewasadangerous sacred site.There mayhavebeenadifference ofopinionbetweenthesenior It isunderstoodthatoneofthemainareas ofdisagreement betweenseniorcustodianswasonwhether application couldbereconsidered inthelightofanynewevidenceregarding thesignificanceofsite. The applicationtoregister thesitewasrejected. TheChiefExecutiveoftheAAPA notedthatthe AAPA consistsof12members,tenwhichare Aboriginalcustodiansofsacred sites. TerritoryNorthern andisadministered bytheTerritory’s AboriginalAreas Protection Authority(AAPA). The TerritoryThe Northern AboriginalSacred SitesAct1989provides fortheprotection ofsacred sitesinthe The The traditionalownershavemadenomovesunderAustralianlawtorescind the1982Agreement. opportunity forsuchissuestoberaised. the NLCattimetobenotedin1982Agreement (Figure 6b).Thisisdespitethere beingan Boiwek whichlieswithintheFencedArea (iemostoftheextendedarea) wasnotofsufficientto concern It wouldtherefore seemthatthelocalitycovered bywhatisnowtheextendedarea ofinfluence Northern Territory AboriginalSacredSitesAct1989 Protecting theValuesProtecting ofKakadu:TheJabilukaProcess domestic lawtoseekandreceiveprotectionforsacredsites. the valuesofWorld HeritagepropertyandalsotheextensiverightsofAboriginalpeopleunder to considertheseissuescarefully, withawarenessoftherightsStatepartytoupholdandmanage The World HeritageCommitteeneedstoconsidertheseissuesonobjectiveandfactualevidence.It the Mission.Theserequestshavebeenrejectedbytraditionalowners. The StatePartyhasaskedtraditionalownerstodiscusstheculturalmappingexerciserecommendedby adequate andeffective. were freelygivenandtheNorthernLandCouncilhasconfirmedthatconsultationprocesswas 1976 and1997bytraditionalowners,includingthecurrentseniorowner. Thosepermissions consistent withanthropologicalevidenceorthepreviousstatementsandpermissionsgivenbetween owners beforeanyworkcouldcommence.Thesepermissionsweregiven.Therecentclaimsarenot drillingneededtobeprovidedbytraditional that approvalsforanymineproject,includingexploratory 73

CHAPTER 5 74 CHAPTER 6

Response to Recommendations

6.1 Mission Recommendation 1: Potential Impacts of the Jabiluka Mine 6.2 Mission Recommendation 2: Addressing Scientific Uncertainties 6.3 Mission Recommendation 3: Visual Encroachment—Jabiru 6.4 Mission Recommendation 4: Cultural Heritage Management Plan 6.5 Mission Recommendation 5: Boiwek 6.6 Mission Recommendation 6: KRSIS 6.7 Mission Recommendation 7: The 1982 Agreement 6.8 Mission Recommendation 8: Lack of recognition of the Kakadu Cultural Landscape 6.9 Mission Recommendation 9: Limitations to the Boundaries of Kakadu National Park 6.10 Recommendation 10: Threat to the continuation of the “joint management” regime at Kakadu National Park 6.11 Recommendation 11: Overall Breakdown in Trust and Communication 6.12 Recommendation 12: Interaction with the Science Group 6.13 Recommendation 13: The Koongarra Mineral Lease 6.14 Recommendation 14 The Town of Jabiru 6.15 Recommendation 15: Introduced Weeds 6.16 Recommendation 16: Cane toads Conclusion

75

Response toRecommendations same regime astheRangermineand,inmany respects, tohigher standards thanRanger. List andthroughout thesuccessivere-inscriptions ofthePark. TheJabilukaminewillbemanagedunderthe The RangerminewasoperatingatthetimeKakaduNational Park wasfirstinscribedontheWorld Heritage the appropriate precautions andcontrols, mining doesnotposeathreat toWorld Heritagevalues. National Parkthroughout theoperationofRangeruraniummineprovides furtherevidence that,with Australia’s experience in successfullyprotecting andmanagingtheWorld HeritagevaluesofKakadu meets theGovernment’s approval conditionsthroughout thelifeofmine. strict measures to protect thesevalues.Additionalmeasures are alsoinplacetoensure themineoperator to theWorld Heritage andothervaluesoftheNationalPark,Australiahasdevelopedimplemented Where mineactivities havebeenidentifiedintheassessmentprocess asapotentiallythreatening process process isdiscussed inmore detailinSection5.1ofthisReport. considered impacts onnatural,culturalandsocialvalues,includedwidespread consultation. This project wasgiven.Thisassessmentprocess followedAustralia’s rigorous legislativerequirements, A three-year, comprehensive environmental assessmentwasundertakenbefore approval forthemine are hasanobligationtoprotect. thenaturalandculturalvaluesAustralianGovernment The valuesdefinedinChapterOneare thekeyvaluesandattributesofWorld Heritageproperty. These World HeritagevaluesofKakadu,bothnaturalandcultural,are safe. environment isconfidentthatthe inwhichtheJabilukaminewilloperate,AustralianGovernment thelegislative,regulatoryWorld and monitoring HeritagevaluesinsideKakaduNationalPark.With the questionofwhetherJabilukamine,situatedoutsidePark,wouldhaveanyimpacton To ensure wemetourresponsibilitiescloselyexamined undertheConvention,AustralianGovernment Jabiluka shouldnotproceed. at Jabiluka.TheMissiontherefore recommends thattheproposal tomineandmilluraniumat values ofKakaduNationalParkposedprimarilybytheproposal foruraniumminingandmilling The Missionhasnotedsevere ascertainedandpotentialdangerstotheculturalnatural MISSIONRECOMMENDATION 1:POTENTIALIMPACTS OFTHE 6.1 andseven. one,two, three about recommendations concerns totheseobjectivesisunderway.give effect TheAustralianGovernmenthasparticular consistentwithAustralianGovernmentpolicyandobjectives,inmanycasesactionto largely are majorityofrecommendations Thegreat to eachofthesixteenUNESCOMissionrecommendations. CHAPTER SIX:RESPONSETORECOMMENDATIONS attributes oftheWorld Heritageproperty. that necessarycorrective actionisswiftlytakenifthere isanyevidenceofdangertothevaluesand and monitoringwillbeappliedtoJabilukaensure theprotection ofvaluesismaintainedand specific conditionsputinplacetoaddress identifiedthreats tovalues.Thehighestlevelofscrutiny is takenintoaccount.Athree yearenvironmental impactprocess hasbeencarefully followedand development, particularlywhentwentyyearsofexperienceatthesimilarlysituatedRangermine the naturalandculturalvaluesofKakaduNationalParkare notthreatened bythemine ascertained orpotentialdanger. Abalancedweighingoftheavailableevidencedemonstratesthat It istheAustralianGovernment’s viewthattheevidencedoesnotsubstantiatecasefor JABILUKA MINE Chapter SixoutlinesAustralia’sresponse 77

CHAPTER 6 CHAPTER 6 78 Response toRecommendations thelong-termstorageof mine tailings. • storageofuraniumore onthesurface; and • prediction andimpactofsevere weatherevents; • hydrological modelling; • detailed assessmentofthefourmainissuesconcern: scientific uncertaintywithrespect tothedevelopmentofJabilukauraniummine.Thishasincludeda The SupervisingScientisthasconductedafullreview andprepared areport addressing theareas of Principle whichrequires that miningoperationsatJabilukabeceased. The Missionsharesandtherefore theseconcerns recommends applicationofthePrecautionary to theJabilukaminedesign,tailingsdisposalandpossibleimpactsoncatchmentecosystems. most eminentscientistsastotheunacceptablyhighdegree ofscientific uncertaintiesrelating andpreoccupationsThe Missionnotedtheseriousconcerns expressed bysomeofAustralia’s MISSIONRECOMMENDATION 2:ADDRESSINGSCIENTIFIC 6.2 implications ofan‘InDanger’listingontheeconomicopportunitiesfortheirpeople. regardingsubmission totheUNESCOMission,JawoynAssociationnotedtheirconcerns thepossible traditional owners(98%ofKakaduNationalPark)asWorld HeritageInDanger isnotsustainable.Intheir Kakadu NationalPark.To suggestthattheclaimsbyMirrarjustifylistinglandsbelonging toother recognised sacred sitesare fullyprotected. TheMirrarpeopleare theownersofapproximately 2%of Traditional ownershaveconsentedtotheJabilukamine.Actionhasbeentakenensure thatall Environment andHeritage. Ensuring complianceontheserequirements isaspecificlegislativefunctionoftheMinisterfor Jabiluka minedoesnothaveanyadverseimpactontheWorld HeritagevaluesofKakaduNationalPark. Among themanyconditionsoftheirminingapproval, ERAare specificallyrequired toensure thatthe total leasearea, theremainder oftheleasearea willbeopentoaccessbytraditionalowners. access road from Ranger).Apartfrom accessrestrictions toapproximately 2.8sqkm,orabout4%ofthe 7.1 sqkminarea, whiletheJabilukaminewillcoveramuchsmallerarea ofabout1.3sqkm(includingthe rather thanopencut(Figures 5and6).TheRangermineitsassociatedfacilitiespresently occupiessome The Jabilukamineproject issignificantlysmallerthantheRangermine,andwillbeanunderground mine National Park. relatingconcerns toanypotentialimpactsoftheRangermineonWorld HeritagevaluesofKakadu notesthatthe WorldThe AustralianGovernment HeritageCommitteehasnottodateraisedany be madetoproject design. subjected toindependentreview bytheSupervisingScientistandanynecessarymodificationswill further modellingandresearch tobesure that there isnothreat tovalues. The claimshavebeen hasneverthelessundertakentoexaminetheclaimsandcarryour the AustralianGovernment relating totheseissues.Whilenoobjectiveevidenceisprovided tosupportthisrecommendation, Mission’s report havenotbeenbalancedagainsttheassessmentofknownscientificdata areas ofuncertaintytofurtherindependentscientificreview andanalysis.Claimsmadeinthe afterconsideringthisrecommendation,The AustralianGovernment, hassubjectedtheproposed UNCERTAINTIES Response toRecommendations issue hasneverbeenraisedby theWorld Heritage CommitteeorBureau. nocomplainthasbeenmadeaboutthevisualimpactofRangerfromAustralian Government, theair. The overflights sincetheproperty wasfirstinscribedontheWorld HeritageList.To theknowledgeof substantially largerarea thantheJabilukaminewhenitwillbeinfullproduction, hasbeen visiblefrom Park. Forthepublic,minesitecanonlybeviewedfrom theair. TheRangermine,whichoccupiesa World Heritage property. Theminewillalsonotbevisiblefrom mainaccessroads inKakaduNational As notedintheMission’s report, theJabilukamineisnotvisiblefrom touristaccesspointswithinthe not poseathreat totheaestheticvalueorintegrityofKakaduWorld Heritageproperty. outstanding naturalbeauty. However, itisapparent thattheJabilukamineandtownshipofJabirudo recognisesThe AustralianGovernment theneedtomanage visualimpactsinproperties listedfortheir with thetownofJabiru,locatedwithinWorld Heritageproperty, shouldbeprevented. the associatedincremental expansionofurbanandinfrastructure developmentinandassociated MISSIONRECOMMENDATIONFurther visualencroachment ontheintegrityofKakaduNationalPark through uraniumminingand 3:VISUALENCROACHMENT—JABIRU 6.3 detailed planningproceeds. design phaseoftheproject hasnotyetcommencedandthesefeatures willtherefore beincludedasthe of theproposal wouldbe,from aprecautionary approach, appropriate. Asinnormalpractice,thedetailed assessment isveryhigh.”Thereport onthereview highlightedanumberofareas where somere-design development oftheJabilukauraniummineanddegree ofscientificcertaintythatappliestothis conclusion ofthereport wasthat“thenaturalvaluesofKakaduNationalParkare notthreatened bythe The SupervisingScientist’s report onthe review ispresented separatelytotheCommittee.Thegeneral hydro-geochemical analysisrelevant tostorageoftailingsatJabiluka. • hydrological analysisrelevant tosurfacewaterstorageatJabiluka;and • climatechangeanalysis; • hydrometeorological analysis; • raised bytheWorld HeritageCommittee.Theseconsultanciesrelate to: The SupervisingScientisthasalsocommissionedfourseparateconsultanciestoaddress specificissues National ParkPlanofManagement. controlled byTerritory andCommonwealth authoritiesandregulated through theKakadu for Park,tourismandindigenousadministrativesupporttheregion. The growth ofJabiruis housing stocktocaterforworkersontheproject. Jabiruistheadministration andservicecentre development inJabiruasaresult oftheminewillbeminimal,with utilisationofexisting hasascertainedthatanyexpansionofurbanandinfrastructure Australian Government population (thecurrent populationof1480islowerthantheplanned figure of3500).The present intheregion atthe time ofprevious nominations.ThetownofJabiruhasastable there, thevisualintrusionisminusculebycomparisontoexistingRanger mine, whichhasbeen The project atJabilukaisnotvisiblefrom theWorld Heritageproperty, exceptfrom theair. Even substantiate thecaseforvisualencroachment asasignificantissueor threat. It istheAustralianGovernment’s viewthattheevidenceleadingtothisrecommendation doesnot 79

CHAPTER 6 View east View towards the towards Jabiluka mine Jabiluka site above site Magela floodplains from the aerial the from tourist route at route tourist 700ft. The 700ft.

tourist route is route tourist CHAPTER 6 within the within lease boundaries. Magela floodplain and floodplain Oenpelli Road Oenpelli is in the in is foreground and foreground the mine site mine the is approx is 3.5km away. 3.5km 80 Response toRecommendations Response toRecommendations 81 Looking west Looking towards the towards Jabiluka mine Jabiluka site from the from site tourist air route air tourist over East over Alligator River Alligator at approx at 700ft altitude. 700ft The mine site mine The is approx 8km approx is away. The away. Magela floodplain is floodplain visible in the in visible far distance far beyond the beyond ridge separating outliers. CHAPTER 6 Response to Recommendations CHAPTER 6

The small town of Jabiru The World Heritage Committee has not previously raised any concern relating to the development of (Science Group, Jabiru. The town provides infrastructure which supports the good management of the World Heritage Environment property. It also provides useful infrastructure for Kakadu’s traditional owners. Town development is Australia) rigorously controlled to ensure it does not impact on the World Heritage values of the property. In 1977, the Fox Inquiry recommended that the town should be located in the Park, (refer Figure 2 and 9) and provided guidelines concerning its absolute size and appropriate approaches to its planning and management. The Second Fox Report (1977) recommended (p 223, Conclusion, Paragraph 1): “We recommend strongly that the number of people in the town [Jabiru] not exceed 3500; but the smaller the better. This is a much larger number than will be necessary to accommodate people associated with the Ranger mine but it allows for the possibility of the Pancontinental Mine [Jabiluka] getting into production during the life of the Ranger mine.” A town plan was developed in 1978, in response to the recommendations of the Fox Inquiry, by the Director of National Parks and Wildlife. The Jabiru Town Development Authority, when it was established in 1979, took over the responsibility for developing and implementing the plan. Since that time, the plan has provided for a maximum population of 3500, while acknowledging that a lower population level was desirable. At the time of the 1991 World Heritage Nomination of Kakadu National Park, the population of Jabiru was approximately 1200. The population then grew to 1480 in 1998. The estimated maximum future population of Jabiru, in response to the development of a mine at Jabiluka, is approximately 1700. This maximum level is less than half that recommended by the Fox Inquiry, and half the number provided for under the current town plan.

82 Response toRecommendations measures toconserve culturalheritage. opportunity fortraditionalownersintheKakaduregion tobefullyinvolvedinthedevelopmentof remainsheritage ontheJabilukaMineralLease.TheGovernment committedtoproviding every any managementplanningprocess atthisstage,isdevelopingmeasures forthemanagement ofcultural acknowledgingthedecisiontakenbyMirrar-GundjehmiThe AustralianGovernment, not toparticipatein endorsement ofthisapproach intheMission’s report to theWorld HeritageCommittee. bestpractice.Australiawaspleasedtoreceivethe highestlevelsofinternational theMission’s Plan duringtheMissionvisitin1998,andiscommittedtoensuring thePlanmeets,asfarpracticable, announceditsintentiontoreviewThe Government theInterim JabilukaCulturalHeritageManagement duringtheMission. announced bytheAustralianGovernment expertisetoundertakethereviewinternational oftheCulturalHeritageManagementPlan Academy oftheHumanitiesshouldbeapproached tonominate world-classAustralianor sites locatedwithintheJabilukaMineralLease.ItisMission’s viewthattheAustralian compilation ofanaccurateculturalinventorythatwillensure theconservation ofthecultural and communicationwithtraditionalowners,custodiansmanagerstoensure the Mission recommends thateveryeffort ismadetoensure thorough participation,negotiation Territory’sCommission andtheNorthern AboriginalAreas Protection Authority(AAPA). The Australia ICOMOS,theAustralianAcademyofHumanities,Heritage heritage management.Thisshouldbeachievedinconsultationandwiththeparticipationof thorough aspossible.Itshouldbeprepared accordingbestpracticeincultural tointernational The Missionrecommends thattheJabilukaCulturalHeritageManagementPlanshouldbeas MISSIONRECOMMENDATION 4:CULTURAL HERITAGE 6.4 Heritage properties across theglobe. the visibilityofadevelopmentfrom theair, wouldhavemajorimplicationsforthemanagementofWorld planning arrangements.EstablishingabenchmarkforlistingWorld HeritageinDangerbasedsolelyon facilities andotherinfrastructure whichare managedinaccordance withestablishedmanagement Numerous World Heritageproperties, includingseveralinAustralia,containtouristdevelopments,service property hasfourtownswithinitsboundaries,withatotalresident populationofsome10,000people. towns, withinornearitsborders. Forexample,theCanadianRockyMountainParkWorld Heritage It shouldalsobenotedthatKakaduisnottheonlyWorld Heritageproperty withdevelopments,suchas Mission recommendations. to undertakethereview oftheCulturalHeritageManagementPlaninlinewith has beenapproachedexpertorexperts tonominateaworld-classAustralianorinternational are beingrigorously andindependently assessed.TheAustralianAcademyoftheHumanities sites locatedwithintheJabilukaMineralLease.Theissuesofpotentialdustandvibrationimpact to ensure thecompilationofanaccurateculturalinventoryforconservation ofthecultural participation, negotiationandcommunicationwithtraditionalowners,custodiansmanagers identified intheMissionrecommendation. Everyeffort hasbeenmadetoensure thorough further developmentoftheInterimCulturalHeritageManagementPlanfrom theorganisations throughThe AustralianGovernment, Environment Australia,hasinvited participationinthe MANAGEMENT PLAN 83

CHAPTER 6 CHAPTER 6 84 Response toRecommendations by blastsassociatedwithmining. Standards to minimiseanyimpactsfrom blastingwillbedevelopedif potential incremental threat torock artandarchaeological sitesfrom lowfrequency vibrationsproduced from seismicevents intheIndonesianArchipelago. Thevibrationstudywillidentifywhether there isany Vibrations: Jabiluka Mineandwillbemonitored andreported onthrough theOffice oftheSupervisingScientist. standards fordust levelswillalsobeincludedasenvironmental requirements fortheoperationof Interim CulturalHeritageManagementPlanandfullydiscussed withtraditionalowners.Adherence tothe On completionofthestudystandards for, andmonitoringof,dustlevelswillbeintegratedintothe on weather. study willtakesevenmonthsandshouldbecompletedby1 November1999,althoughthisisdependent impacts ofdustonrock artrequires thecollection ofdataoverafullannualcycle.Itisexpectedthatthe As atmosphericdustlevelsare knowntovarybetweenthewetanddryseasonstudyofpotential also bedevelopedandtrialed. standards willbedevelopedtominimisethesepotentialimpacts.Methodsfor monitoringcompliancewill If theproject identifiespotentialincremental impactsofdustonrock artarisingfrom miningactivities, potential incremental impactsonrock artofdustassociatedwithminingcanbeidentifiedandmonitored. Dust: data tomonitorandidentifyanypotentialimpacts. Mission aware ofthesepotentialimpactsandindicateditwascommissioning studiestocollectbaseline activities were identifiedduringtheEnvironmental ImpactAssessment.AustraliamadetheUNESCO Potential threats torock artand archaeological sitesfrom dustandvibrationsassociatedwithmining to ensure adraftplanwillbeavailablebefore theWorld HeritageCommitteemeets. National Park.Itisanticipatedthattheindependentexpertwillbeabletocompletenecessarywork any associatedpracticalmeasures toprotect theculturalWorld HeritagevaluesoftheadjoiningKakadu completion ofthereview project,willinvitethe Mirrar-Gundjehmi theAustralianGovernment topropose values andattributesontheJabilukaMineralLeasependingparticipationoftraditionalowners.On The review willformthebasisfordevelopingarevised planfortheinterimprotection ofculturalheritage independent reviewer andthecommentswillbeincorporatedintoreport. be availabletothereviewer. Thesubmissionsmadebythemajorstakeholderswillbe analysedbythe available culturalheritageinformationforthearea andthesignificantcollected dataandtheauditwill information onthelocation,extentanddangerofsacred sites.Australia hasundertakenanauditof Mineral Leasethrough acriticalanalysisofexistingculturalinventoriesandinformation,including The review willidentifyanypotentialgapsinthecurrent knowledgeofculturalheritageontheJabiluka nominate arepresentative. LandCouncil,Mirrar-Gundjehmi,invited thekeystakeholders,includingNorthern andERA,to informedallthemajorstakeholders ofitsintentiontoestablishaSteeringCommitteeand Government limited to,keystakeholders.Environment AustraliawillconvenetheSteeringCommittee.The The independentexpertreviewer willbeassistedbyaSteeringCommitteecomprising,butnotnecessarily expertise willbeapproached toundertakethiswork. undertake thereview andtoprovide amore comprehensive Plan.Nomineeswithsuitablestandingand area. invitedtheseorganisationstonominateindependentexperts Atthesametime,Government submissions ontheplanandprovide practicalproposals forthemanagementofculturalvaluesin Humanities, theAboriginalAreas Protection AuthorityandtheAustralianHeritageCommissiontomake inviting Mirrar-Gundjehmi, LandCouncil,AustraliaICOMOS,theAustralianAcademyof theNorthern hasstartedtheprocessThe Government ofreviewing theInterimCulturalHeritageManagementPlanby A leading international experthascommencedworkoncollectingbaselinedatasothatany A leadinginternational The Jabilukaarea hasabackground ofnaturallyoccurringlowfrequency vibrationsresulting Response toRecommendations Section 5.6ofthisReportaddresses theissuesraisedinthisrecommendation indetail. not necessarilyadangerous site. swamp ontheedgeofwetlandslocatedtowest the Jabilukaminevalley. Itwasasacred, but owners, includingthefatherofcurrent seniortraditionalowner, asasmall,discrete soakage or From 1975on, the siteofBoiwekhasbeendefinedbyanthropologists, workingcloselywith traditional scrutiny viaobjectiveandimpartialpeerreview. Gundjehmi AboriginalCorporationandtheirworkshouldbesubmittedtoindependentexpert Aboriginal Area’s Protection Authority(AAPA), theAustralianHeritageCommissionand anthropologists shouldreport toacommitteewithrepresentation fromTerritory’s theNorthern (AAPA) undertakeanddocumentafullsiteidentificationsurveythatmapsboundaries.The Mission recommendsTerritory’s thattheNorthern AboriginalAreas Protection Authority work shouldbeundertakenbysenioranthropologists workingwith Aboriginalcustodians.The elements oftheoutstandingculturallandscapeKakadu.Thissurveyandmapping Mineral LeaseandtheBoiweksiteitsboundariestoensure protection oftheseintegral MISSIONRECOMMENDATIONThe Missionrecommends, asanutmostpriority, 5:BOIWEK exhaustiveculturalmappingoftheJabiluka 6.5 management ofculturalheritagevaluesandattributes. active involvementoftraditionalownersandothermajorstakeholdersindevelopingplansforthe values, Australiaiscommittedtoproviding anynecessaryfurtheropportunitiesfortheparticipationand initiating thesemeasures fortheprotection andmanagementoftheculturalheritageattributes and communicationwithtraditionalowners,custodiansmanagersothermajorstakeholders.In The contractsforthedustandvibrationstudiesincludeprovisions forparticipationof,andnegotiation reported onthrough theOffice oftheSupervisingScientist. included asenvironmental requirements fortheoperationofJabilukaMineandwillbemonitored and discussed withtraditionalowners.Adherence tothestandards forlowfrequency vibrationwillalsobe any standards willbeincorporatedintotheInterimCulturalHeritageManagementPlanandfully It isexpectedthestudywilltakesixmonthsandshouldbecompletedby4October1999.Onceagain, Australian GeologicalSurveyOrganisationandtheCSIROhavestartedworkonthisproject. the studyidentifiesanyincremental threats torock artandarchaeological sites.Expertsfrom the 1991 isaccurateanduptodate. information provided onsitesandtheirboundariesinlegallybindingagreements in1982 and communication oftraditionalowners,custodiansandmanagers,toconfirmthatthe the leasearea. Everyeffort has beenmadetoensure theparticipation,negotiationand Environment Australia,hascarriedoutanauditofallprevious workontheculturalmappingof throughover thesignificanceofsiteanditsboundaries.TheAustralianGovernment, Territory. TheAuthorityhasdeclinedtoregister thesiteduetodisagreements amongstcustodians twenty yearshasbeenreviewed bytheAboriginalAreas Protection AuthorityoftheNorthern Research, includingdetailedculturalmapping,onthestatusandlocation of Boiwekoverthelast 85

CHAPTER 6 CHAPTER 6 86 Response toRecommendations of heath, education and other ‘state’ Government responsibilitiesof heath,educationandother ‘state’Government intheregion. community. Inparticular, Territory theNorthern isconstitutionallyresponsible Government for thedelivery region LandCouncilandlocalAboriginal associations)andtheindigenous (including theNorthern Community ActionPlanissharedTerritory withtheNorthern organisationsoperatinginthe Government, Under theAustralianconstitution,responsibility foraddressing thefullrangeofissuesraised intheKRSIS hasdirectGovernment responsibilities andchargedhisMinisterswithappropriate action. tothosesocialimpactissuesintheregionthe AustralianGovernment where theCommonwealth The PrimeMinisterofAustraliahasagreed withtheneedforapositiveandcomprehensive response by KRSIS action. organisations andindividualsintheKakaduregion tore-affirm prioritiesandinitiateproposals for endorsement bytheKRSISImplementationTeam. Hehasalsohelddiscussionswithagencies, Aboriginal and otherorganisationsintheKakaduregion, todevelopadraftKRSISaction planforconsiderationand TerritorySince hisappointmentMrCollinshasworkedwiththeAustralianandNorthern Governments, KRSIS outcomes. also madecleartotheChairofImplementationTeam theirdesire forpositive,andtimely, implementation process withacomprehensive response totheKRSISCommunityActionPlan.Theyhave Territoryinterests. BothAustralianandNorthern havecommittedtotheKRSIS Governments TerritorySenator fortheNorthern withastrong record ofworkingtoprogress Aboriginalpeoples’ Collins astheindependentChairofKRSISImplementationTeam. MrCollinsisawell-respected former recommendations oftheKRSISCommunityActionPlanandappointment oftheHonourableBob TerritoryIn late1998theAustralianandNorthern announcedtheirformalresponse Governments tothe Aboriginal peoplethatwere originallyexpected. development intheKakaduregion hasnotgenerallytranslatedintothesocial andeconomicbenefitsfor acceptsthefindingofKRSISthattwentyyears KRSIS CommunityActionPlan.TheGovernment hascommencedactiontoimplementtherecommendationsThe AustralianGovernment ofthe1997 according toculturalheritagecriterion(vi). cultural valuesrecognised whenKakaduNationalParkwasinscribedontheWorld HeritageList socio-cultural impactsofdevelopmentonAboriginalpeoplethatare apotentialdangertothe that structures are inplacewithin12monthstobeginamelioratethenegativeregional Study (KRSIS)recommendations. ImplementationoftheKRSISrecommendations shouldensure overseeing theimmediateandeffective implementationoftheKakaduregional SocialImpact The Missionrecommendstakealeadinganddecisiverole thattheAustralianGovernment in MISSIONRECOMMENDATION 6:KRSIS 6.6 values are discussedinChapterSeven. social development.Varying interpretations overtheextent ofanypotentialthreats tothecultural that traditionalownersintheParkhaveaccesstoabroad varietyofprograms foreconomicand recognised thattheKRSISreport didnotdefineminingastheprimarycauseofdisadvantageand majority oftraditionalownersfrom otherclansintheregion are participating.Itshouldbe for theseinitiativeshasnotbeenforthcomingfrom theMirraratthisstage,althoughvast will ensure thateffective structures are inplacewithintwelve months.Traditional ownersupport hasacceleratedtheimplementationofKRSISand KRSIS outcomes.TheAustralianGovernment hasalreadyThe AustralianGovernment commencedappropriate actiontoimplementagreed Response toRecommendations The maintenance ofthefundamentalrightstraditionalowners. should reconsider thestatusof1982agreement andthe1991transferofownershiptoensure alongwiththeothersignatories, Mission isoftheopinionthatAustralianGovernment, Mirrar totheirlandandrightsparticipateindecisionsaffecting them.Therefore the torecognisethat itisincumbentontheAustralianGovernment specialrelationship ofthe that shebelieveswillirretrievably damagehercountryandpeople.TheMissionisoftheview responsibilities) oftheseniortraditionalowner, MsYvonne Margarula,toopposeadevelopment relation totheJabilukaMineralLease.TheMissionalsorecognises thecustomaryrights(and The MissionnotestheexistenceofminingrightsEnergyResources AustraliaLtd(ERA)in 6.7 MISSIONRECOMMENDATION 7:THE1982AGREEMENT into otherregional initiatives.Thisstancerequires patienthandlingbytheChairofKRSIS. assess prioritiesforKRSISactionandwaysinwhichtheImplementationteamcanbeintegrated requested thatestablishmentoftheImplementationTeam bedelayedtoallowAboriginalpeoplere- During MarchLandCouncilandtheGundjehmiAboriginalCorporation 1999boththeNorthern to produce thedesired outcomes. the KRSISandthaton-goingsupportofAboriginalpeopleinregion isafundamentalrequirement recognisesThe AustralianGovernment thatthesignificantinvolvementofAboriginalpeopleiscentralto benefit to the Aboriginal people, the Northern LandCouncilisproudbenefit totheAboriginalpeople, theNorthern tohavebeenapartofthem’. of thenegotiationsandcareful anddelicate wayinwhichtheyhavebeenhandled,andthelong-lasting said ‘We believeitisafairagreement forbothparties’.MrBlitner wentontosaythat‘Becauseofthefairness In 1982,followingthesigningofAgreement, LandCouncil,MrGerryBlitner, theChairmanofNorthern the Agreement ortheprocess whichledtoitsfinalisation. regarding theAgreement process, noneoftheprincipalsassociatedwithAgreement havedisowned custodians intheKakaduregion whohadaninterest intheJabilukamine.Incontrasttorecent concerns with traditionalownersandincludedhundreds ofmeetingswiththesepeopleandtheotherAboriginal The developmentandfinalisationofthe1982Agreement involvedanumberofyearsnegotiations consent andstrong supportoftraditionalownersatthattimeasrequired undertheAct. considers, andallevidenceprovided indicates,thattheseagreements were reached through theinformed LandCouncilonbehalfofthetraditionalownersunderAct.TheAustralianGovernment Northern The 1982Agreement andthe1991Transfer ofOwnershipwere statutoryagreements undertakenbythe negotiated inthe1982Agreement. owners ofJabilukainsteadchosetoconsentthemineforeconomicbenefitsandotherprotections land ownedbynonIndigenousAustralians.Althoughpossessingthispowerofveto,thetraditional currently thestrongest operating inAustralia.Therightofvetoprovided bythisActdoesnotapplyto TerritoryNorthern Territory therightofvetooverminingontheirland.ThelegislationinNorthern is of property rightswithintheexcludedminingleaseareas. Australia willreport totheWorld HeritageCommitteeonanyfuture potentialchangestothestatus Mirrar toparticipateinalldecisionsaffecting theminstatutoryenvironmental assessmentprocesses. consented. Australianlawrecognises theMirrarspecialrelationship totheirlandandhasenabledthe Australian Lawgivestraditionalownersarighttoveto.In1982and1991, doesnotsupportthecourseofactionoutlinedinRecommendation. The AustralianGovernment Aboriginal LandRights(NorthernTerritory) Act1976 (the Act)provides indigenouspeopleofthe 87

CHAPTER 6 CHAPTER 6 88 Response toRecommendations their successorswouldbedamaged. processes, the capacity ofAboriginalpeopletoenterintofuture obligationsthatbindthemselves and Should thelegallybindingagreements of1982and1991bedissolvedoutsidetheappropriate legal traditional ownerattendedthesemeetings. infavouroftheJabilukamine.Thepresentthey lobbiedtheCommonwealthGovernment senior This positionwasfurtherdemonstratedduringavisitoftraditional ownerstoCanberrain1991which Aboriginal peopleintheregion. including theJabilukamine,continue(underappropriate controls) toensure astrong economicfuture for and keymembersoftheKakaduAboriginalcommunitywho wouldliketoseeregional development, Agreement and the1991transferofrights.The1982Agreement alsohastheongoingsupport ofsenior agreements inconsultationwiththetraditionalowners,maintainstheir commitmenttothe1982 LandCouncil,anAboriginalorganisationwhichhasthestatutoryroleThe Northern toundertake into underduress. There hasbeen noattempttochallengetheminlaw. challenge themiftheyconsiderthatthetermsofagreements havenotbeen satisfiedorwere entered notesthatthepartiesto1982and1991agreementsThe Government havetherighttolegally submitted tothe1998meetingofWorld HeritageCommittee. be followed.MrNeidjieandhisfamilyreiterated theirsupportforthe 1982 Agreement inaletter the twooldmenwhohadagreed tothemineproceeding were nowdead,theirword waslawandmust to theimportanceof1982Agreement beingkeptbecauseitwasBininj (Aboriginal)lawthatsince In 1991BillNeidjie,oneofthetraditionalownerswhowasaprincipalto1982Agreement, referred toallowtheminesproceed:the Government Report, whichlistsanumberofeventsfrom November1983toAugust1984intheircampaignlobby Kakadu. ThefollowingquotesappearinaspecialChairman’s report (section11,pp69-74)oftheAnnual Report for1984/85,inthecontextofthenFederalGovernment’s decisionnottoallownewminesin The viewsofthetraditionalownerswere furtherexpressedLandCouncilintheirAnnual bytheNorthern Koongarra andJabiluka.”‘ then youwanttheNLCtoaskforcompensationbepaidtwominingareas “The NLCshouldkeeptalkingbut.....IffailstochangethesituationwithGovernment, place andthefollowingresolution passed. policy onUraniumminingoutlinedindetailbyChairmanandlegalofficer. Group discussionstook Meeting ofTraditional LandOwnersheldatCoonjimba.ThepositionofFederalGovernment 22 November1983 advancement oftheAboriginalpeople. Aboriginal people,andwilltherefore haveseriousconsequencesforthesocialandeconomic isindirectthis decisionbytheGovernment contraventionofpolicySelfDeterminationfor reached from bothJabilukaandKoongarratraditionalownersfortheseminestogoahead Expressing attheGovernment’s deepconcern decisiononuraniummining.Agreement hasbeen Territory,Chief MinisterNorthern Territory. OppositionLeaderNorthern Telex toPrimeMinister, MinisterforAboriginalAffairs, ShadowMinisterforAboriginalAffairs, 8 November1983 (URANIUMCAMPAIGN)‘11.0 SPECIALCHAIRMAN’SREPORT Response toRecommendations Heritage Convention: cultural landscapenominationsasstatedinParagraph41of theOperationalGuidelinesforWorld communities forthearea inquestion.Thisisconsistentwiththerequirements forthedevelopmentof proceed withsuch aWorld Heritagenominationisgivenbyallofthetraditionalowners andlocal notesthatthisrecommendationThe AustralianGovernment couldbeimplementedonlyifapproval to their spiritualtiestothelandformbasisofintegrityculturallandscape. the opinionthatlivingtraditionsoftraditionalownersandcustodiansKakadu, heritage criterion(iii)andtheWorld Heritageculturallandscapecategories. TheMissionisof living culturaltraditionsofthetraditionalownersKakaduthrough applicationofcultural asked topropose totheWorld HeritageCommitteefurtherrecognition oftheoutstanding Kakadu shouldberecognised andprotected. TheMissionrecommends thattheStatePartybe The Missionisoftheopinionthatfullextentoutstandingculturallandscape MISSIONRECOMMENDATION 8:LACKOFRECOGNITIONTHE 6.8 mining leaseareas, includingnotificationofanyrelevant courtactionsandtheiroutcomes. Heritage Committeeofanyfuture potentialchangestothestatusofproperty rightswithintheexcluded willbeopenandtransparentAgain, theAustralianGovernment onthisissue,notifyingWorld pre-empting anydomesticlawprocesses toconsidertheseissues. • injusticetotheCompanywhohavecompliedwitheverylaw, meteveryrequirement, respected • extendingtheambitofWorld HeritageCommittee,unilaterallyandinamannerthatisnot • creating aprecedent thatwouldunjustlyprivilegeonesetofacquired rightsoveranother, tothe • To setthe1982agreement asidewould risk: maximise thereturnsfrom theiruniqueproperty rightsinrelation tomineraldevelopmentontheirlands. would denyAboriginalpeopletherighttoenterintosuchagreements andthuslimittheirabilityto ownership aspossiblybeingregarded as“outofbounds”foranyfuture negotiatedagreements. This The consequencesofsuchaprecedent wouldresult inlargeareas ofAustraliaunderAboriginal ‘nominations shouldbeprepared incollaborationwithandthe fullapproval oflocalcommunities.’ Ministerial Councilbefore furtherconsultationwithlandownerstakesplace. nomination andthematterwillbeconsidered Territory atthenextNorthern World Heritage Territory.of theNorthern Atthisstage,theKakaduBoard ofManagementhasrequested sucha the majorityoftraditionalownersasexpressed bytheBoard ofManagementandtheGovernment Ranger mine.Anyproposal tore-nominate wouldrequire theconsentandactiveparticipationof maintain theirintegrity. Theyhavenotbeenthreatened bythe20yearco-existence withthe The StatePartyappreciates theconfirmationfrom theMissionthatculturalvaluesofPark every notifiedAboriginalsiteinmanagingtheproject; and State Party; ownership whentheConventionitselfexpressly recognises thattheseare mattersfortherelevant consistent withtheConvention,intoquestionsofmineralrights,property lawandindigenousland payments, atalaterdate; extent ofallowingonepartyunilaterallytorevoke acontract,freely givenandaccompaniedby KAKADU CULTURAL LANDSCAPE 89

CHAPTER 6 (Mark Hallam) (Mark area, Ubirr Kakadu CHAPTER 6 90 Response toRecommendations (Mark Hallam) (Mark Ubirr rockshelter, Kakadu Response toRecommendations freehold land,held underthe The recommended area oflandtotheeastWorld Heritageproperty isinalienableAboriginal address themore immediate andurgentissuesidentifiedinthisreport. that worktowards therecommended expansionoftheParkshouldnotdetractfrom efforts to to includelandheldunderinalienableAboriginalfreehold title.The Missionisoftheopinion traditional ownerswhoseconsentwouldneedtobegained,particularlyiftheexpansionwas recognised thatthismaybealengthyprocedure. Itshouldinvolvethefullengagementof increased protection ofmore ofthecatchmentEastAlligatorRiver. TheMission extending theboundaryofKakaduNationalParkandWorld Heritage property toensure The Missionrecommendsshouldexaminethefeasibilityof thattheAustralianGovernment MISSIONRECOMMENDATION 9:LIMITATIONS TOTHEBOUNDARIES 6.9 wouldaccepttheirdecision. Australian Government such terms.UnderAustralianlaw, theirrighttodecideonthefuture oftheirlandisprotected andthe seem unlikelythatthetraditionalownersoutsideKakaduNationalParkwouldapprove anominationon impact ontheproperty rightsofAboriginaltraditionalownersinthebroader region. Itwouldtherefore nomination ifaWorld HeritageListingimpliesanexclusionofminingactivities.Suchwould andotherStates Parties,maybelessinclinedtodevelopaculturallandscape The AustralianGovernment, nomination forKakaduNationalPark,butnotthegreater Kakaduregion. who are membersoftheBoard ofManagementforKakaduNationalParksupportaculturallandscape further atthenextmeetingofMinisterialCouncil,laterthisyear. Currently, thetraditionalowners region includesKakaduNationalPark.Thematterofaculturallandscapenominationwillbediscussed the potentialofaWorld Heritageculturallandscapenominationforthegreater Kakaduregion. This Territory World HeritageAreas MinisterialCouncil,heldon20May1998,toundertakeastudyassess TerritoryThe AustralianandtheNorthern resolved Governments atthefirstmeetingofNorthern knowledge oftheWorld HeritageCommittee. There hasbeen norequest by theCommitteeforAustralia mining hasoccurred atRanger, locatednearKakadu NationalPark,fornearly20yearswiththefull with theprotection ofWorld Heritagevalues.Thiswouldseemtobelogicallyinconsistent with thefactthat The Mission’s report strongly impliesthatminingactivities nearWorld Heritageproperties are incompatible on Figure 8. this landwithoutthesupportoftraditionalowners.Thecatchment oftheEastAlligatorRiverisshown wouldbereluctantThe AustralianGovernment totakeanyaction tochangethemanagementregime of There hasbeen nomovebyAboriginalcommunitiestosupporttheWorld Heritagelisting of thisregion. requires thepermissionoftraditionalowners. other minerals. area where Aboriginallandowners havenegotiatedpermitsforexplorationofuraniumand Park hasbeenreceived. Itshouldbenotedthattheproposed extensionwouldincludeasignificant Territory. oftheNorthern the Government Norequest forsuchachangetotheboundariesof traditional ownersintheregionLandCouncilaswellwith afterconsultationbytheNorthern well looked-after. Anysuchproposal wouldrequire theconsentandactiveparticipationof extension ofthearea ofthePark.Therecommendation confirmsthatthevaluesofParkare Australia welcomesthefactthatMissionReportendorsesParkmanagementpracticesandan OF KAKADUNATIONAL PARK Aboriginal LandRights(NorthernTerritory) Act1976 . Anyuseofthisland 91

CHAPTER 6

Response toRecommendations of theKakaduBoard (withitstraditionalowner majority),theDirector andtheMinister. to jointmanagementanditsconsultativeprocesses (seeChapterTwo). Thisplanhasthefullendorsement fourth PlanofManagementforKakaduNationalParkoutlines thedepthofcommitmentallparties obligations totraditionalowners.Theirrightsasjointpartners willbemaintainedandrespected. The In allareas of Park serviceprovision,willcontinuetorespect theGovernment andabide byitslease of thePark,includingcurrent reforms underactiveconsideration. full consultationwiththeKakaduBoard ofManagementonallmattersaffecting thejoint management iscommittedtocontinuing and itslevelofmanagementhasnotchanged.TheAustralian Government The World Heritage Committeerecognised in1992theexemplarymanagementoperation atthePark proposed changestothestatusofDirector ofNationalParksbereconsidered. majority forAboriginalmembershipoftheBoard. TheMissionalso recommends thatthe (as offered byMinisterHill in ameetingwiththeMissionteam)tomaintaincleartwo-thirds on theKakaduBoard ofManagement,thattwoadditionalAboriginal membersbeappointed ensureTerritoryAustralian Government thatifaNorthern representative Government isplaced representative ontheKakadu Board ofManagement.TheMissionfurtherrecommends thatthe negotiation before requiring Territory animmediateplaceforaNorthern Government The Missionrecommendsundertakeconsiderableadditional thattheAustralianGovernment RECOMMENDATION 10:THREAT TOTHECONTINUATION OFTHE 6.10 damage toWorld Heritageetc). Territory willensure Government thatanyminingissubjecttostrictenvironmental controls (egno andtheNorthern on theunderstandingthatminingwouldbedisallowed.TheAustralianGovernment (contrary tothewishesoftraditionalowners)ifareas are nominatedtotheWorld HeritageList related projects. ItisunclearwhethertheMissionwouldsuggestthatapprovals beoverridden The traditionalownersintheregion outsideKakaduNationalParkhavegiventheirconsenttomining regulated, canbecompatiblewiththeprotection ofWorld Heritagevalues. mining operationsadjacenttotheWorld Heritageproperty, aslongtheyare strictlycontrolled and environmental impactontheWorld Heritageproperty. supportstheGovernment’s Thisinturn viewthat Committee toclosetheRangerminebecausehasoperatedwithoutanysignificant hasnotbeenrequestedIt canbeconcludedthattheAustralianGovernment byWorld Heritage mine toceaseoperation.There wouldtherefore seemtobealogicalinconsistencyintheMission’s approach. to ceaseoperationofthatmine.Similarly, theMission’s report itselfhasnotmadearequest fortheRanger response totherequests oftraditional ownersanddirect negotiationswiththeMinister. consistency withotherWorld Heritageproperties significantotheralterationshavebeenmadein Parks willbereconsidered in relation tothesenegotiations.Intheinterests ofsoundpolicyand context oftheregion asawhole.Theproposed changestothestatusofDirector ofNational TerritoryNorthern representation wouldaddvaluetoeffective managementoftheParkin by traditionalownerswillbemaintainedasitisintegraltomaintainingthevaluesofPark. with theBoard ofManagementonthesecomplexandsignificantissues.The clearmajorityheld Since theMissionreport additionalnegotiationhasbeencarriedout,including atMinisteriallevel, “JOINT MANAGEMENT”REGIMEAT KAKADUNATIONAL PARK 93

CHAPTER 6 CHAPTER 6 94 Response toRecommendations completion oftheculturalheritage managementplan),ortoallowotherwiseunauthorised worksontheir Recognising thatMirrartraditional ownershavenotbeenwillingtodiscussrelevant issues(eg. consultations andnegotiationforthecontinuedoperationof theRangermine. the KakaduRegionSocialImpactStudy(KRSIS), Board ofManagementaswell consultation, participationanddecisionmakingonParkissues. ForumsincludedailyParkmanagement, most ofthe530Aboriginalresidents ofKakadu,manywhomhavebeenactivelyengagedinongoing However, itshouldnotbeassumedthatthere isanygeneralbreakdown intrustandconsultationwith construed asfacilitatingthemineorrelated activities. objections tothemine,andhavetherefore chosennottoparticipateinanyprocess thatmightbe focussing particularlyatthelocallevel.Thecurrent Jabilukatraditionalownershaverecently initiated ingredient inthe successofthePark,anddemonstrateAustralia’s clearcommitmenttoreconciliation, The relationsandtheAboriginalpeopleofKakaduare betweentheAustralianGovernment avital conservation oftheoutstandingheritagevaluesKakaduforfuture generations. with aninterest intheKakaduregion toengageinacross-cultural dialoguetoensure of theirlands.Furthermore theMissionurgesallindigenousandnon-indigenous stakeholders must continuetobearequirement whenconsideringanyissuesrelating tothemanagement in accordance withtheAboriginalLandRightsAct,proper consultationwithtraditionalowners was perceived by, andarticulatedto,theMissionberepaired. TheMissionisoftheopinionthat The Missionconsidersthatitisimperativethebreakdown intrust andcommunicationthat RECOMMENDATION 11:OVERALLBREAKDOWNINTRUSTAND 6.11 can beexpectedinanyhealthyongoingdialoguebetweenpartieswhojointlyentered intoanagreement. arrangements couldthreaten themanagementofaWorld Heritageproperty. Occasionaldisagreements Heritage property, iftheWorld Heritage Committee considered that‘anytensions’injointmanagement managingaWorld andtoanyGovernment totheAustralianGovernment, It wouldbeofconcern during theirformativestages. Officials alsoconsultedwithtraditionalownersandtheirrepresentatives aboutthelegislativereforms consult regularly withtraditionalownersthrough theKakaduBoard ofManagementandotherfora. and hasoutlinedaproposed negotiatingprocess forreaching resolution. TheDirector andhisstaff The MinisterfortheEnvironment andHeritagehasmetwiththeKakadutraditionalownersthree times affect on-ground managementorBoard powers. management ofthePark.Theproposed newadministrativearrangementsundertheEPBCBillwillnot willcontinuetorespectThe Government andabidebyitsleaseobligationstotraditionalownersinthe the Ministerhasindicatedthatheiswillingtoconsiderarangeofoptions. representatives havemadeproposals totheCommitteeconductingInquiryand,asmentionedabove, Inquiry’s outcomesinconsideringanyamendmentstotheBill.Traditional ownersandtheir hasreferredThe Government thenewEPBCBilltoaSenateInquiryandwilltakeintoaccount dialogue onconservationissues. communication, itremains committedtoconsultationonlandmanagement andcross-cultural doesnotacceptageneralbreakdownWhile theAustralianGovernment intrustand COMMUNICATION Response toRecommendations Committee shouldbereconsidered. presence ofERISSbemaintainedinJabiru andthatthequestionofmembershipAdvisory the SupervisingScientistGroup [nowtheScienceGroup], theMissionrecommends thatthe With reference totheneeddevelopstronger communitytrustof,andcommunicationwith, 6.12 RECOMMENDATION 12:INTERACTION WITHTHESCIENCEGROUP cultural lifeinthePark. and theBoard andwhichillustrateastrengthening oftheinvolvementAboriginal people andof Appendix 1outlinestherangeofculturalandotherprograms whichhavebeendevelopedbythePark at somefuture date. Inthemeantimetheirrightnottoparticipateisrespected. and seniorofficials, alsoremain opentotheJabilukatraditionalownersshouldtheyelectparticipate These avenues,aswelltheoptionofspecificpurposedirect discussions with theresponsible Minister theAboriginalAreas Protection Authority(Aboriginalcustodiansofsacred sitesare 10ofthe12 • asocialimpactmonitoringcommitteearisingfrom theDeedPoll betweenERAandtheNLC; • specificcommunityactiongroups tomonitorandreport onsocialissues(forexample,committees • liaisoncommitteesestablishedundertheRangerandJabilukaAgreements; • theDjabulukgu,GagudjuandGundjehmi(mining)RoyaltyAssociations; • LandCouncil(registered theNorthern traditionalownersare members,andtheyelecttheirChair • AlligatorRiversRegionAdvisoryCommittee; • theKakaduBoard ofManagement(whichwillcontinuetocomprise amajorityofBininj); • Government’s support,includingbylegislationinseveralcases.Examplesoftheseinclude: organisational structures withinoraffecting theKakaduregion havebeenestablishedwiththeAustralian region, iscontinuallyenhancednotdiminished.Arangeofindigenous basedcommitteesand management oftheKakaduregion, andparticularlyinrelation tothedevelopmentofminingin issupportingmechanisms toensureThe AustralianGovernment thatindigenousinvolvementinthe and theorganisationswithwhichtheydealare already inplace. and aswell,manyotherinitiativestoimprove thetrustandcommunicationbetweenAboriginalpeople It shouldbenotedthatofficers ofParksAustralia,ERISSandERAalready undergocross-cultural training traditional owners. reinforced bytheNLCrequesting theCommonwealthtodealdirectly withitandnotdirectly with (NLC) underALRAinrepresenting theinterests oftraditionalowners(seesections7.6and7.7).Thisis Jabiluka mine.Recommendation11doesnotrecognise theresponsibilitiesLandCouncil oftheNorthern with thedevelopmentandsigningof1982Agreement andthe1991transferofownership 1976 upholdstheprinciples inthe The AustralianGovernment haverespectedGovernment therightsoftraditionalownersandattemptedtofindworkablesolutions. lands thatrelate totheJabilukamine,eg.dustandvibrationmonitoring,officials oftheAustralian members). on housingandalcohol); and DeputyChairappointCommittees); (the Act).Proper consultationwithtraditionalownerswasexactlytheprocess whichwasfollowed Aboriginal LandRights(NorthernTerritory) Act 95

CHAPTER 6 CHAPTER 6 96 Response toRecommendations anumberofstaff haveparticipatedinshortcoursesthelocal(Aboriginal)Kunwinjkuand • completionbymoststaff atERISSofacross culturalcoursewithafocusoncross cultural • cooperatingwiththeNLCindeliveryofmining-related informationprograms; • regular direct reporting toAboriginalpeople,andtheirrepresentative organisationsaboutERISS • more regular information exchangewithlocalAboriginalpeople; • Practical outcomeshaveincluded: more involvementoflocalAboriginalpeopleintheplanningandconduct ofERISSprojects. • astronger senseofaccountabilitytotheAboriginalpeople,especially landowners,amongthestaff • more understandingoftheenvironmental protection issuesthatare importanttoAboriginalpeople • astronger relationship with localAboriginalpeople,andorganisations,basedon • more interactionandengagementwiththeAboriginalcommunity; • betterunderstandingbylocalAboriginalpeopleoftherole ofthestaff ofERISSandtheSupervising • The Aboriginalcommunicationsprogram aimstodevelop: Aboriginal peopleintheregion) todevelopandimplementanAboriginalcommunications program atERISS. In 1997theSupervisingScientistappointedaseniorofficer (withlongsuccessfulexperienceworkingwith Council (NLC)ratherthandevelopingitsowndirect relationship withlocalAboriginalpeople. where theSupervisingScientistcommunicatedwithtraditionalownersthroughLand theNorthern more attentiontoAboriginalknowledge.Historically, theSupervisingScientistaccepted anarrangement need forERISStobetterexplainresearch results tolocalAboriginalpeopleandaneedforERISSgive in theregion oftherole oftheEnvironmental Research Institute oftheSupervisingScientist(ERISS),a The KakaduRegionSocialImpactStudyfoundthatthere waslowawareness amongAboriginalpeople township ofJabirutotheNTU campusinDarwin(2.5hoursbyroad from Jabiru). that theEnvironmental Research InstituteoftheSupervising Scientist (ERISS)wouldberelocated from the Wetlands Research Territory (NCTWR)attheNorthern University(NTU) inDarwin.Itwasalsoannounced announcedthatitwouldestablisha National CentreIn August1998theGovernment forTropical Relocation ofERISS Gundjehmi languages. communications issues;and with theJabilukamine; research andworkprograms—this hasincludedreports onenvironmental research workassociated of theERISS;and in theAlligatorRiversRegion; confidence andtrustintheworkofERISS; Scientist; of Darwin. necessary toensure thattheyare locatedclosetotheuniversitiesandresearch facilitiesofthecity incremental growth atJabiru.To maintainacore ofqualityscientificexpertsintheregion, itis somewhat contradictorytoRecommendation3oftheMission’s report cautioningagainst willmaintaina presenceThe AustralianGovernment inJabirubutfindsthisrecommendation Response toRecommendations discuss theworkofSupervisingScientist. Scientist hasalsostartedtomeetmore regularly withtheKakaduBoard ofManagementtoreport onand such agroup andwhetherthere isanysupportfrom Aboriginalpeopleforthisinitiative.TheSupervising people intheregion. TheSupervisingScientistisinvestigatingthemostappropriate wayofestablishing separate Aboriginalconsultativecommitteetofocusonissuesofinterest andconcern Supervising Scientistandotherinterest groups itisrecognised thatthere maybeaneedtoestablish While theCommitteeremains themainfocusforformalexchangeof informationbetweenthe partofKakaduNationalPark. associations operatinginthenorthern result ofthatreview membership wasextendedtoincluderepresentatives ofthethree majorAboriginal and communitygroups. MembershipoftheCommitteewasmostrecently reviewed in1998andasa Territorycompanies, CommonwealthandNorthern authoritiesandAboriginal,environment Government (Alligator RiversRegion)Act1978 The AlligatorRiversRegionAdvisoryCommitteeisestablishedunderthe Committee Alligator RiversRegionAdvisory a core partoftheirduties)tomaintainstrong communicationslinkswithAboriginalpeopleintheregion. ERISS willmaintainafieldoffice andlaboratoryinJabiruwithfivestaff allofwhomwillberequired (as of theWorld Heritageproperty. opportunities willenhancetheabilitiesandfunctionsofERISSultimatelyimprove themanagement built facilities,betteraccessthescientificcommunityanddevelopcollaborativeresearch ventures. These a consequencebebetterabletoattractandretain furtherworldclassscientists,benefitfrom purpose meet itsresponsibilities. ERISSwillbelocatedclosetouniversityandresearch facilitiesinDarwinandas The relocation ofthemajorityERISSstaff toDarwinwillsignificantlyimprove thecapacityofERISSto as forumfortheexchangeofinformationbetweenmining Environment Protection 97 (Michael Preece) (Michael and Spinifex sandstone, Koongarra CHAPTER 6 CHAPTER 6 98 Response toRecommendations with objectivestoprotect theWorld HeritagevaluesofthePark. therefore maywishtoaskfor submissionofaplanthatdescribesthefuture ofthetowninline owners. TheWorld HeritageCommitteemaywishtobeappraised of thefuture ofJabiruand management of,andfuture planningfor, thetownofJabiruincooperationwith thetraditional Parks AustraliaNorthandtheBoard ofManagementplayagreater role inthepresent and infrastructure developmentatJabirushouldbestrictlycontrolled andrecommends that expansion ofJabiruwithWorld Heritageconservation.TheMission isoftheviewthaturban property, theMissionquestionedcompatibilityofincremental developmentand In notingthattheminingandtourismtownofJabiruislocatedwithinWorld Heritage RECOMMENDATION 14:THETOWNOFJABIRU 6.14 Heritage values. environmental law. willnotapprove TheAustralianGovernment aminethatwoulddamageWorld rigorous andtransparent environmental Territory assessmentunderbothAustralianandNorthern still contemplatedmininginthearea oftheoriginallease,project couldnotcommencewithouta Should thecurrent ownersfinaliseasatisfactoryAgreement sometimeinthefuture and/orifthecompany specified underthe1981KoongarraProject Area Act(refer Figure 9). The previous andcurrent owners havenotbeenabletoconcludethisprocess, particularlyforthearea mustalsoendorsesuchanAgreement.Government through thestatutoryAboriginalbody,concerned, LandCouncil.TheAustralian theNorthern company mustfirstnegotiateasatisfactorylegalagreement withthetraditionalownersofarea before itcancontemplatemininginthearea. UnderAustralianlaw, asthisisAboriginalLand,the This recommendation isbasedonamisunderstandingabouttheprocess thatthecompanymustundergo consent toincludetheKoongarraMineralLeaseinParkandtherefore preclude mining. National ParktoaccommodateamineatKoongarra)withthetraditionalownersandseektheir 1981 KoongarraProject Area Act(whichproposes amendmentoftheboundariesKakadu shoulddiscussrescindingThe MissionisoftheopinionthatAustralianGovernment RECOMMENDATION 13:THEKOONGARRAMINERALLEASE 6.13 World Heritage Committeeonthisissue. values are protected. iswillingtosupplyfurtherinformationthe TheAustralianGovernment mechanisms outlinedintheParkPlanofManagement order toensure thatWorld Heritage the foreseeable future. ActivitiesinJabiruare subjecttoarangeoflegalandadministrative was 3500.Thecurrent populationnowisapproximately 1480.Theceilingwillnotbereached in groups livingin thePark.Thepopulationceilingsetatinceptionandtimeofnomination industry, Parkvisitorsandtheminingindustryaswellbeingaservice centre forAboriginal closed townservicinguraniumminingtoathatprovides essentialservicestothetourism There isnoprocess ofincremental development andexpansion.Jabiruhasevolvedfrom beinga recommendation withtheAboriginalpartiesconcerned. hasraisedthescopeofthis This Recommendationissupportedinprinciple.TheGovernment

CHAPTER 6 100 Response toRecommendations the relocation ofEnvironmental Research InstituteoftheSupervisingScientist staff tothecapital cityof township. Thisisprimarilybecause theminingcompany, ERA,willusehousingwhichbevacated by During thedevelopmentofJabilukamine,there willbenosignificantincrease inthesize oftheJabiru Inquiry andhalfthatforwhichthetownplanprovides. requirements ofoperatingamineatJabiluka,isabout1700-lessthanhalfthatproposed bytheFox was estimatedat1480in1998andthemaximum future population,inresponse tothe on In 1998,whentheSenateStandingCommitteeonEnvironment, Recreation andtheArtstabled itsreport the NationalPark. this report, the town ofJabiruonlycoversanarea of13square kilometres, or0.07%ofthetotalarea of population levelwere designedtominimisepotentialimpactsontheNationalPark.Asnotedearlierin The limitedextentofJabirucompared tothesizeofKakaduNationalPark,andtown’s small has apopulationof100,000peoplelivingincommunitiesnear, butoutside,thePark. properties havesubstantialpopulationcentres neartheirboundaries.Forexample,Yosemite NationalPark sq kminsize(anarea approximately athird thesizeofKakakuNationalPark).OtherWorld Heritage town ofBanff alonehadapopulationof5,165,whilesituatedintheBanff NationalParkwhichis6,641 and Field,comprisingatotalresident populationof10,000people.According tothe1991census, World Heritageproperty (23,069 sqkm)hasfourtownswithinitsboundaries,Banff, Jasper, LakeLouise having tobalancedevelopmentswithinitsborders. Forexample,theCanadian RockyMountainParks Kakadu NationalParkisanexcellentlymanagedpark.ItnotaloneinWorld Heritageproperties in and onappropriate use,appreciation andenjoymentoftheParkbypublic. the proposed changeonthenaturalandculturalenvironment ofthePark,onBininj/Mungguyinterests, to thetownplan,Director requires anassessmentoftheexpectedpositiveandnegativeimpacts processes associatedwithapproval tochangesthetownplan.Forexample,before approving changes National Parksinaccordance withtheAct.ThefourthPlanofManagement makesclearthestringent Development inJabiruisadministered through atownplan,whichmustbeapproved bytheDirector of Jabiru hascontinueduptothepresent toprovide forAboriginalpeopleinthisway. The SenateStandingCommittee(1988)foundthat(p161,para14): World Heritageproperty (refer Figure 2). a radiusof150km,Jabiruhasbecomeanadministrativecentre forstaff managingtheParkand National Park.Becauseofitslocationandremoteness from othercentres, beingtheonlytownshipwithin Heritage valuesofthePark.Jabiruinfactplaysausefulrole intheeffective managementofKakadu The planningandgrowth ofJabiruisstrictlycontrolled anddoesnotpresent athreat totheWorld requirements oftheActandRegulations. and atownplanwhichmustbeprepared andapproved bytheDirector inaccordance withthe Act1975 Conservation The Authorityisrequired tomanagethelandinaccordance withthe totheJabiruTownJabiru isleasedbytheDirector ofNationalParksandWildlife DevelopmentAuthority. township establishedunderalegalframeworkwhichprotects thevaluesofPark. World HeritagevaluesofKakaduNationalPark.Jabiru,whichformspartthePark,isaplanned The nature anddevelopmentofJabiruisstrictlycontrolled sothatitdoesnotadverselyimpactonthe The PotentialoftheKakaduNationalParkRegion essential services”. also offers abaseforotherAborigineswhowishtoliveinthePark and isalocationfor “Jabiru offers aconvenientlivingbaseforthoseAboriginesemployedby RangerorANPWS.It , the National Parks and Wildlife Regulations,theKakaduPlanofManagement, , theNationalParksandWildlife , thepopulationofJabiruwas1200.The National Parks&Wildlife Response toRecommendations The Missionrecommends thatforboth RECOMMENDATION 15:INTRODUCEDWEEDS 6.15 be builtifrequired. Darwin. Additionally, Jabiruhasanumberofvacanthousingsitesonwhichfurtheraccommodationmay township, andminingoperators. habitat managementandisbeingimplementedincooperationwithindigenouscommunities,theJabiru reviewed duringthelifeofmanagementplan.Thestrategyisbased on theprincipleofintegrated theapprovalowners, Parkstaff oftheBoard, andweedexperts.With thisstrategywillbefollowedand A weedmanagementstrategywasdevelopedthrough extensiveconsultation withAboriginaltraditional the Parkifnotcontrolled. Park PlanofManagement.Theseweedsposeasignificantthreat toboth natural andculturalvaluesof The control of the budgetarydetrimentofotherParkmanagementandprotection priorities. (separate from generalmanagementfunds)shouldbeidentifiedandguaranteed,butnotto Australian Government onthesethreats.Australian Government Committee commendedKakaduNationalParkonthesignificantextrastepsbeingtakenby Australian Parliament,documentsthatthisworkisbeingcarriedout.TheWorld Heritage budget andaccording tomanagementpriorities.ThenewPlanofManagement,tabledinthe determined byParksAustraliaandtheKakaduBoard ofManagementasparttheannualPark recognisesThe AustralianGovernment thatfundingforspecificweedandpestissuesare Mimosa pigra and Salvinia molesta Mimosa pigra are recognised asapriorityunder theKakaduNational and Salvinia molesta , adequatefunds 101 ( Mimosa pigra Protecting Preece) Kakadu: Michael spraying CHAPTER 6 CHAPTER 6 102 Response toRecommendations protected thevaluesofWorld Heritageproperty. Australia’s legal,policyandprogramframework andthewaysinwhichAustraliahasmanaged Australia’s orflawedevidence,payinsufficient regardto policyposition,basedoncontradictory relating totheJabilukamineprocesscannotbeaccommodated. Theyareeitherinconsistentwith Australia’s policyposition,actionhasbeen taken.Aminorityofrecommendations,especiallythese Kakadu NationalPark.Thisadvicehasbeengivencareful considerationandwhereconsistentwith major drivingforce.TheUNESCOmissionhasprovidedadvice onabroadrangeofissuesrelatingto Always, theobligationtoprotectWorld considerationandthe Heritagevalueshasbeentheprimary framework oflaw, policy, programandmanagementarrangementsforitsWorld Heritageproperties. The AustralianGovernmenthas,sincebecomingamember oftheConvention,establishedanextensive CONCLUSION vertebrates toassesstheshortandlongtermimpactsofcanetoadsonnativespecies. detection ofcanetoads.TheParkwillalsodevelopandundertakeamonitoringprogram targetingnative aneffective andviablecontrolWithout measure, efforts are nowfocussed onimproving theearly control measure. controls forthecanetoad.Despitethisfunding,thesestudiesfailedtodiscover anyviableandeffective invested$3.3millionbetween1990and1995onresearchThe AustralianGovernment onbiological clear consensusthatcanetoadsposeasignificantthreat tobiodiversity. within thenextdecade(KakaduBoard ofManagement&ParksAustralia 1998).However, there isno The PlanofManagementforKakaduNationalParkrecognises thatcane toads mayarriveinthePark to prevent suchathreat. research thepotentialthreat ofcanetoadstoKakaduNationalParkanddevelopmeasures The Missionrecommends thatadditionalnecessaryfundsandresources beprovided to RECOMMENDATION 16:CANETOADS 6.16 these programs. Threats totheParkfrom introduced specieshaveinfactdeclinedsignificantlysincelisting,becauseof weed intheParkandremarkable successachieved.Thishighlevelofstandard willbemaintained. confirmed intheMission’s commentsonhowimpressed theywere bytheefforts tocontrol outbreaks of Heritage CommitteecomplimentedtheParkmanagersonstandard ofmanagement.Thiswas Weed managementwithintheParkisrecognised asbestpractice.AtthetimeoflistingWorld the ParkwillbecarriedoutbyParksAustraliaduringnextfiveyears. This fundingprovides resources forweedcontrol, monitoring, research andeducation.Aweedsurveyof The Parkdevotessome$700,000peryearonthecontrol ofinvasivespeciessuchasmimosaandsalvinia. little success. extensive scientificresearch resources tocurboreliminatethisimportedthreatening pestwith according haspreviously tomanagementpriorities.TheAustralianGovernment allocated by ParksAustraliaandtheKakaduBoard ofManagementasparttheannual Parkbudgetand notesthatfundingforspecificweedandpestissuesareThe AustralianGovernment determined CHAPTER 7

List of World Heritage in Danger: Criteria and Benchmarks

7.1 The World Heritage System 7.2 Criteria for Placing a Property on the World Heritage in Danger List 7.3 Benchmarks 7.4 Kakadu: Integrity and Protection 7.5 Analysis of Mission Findings Relating to Ascertained and Potential Threats 7.6 Delineation of the World Heritage Boundary—History and Reasoning 7.7 The Burden of Proof in Considering a World Heritage in Danger Listing 7.8 Consistency and Equity Issues Conclusions

103

List ofWorld HeritageinDanger:CriteriaandBenchmarks Convention andtheConvention’s a World Heritage Property ontheListofWorld HeritageinDangerare containedintheWorld Heritage major operationsare necessaryandforwhichassistancehasbeenrequested.” Considerations forplacing Article 11.4oftheConventionestablishesalistinscribed properties, “fortheconservationofwhich precautionary principletoproceed inthisway, asmostWorld Heritageproperties wouldprobably belisted. sufficient tojustifylistingbytheCommittee.Itwouldbeanimpractical andinappropriate useofthe In DangerListingmustnotbetakenlightly. Amere possibilityofanimpactonWorld Heritagevaluesisnot ONTHEWORLDHERITAGE CRITERIAFORPLACINGAPROPERTY IN 7.2 under theConvention. Committee toimplementeffective domesticmanagementarrangements thatmeettheirobligations decisions andactions.StatesPartyrely ontheconsistencyandreliability ofdecisionstheBureau and evidence andshoulddrawonthebodyofknowledgeprecedent developed through previous of World HeritageortheListofWorld HeritageinDanger, mustbemadeonthebasisofrobust, objective investment decisionsinareas adjacenttoorwithintheproperty. Decisionsonlisting,whethertheList in thetermswhichitisinscribed.Thedecisionmaywellformbasisforlongtermandsubstantial the nomination.SuchadecisioncommitsCommitteetorespect theintegrity oftheproperty overtime endorsement ofthevalues,boundariesandrelated circumstances oftheproperty astheyare detailedin A decisionbytheCommitteetoinscribeanominatedproperty onthe World HeritageListisan States Party. created withinthissystemmustbeinformed,consistentandcertaintomaintain theconfidenceofall system created bytheWorldbodies HeritageConvention.Thepracticesanddecisionsoftheinternational cultural andeconomicaspirations.To makesuchacommitment,StatePartymustbeconfidentinthe substantial commitmentofresources, bothphysicalandfinancial,thatmustbebalancedwithitssocial, THEWORLDHERITAGEA StateParty’s SYSTEM decisiontonominateaproperty forinclusionontheWorld HeritageListrequires a 7.1 isalsoincludedintheannotatedMissionreport. oneachrecommendation information Further andconsiderstheirapplicabilityagainstthesebenchmarks. citedbytheMissionreport threats ontheListofWorld HeritageinDanger.placing aproperty the form, Itexamines,insummary practice,itderivescriteriaandbenchmarksfor totheConvention.Byexaminingrecent Party ofStates thesovereignty torespect inorder consistentandcertain tobeinformed, and Bureau This ChapterexaminestheneedforpracticesanddecisionsofWorld HeritageCommittee CHAPTER SEVEN:THELISTOFWORLDHERITAGE INDANGER—CRITERIAANDBENCHMARKS according totheintensityofitseffects andanalysedcaseby case”.Sincethe Guidelines such scaleandlikelihoodofoccurrence that they are asignificant threat to thevalues.The It isnecessarynotonlytoestablishthatascertainedorpotential dangersexist,butalsothattheyare of ‘potential’ (threats whichcouldhavedeleteriouseffects onitsinherent characteristics). to thevaluesofaProperty. Dangerscanbe‘ascertained’(ie,specificandproven imminentdanger) or results from deteriorationneedingremedial conservation action,orfrom a“seriousandspecific”danger, the valuesforwhichProperty wasoriginallyinscribedontheWorld HeritageList. Broadly, listing the meansbywhichassistanceisprovided todealwithnaturalorhuman-madeconditionswhichthreaten DANGER LIST at paragraph85(b)indicate that“physicalorculturaldeteriorations...shouldbejudged Operational Guidelines (paragraphs 76–89).Thelistisintendedtobe Operational Guidelines Operational 105 do CHAPTER 7 CHAPTER 7 106 List ofWorld HeritageinDanger:CriteriaandBenchmarks clearlyascertainedandsubstantialthreats tothevaluesof World Heritagearea; • in termsoftheintensitythreatTheproperties concerned. have: Since thechangesto be recognised. Guidelines be inscribedontheInDangerListwithoutarequestThe bytheStateParty concerned. made in1992.Inthatyear, theCommittee(Australiawasnotamemberattime)decidedsitescould benchmarks forWorld HeritageCommitteepracticesincechangestothe Leaving asidetheissueofrequest andconsentoftheterritorialState, theselistingsprovide the would therefore beinconsistentwiththeConvention’s ownrequirements. National Parkare notthreatened. AustraliabelievesadecisiontolistKakaduNationalParkas‘InDanger’ inclusion ofKakaduNationalParkonthe‘InDanger’listbecauseWorld HeritagevaluesofKakadu request andconsentoftheStateParty. Australiahasnotrequested, norhasitgivenconsenttothe The World HeritageConventionprovides forlistingofaproperty onthe‘InDanger’listonlywith BENCHMARKS A fulllistingofproperties placedontheListofWorld HeritageinDangerisatAppendix3. 7.3 in practiceprovide defactobenchmarks. process andreports forproperties explicitguidelines,theprecedents already established listed.Without how theWorld HeritageCommitteehaspreviously determinedthesetermsinpracticebyreferring tothe not specifyhowthesemattersofscaleandprobability are tobedetermined,itisnecessaryexamine could leadtoaproperty beingplacedontheInDangerlist. consistent overtimeinrelation toaproperty inthejudgmentsitmakesaboutmatterssoserious thatthey In short,theCommitteeneedstobeconsistentinstandards itappliestodifferent properties, and hasreported onthosestrategiesindetailtotheWorld HeritageCommittee. • haseffective legislativeandmanagementstrategiesinplace; • candemonstratethatvaluesare notendangered; • It isnoteworthythatthere isnoproperty ontheListofWorld HeritageinDangerwhere theStateParty: problems supportforsolutions. andgarner Alternatively, somestateshaverequested listinginorder toeithergainresources ortofocusattentionon States havenotresponded torepeated requests foradvicefrom theWorld HeritageCommitteeorBureau. reasons suchascivilunrest or war, hasbeen unabletocopewiththerequirements ofthesituation.Many abatement strategieshasbeenseverely constrainedbyalackofresources orwhere theStateparty, for Most properties havebeenlocatedinareas where theprovision ofadequatemanagementandthreat mining, hurricane,ecologicalcollapseanduncontrolled pollution. as war, armedunrest, earthquake,continuingpoaching,unplannedroad construction,uncontrolled The dangersfacedbytheseproperties havebeenseriousandspecific.They havesuffered impactssuch – – either or have beenthesubjectofarequest bytheStatePartyforsupportproperty. are, however, secondarytotheConventionandtheircorrect role andsphere ofoperationmust an apparent inabilityoftheStatePartytomanagethreats andremedy theproblem; Operational Guidelines in 1992,listingshavehadahighdegree ofconsistency Operational Guidelines and Operational were List of World Heritage in Danger: Criteria and Benchmarks CHAPTER 7

Mt Brockman in the wet season 7.4 KAKADU: INTEGRITY AND PROTECTION (Michael Preece) In order to ascertain whether Kakadu National Park meets the threshold for listing as World Heritage in Danger, the Australian Government has carefully examined the Mission report to ascertain: • What threats it specifically identified. • The objective evidence for each of these threats. • The increment of threats and any increase in their severity since its most recent World Heritage listing in 1992. • What remedial action might be required to minimise or eliminate the threats identified by the Mission. In the following section of this report, the threats cited by the Mission are summarised followed by a discussion of the evidence to support each threat and an analysis of the degree of change in the level of threat since 1992.

107 CHAPTER 7 the wayforconstructionofatleastonenewmine(ie,Jabiluka). sequential developmentofmines.Thischangewillhaveaprofoundeffectonvaluesasithasopened forthe operation atonetimeandthatthisisincontrasttotherecommendationsofFoxInquiry 108 List ofWorld HeritageinDanger:CriteriaandBenchmarks • The Australian Government willcontinuetoopenlyreport TheAustralianGovernment onthisissue. • hasensured TheAustralianGovernment andwill continuetoensure thatenvironmental impact • Mitigation: Theimpactofthenowproposed JabilukaminewillbemuchlessthanRangerand • There hasbeennoincrease inthreats toKakadu,incremental orotherwise,as aresult ofthispolicy threat: • of level the in Changes By1982,Pancontinental’s proposal todevelopJabilukahadcompletedenvironmental approvals • TheFoxInquiryfurtherreferred tothe(significantlylarger)Pancontinentalproposal anddiscussedit • ThustheoperationofJabilukaisnotinconflictwithFoxReport. • TheSecondFoxReport(1977)stated(p223): • Evidence: The Findings: Mission’s minespolicy’ Changestothe‘three 7.5.1 ANALYSIS OFMISSIONFINDINGSRELATING TOASCERTAINED 7.5 place toeliminateanythreat tothevaluesofPark. assessment processes, scientificmonitoringandworldclassparkmanagementstrategiesare in values inareas never includedintheWorld Heritageproperty hasdiminishedsincethePark’s listing. originally envisagedbytheFoxInquiry. To thisextent,anythreat from miningonWorld Heritage possibility thatminingdevelopmentcouldproceed (seenominationdocuments1980,1986&1991). were notincludedinthenominatedproperty andtheWorld HeritageCommitteewasalertedtothe change. TheWorld Heritagenominationdocumentsmadeitclearthatthethree mineleaseareas ‘three minespolicy’,Jabilukadidnotproceed. inMarch thechangeinGovernment 1983,andinstitutionof under theEPIPAct.With The Mission’s report doesnotrecognise this. in termsofthemineproceeding inthenearfuture, oncethenecessaryapprovals hadbeengiven. and (opcitp335): Region west of the Arnhem LandReserve,forthetimebeingatleast.’ Region westoftheArnhem exception ofthatproposed byPancontinental[ieJabiluka],beallowedinthe [AlligatorRivers] ‘That iftheRangerproposal isallowedtoproceed, noothermining,withthepossible Mine [Jabiluka]gettingintoproduction duringthelifeofRangermine.’ people associatedwiththeRangerminebutitallowsforpossibilityofPancontinental the smallerbetter. Thisisamuchlargernumberthanwillbenecessarytoaccommodate ‘We recommend strongly thatthenumberofpeopleintown[Jabiru]notexceed3500;but AND POTENTIALTHREATS That changestothe‘threeminespolicy’allowsfortwouraniumbein company duringtheEISprocessmayhaveledtopossibilityofadiminutioninenvironmentalcontrols. Minister fortheEnvironment’s recommendationsonsafeguardsintorequirementsmadeofthemining preferred environmentaloption,ERAiscurrentlyintendingto installamillatJabiluka. Jabiluka areabutthatthishasbeenopposedbytheseniortraditionalowner. Despitenotbeingthe Milling Alternative(RMA).ThemissionrecognisesthattheRMAwouldhavelessdirectimpacton the oreproposedtobeextractedfromJabiluka-MillingAlternative(JMA)andRanger List ofWorld HeritageinDanger:CriteriaandBenchmarks WhileboththeRMAandJMAhavereceived environmental clearance,subjecttocompliance with • hasassessedbothmillingoptions,andtheycomplywiththeGovernment’s TheGovernment • Nofinaldecisionhasbeentakenonwhichmilling optionwillproceed. • Evidence: The Finding: Mission’s TheJabilukaandRangerMilling Alternatives 7.5.3 willcontinuetoopenlyreport TheAustralianGovernment onthisissue. • hasensured TheAustralianGovernment andwillcontinuetoensure thatenvironmental impact • Mitigation: There isnochangeinthelevelofthreat toWorld Heritagevaluesasaresult ofthisprocess. Infact, • threat: of level in Changes Thetranslationofrecommendations intorequirements provided therecommendations ofthe • TheMission’s report didnotanalysethemore than70environmental requirements, raisednoissues • Evidence: The Findings: Mission’s forJabiluka ImpactAssessmentprocess oftheEnvironmental Nature 7.5.2 consistent withthetraditional ownersconsentinthe1982Agreement. been givenbythetraditionalowners anditispossiblethattheJMAwillbeprogressed. TheJMAis economics andlogistics.ERAunderstands thatconsentforthedevelopmentofRMA has not consider theRMAtobeasuperior proposal in termsofenvironmental considerations,project Territory theNorthern over 70conditions,theAustralianGovernment, andERA Government threaten thenatural valuesoftheWorld Heritageproperty. decision thatalltailingsfrom theJabilukaminingproposal bestored underground anddonot assessment processes are ofa standard thatwilleliminateanythreat tothevaluesofPark. World Heritagevaluesforover20years. those whichappliedtothedevelopmentofRangerandhavesuccessfullyprotected Kakadu’s the environmental safeguards and thescrutinyoftheirimplementationare more stringentthan the mine. to therecommendations. Inthissense,therequirements assumea‘force inlaw’theregulation of Territory statutoryandadministrativeregimes andtheuseoftheseregimes togivepracticaleffect processes. Changesinwording relate totherecognition ofexisting CommonwealthandNorthern Minister fortheEnvironment withstatutoryforce inrelation totheGovernment’s statutoryapproval about theiradequacyandgivesnoindicationofanyperceived shortfallsoromissions. The Missionnotedthatthegovernmenthasassessedtwooptionsformillingof The Missionnotedthat“somestakeholders”felttheprocessoftranslating 109

CHAPTER 7 CHAPTER 7 close proximityto,andupstreamfrom,aWorld Heritageproperty. significant surfaceworksandfacilitiesthecompatibilityofuraniumminingmillinginsuch 110 List ofWorld HeritageinDanger:CriteriaandBenchmarks There are severalnotableexamplesofminingactivitiesoccurringwithinandadjacent toWorld • Theseparatereport from theSupervisingScientistonMission’s findingshasconcludedthat: • Thepreferred Jabilukadevelopment willoccupylessthan1.3sqkmofthesurfacearea, significantly • ItdoesnotgiveweighttotheimportantfactthatnearbyRangeruraniumminehasbeenin • TheMission’s report provides noevidenceforalackofcompatibilitybetweenWorld Heritagelisting • Evidence: The Finding: Mission’s oftheJabilukauraniummine Construction 7.5.4 willcontinuetorespect TheAustralianGovernment thelegalrightsoftraditionalownersto • willcontinuetoopenlyreport TheAustralianGovernment onprogress. • asmillingoptions are TheAustralianGovernment, furtherconsidered, willensure there isnothreat • Mitigation There isnochangeinthelevelofthreat toWorld Heritagevaluesasaresult ofthisprocess. threat: • of level the in Changes TheMissionimpliesthattheRMAoptionispreferred forenvironmental reasons, regardless ofthe • Heritage properties internationally. Jabiluka.” (ExecutiveSummary) values ofKakaduNationalParkare indangerasaresult oftheproposal tomineuraniumat justification foradecisionbytheWorld HeritageCommitteethatthenaturalWorld Heritage certainty thatappliestothisassessmentisveryhigh.There wouldappear, therefore, tobeno not threatened bythedevelopmentofJabilukauraniummineanddegree ofscientific proposal. in 1982wouldhavebeenoverfortytimeslargersurfaceworksthanthepresent preferred less thanthe7.1sqkmoccupiedbyRangermine.TheoriginalJabilukamineproposal approved reported adverseeffect onorthreats toWorld Heritagevalues. World HeritageList,withthefullknowledgeofWorld HeritageCommitteeandwithno continuous operationthroughout theperiodthatKakaduNationalParkhas beeninscribedonthe and mininginareas adjacentto,butnotwithin,theWorld Heritageproperty. control variousaspectsoftheminedevelopment,includingtheirchoiceson theRMA/JMAoptions. to thevaluesofPark. Heritage values. Both optionshavebeenextensivelyassessedtoensure thatthere isnodamagetotheWorld made bytheMission. wishes oftraditionalowners.Thisisinconflictwithotherthreats identifiedandrecommendations “contrary totheviewsexpressed bytheMission,naturalvaluesofKakaduNationalParkare The Missionseriouslyquestionedthefactthatundergroundminerequires List ofWorld HeritageinDanger:CriteriaandBenchmarks Taking intoaccount the20yearsofsafeoperationRangermine,andevenmore rigorous threat: • of level the in Changes Theseparatereport from theSupervisingScientistonMission’s findingshasconcludedthatthe • hasundertakenacomprehensive TheAustralianGovernment andthorough independentscientific • Riskassessmentswere completedaspartoftheAustralianGovernment’s environmental impact • Thedetailedevidenceprovided intheAustralianGovernment’s submissiontotheMissionon • TheviewsoftheSupervisingScientistonprecise proposals intheEISandPER,supportedby • Evidence: The some scientists,andsuggestedthatformalriskassessmentprocesses hadnot beenundertaken. the possibleimpactsoncatchmentecosystems.TheMissionmadegeneralreferences of totheconcerns the effectiveness oftheconcrete pastingprocess asameansofstoringthetailingsinminevoid,and(iii) release ofwaterfrom theminesiteintoSwiftCreek system;(ii)thedegree ofuncertaintyconcerning out indesigningthewatermanagementplanforminesiteandimplicationthatthismayleadto potential danger:(i)thedegreequalityofhydrological ofuncertaintyconcerning modellingcarried Mission’s Finding andtheneedforriskassessment Scientificuncertainties 7.5.5 willcontinue toopenlyreport TheAustralianGovernment onprogress. • Mitigation: ThesafeoperationoftheRangerminefor20yearsandextrasafeguards putinplaceforthe • threat: of level in Changes mining sincetheinceptionofPark. review oftheproposed Jabilukamine,itcannotbearguedthatthere isanyincrease inthreat from uranium mineandthatthedegree ofscientificcertaintythatappliestothisassessmentisveryhigh. natural valuesofKakaduNationalParkare notthreatened bythedevelopmentofJabiluka project planning. demonstrated inthescientificreview thatanynecessarymodificationscan bemadein review ofallallegedthreats to theParkarisingfrom technicalproposals forminingandhas transport, haulageandspillageare describedinboththeEISandPER. parameters. Theyincludedformalriskassessmentsforhydrological impacts, watermanagement, assessment techniqueiseffective andcanbeusedtodeterminesuchfactors asengineeringdesign assessment process andwere undertaken forthosecomponentsoftheproject where therisk scientific issueswasnotassessedorquestionedinthereport. scientists whohaveraisedissuesofuncertainty. nearly 20yearsofmultidisciplinaryfieldresearch intheregion, donotaccord withthoseofthe threat from uraniumminingsince1992. much smalleradjacentJabilukamineindicatethatthere hasbeennosignificantincrease inthe : TheMissionidentifiedthree issuesofscientificuncertaintythatleadtoafinding 111

CHAPTER 7 CHAPTER 7 of theOperationalGuidelines. deterioration ofthe“naturalbeautyorscientificvalueproperty”assetoutinParagraph79(i)(b) ascertained dangerforthenaturalWorld HeritagevaluesofKakaduinthatitconstitutesa the integrityofKakaduNationalParkcannotbedisputed.TheMissionfoundthatthisconstitutesan Jabiluka isadistinctandsignificantadditionalintrusionthatthevividvisualofJabiruon of thewetlandsandadjacentescarpment.Themissionthereforefoundthatvisualimpact Heritage property, themissionfoundthatlocationofminesite,diminishesnaturalbeauty 112 List ofWorld HeritageinDanger:CriteriaandBenchmarks • The Australian Government willcontinuetoopenlyreport TheAustralianGovernment onthisissue. • Theminimalgrowth ofJabiruwillbecloselymonitored andmanaged. • hasensured TheAustralianGovernment andwill continuetoensure thattheJabilukaproject will • Mitigation: Theextensionofthethreat tovisualintegritysinceinscriptionisminimal.TheWorld Heritage • threat: of level in Changes SeealsoSection7.5.16. • JabiruisaverysmalltowninParkthesizeofWales. Muchlargertownsare foundinother, • Scenicflights,whichoperatefrom JabiruAirfieldontheRangerlease, generally donotflyoverthe • Ifadevelopmentwhichisonlyvisiblefrom theairisusedasabenchmark forapotentialWorld • AswasacknowledgedbytheMission,Jabilukaminecannotbeseenfrom anypointinthe • Evidence: The Findings: Mission’s impact Visual 7.5.6 willcontinue toopenlyreport TheAustralianGovernment onprogress. • willensure TheAustralianGovernment thattheresults ofthecomprehensive andthorough • Mitigation: not bevisiblefrom theWorld Heritageproperty. three occasions thattheParkwaslisted. Committee acceptedboththeexclusionofminingleases andtheexistenceofJabiruonall smaller, naturalWorld Heritageproperties. view oftheRangerProject Area whichoccursattakeoff andlanding. Jabiluka project area. Anyview oftheJabilukaproject area wouldbeveryminorcompared tothe Heritage properties. Heritage inDangerlistingthenthiscouldhavemajorimplicationsforthemanagementofallWorld World Heritageproperty. there are nothreats tothenaturalvaluesofParkarisingfrom miningoperations. independent scientificreview ofissuesscientificuncertaintyare incorporatedasnecessarysothat While recognisingthattheJabilukaleaseisnotlegallywithinParkandWorld the EnvironmentalImpactAssessmentprocess. performedaspartof there hasbeennorecentcomprehensivearchaeologicalandanthropologicalsurvey Australian HeritageCommission,or(4)theboundariesofWorld Heritagearea.Theyalsoclaimedthat Lease, (2)themineconstructionsite,(3)boundariesofareasidentifiedassignificantby were notfullyconsideredinthecourseofestablishing(1)originalboundariesJabilukaMineral In theviewofMission,existenceareasparticularspiritualsignificancetoAboriginalpeople potential toimpactontheculturalvaluesofadjoiningWorld Heritageproperty. II) ispotentiallyunderdirectthreatfromtheproximityandscaleofmineconstruction.Thishas particular oftheAustralianHeritageCommissionareasincludingJabilukaOutlierandMalakananja List ofWorld HeritageinDanger:CriteriaandBenchmarks • The Australian Government willcontinuetoopenlyreport TheAustralianGovernment onprogress. • hasensured TheAustralianGovernment andwill continuetoensure thattheJabilukaproject does • Mitigation: ThedelineationoftheboundariesKakaduNational Parkandthemanagementofboth • threat: of level in Changes Thecurrent traditionalownershaveindicatedthattheyare atpresent unabletoparticipateinany • Comprehensive anthropological informationondreaming sitesandtrailsareas ofspiritual • Australiahascomprehensive legislation,bothattheFederaland StateandTerritory level,toprotect • TheMissiondidnotreport ontherangeofmeasures designedtoensure thattheculturalvaluesof • Noargumentisadvancedastowhatthedirect threats toculturalvaluesare ontheJabilukalease • Evidence: The Findings: Mission’s DangerstotheculturalvaluesofJabilukaMineralLease 7.5.7 recommendations oftheMission. not impactontheculturalvaluesofWorld Heritageproperty andisimplementingthe no damagetotheculturalvaluesofWorld Heritageproperty. natural andculturalvalues.Furtherstrategiesforsiteprotection andsurveyswillensure that there is and culturalsitesontheleaseareas, havetakenintoaccountcurrent, agreed informationon traditional ownerssuppliednoinformationontheseissuestotheEISprocess. anthropological orarchaeological surveysundertakenaspartoftheassessmentprocess. The matters notedintheMission’s report. participation oftraditionalowners,hasbeentakenintoaccountbydecisionmakersforeachthe significance, derivedfrom anthropological workextendingovermanyyearsandinvolvingthefull developed toprotect culturalheritagevaluesaspartoftheenvironmental assessmentprocess. cultural heritagevaluesincludingAboriginalsacred sites.TheMissiondidnot report onmeasures previous surveysinorder toprotect culturalheritagevalues. archaeological oranthropological sitesofsignificancelocatedandrecorded duringthecourseof not beharmedbymining.Themineandassociatedfacilitieshavebeensitedtoavoidany SitesComplex,would the JabilukaMineralLease,includingthoseofDjawumbu-Madjawarna or, byextension,howtheywillimpactontheWorld Heritageproperty. The MissionclaimedthattheculturalintegrityofJabilukaMineralLease(andin 113

CHAPTER 7 CHAPTER 7 as understandable. underground proximitytotheBoiweksite,suchuncertaintyandconcernwasregardedbyMission indigenous religious/spirituallandscape.GiventhescaleanddepthofJabilukaminedecline,its father oftheseniorspokespersonaboutpotentiallydestructiveimpactsRangermineon mine ontheBoiwekdreamingsite.TheMissionclaimedthatthisfearmirrorsconcernsoflate spokesperson werefundamentallyfearfulofthepossibledestructiveimpactJabilukauranium was notreferredtospecifically. ItnotedthatsomeMirrarpeople,andinparticulartheirsenior imbued wasusedinthejustificationofWorld Heritagenominationandinscription,theBoiweksite 114 List ofWorld HeritageinDanger:CriteriaandBenchmarks Claimsthattheextentof the ore bodyisnowtheunderstooddefinitionofsacred siteare • Traditional ownershaveindicatedthattheyare unableatpresent toworkwiththemine’s ownersor • Underthebaseagreement there isclearprovision fortheidentificationofadditionalormore • The1982 Agreement, negotiatedunderrelevant legislationprotecting therightsofAboriginalpeople • ExhaustiveculturalmappingofthesiteBoiwek,includinganyknownassociationswhich • TheMissionrelied forevidenceonthisissuetheadviceandcurrent viewsputbythecurrent • TheBoiweksiteisnotwithintheWorld Heritageproperty. • SeealsoSection5.6. • Evidence: The Findings: Mission’s understands thatitwasintendedtorefer topossibledamagethesitethrough miningdevelopments.) (Note: Themissionreport isunclearinlistingthisspecificsiteasathreat. TheAustralianGovernment site TheBoiwekDjang(GeckoDreaming) 7.5.8 discussed inChapterFiveofthis report. tofacilitateprocesses toavoidany possible impactstothesite. the AustralianGovernment was adequate. that timetheyacceptedtheprotection ofBoiwek,pursuanttothebaseAgreement, toallowthemineproceed,1991, thetraditionalownerslobbiedgovernment indicatingat from Pancontinental MiningtoERAwasnegotiatedin1991,nosuchproposals were made.In extensive sites.Overthefirst17yearsofAgreement, includingwhenthetransferoflease consistent withthe1982Agreement andpreviously availabledocumentedanthropological evidence. willing partytothatagreement. Recentclaimsrelating totheextentofBoiweksiteare not damage from theconstructionofmine.Thelatefatherseniortraditional ownerwasa to theirland,includesmeasures toprotect sacred siteswithintheJabilukaMineralLeasefrom any relevant requirements forregistration asasacred siteundertheAAPA’s Act. meeting, basedontheresults ofthemappingwork,thatsiteBoiwek didnotsatisfythe Territory.Northern Thereporting includedanaccountofthedecisionAuthority’s 36th the AAPA whocomprehensively reported onthisproject totheMissionduringitstimein property, hadinfactbeencompletedatthetimeofMission’s visit.Theworkwascarriedoutby the sitehaswithinbothJabilukaMineralLeaseandKakaduNationalParkWorld Heritage the sitewere notconsidered. view oftheMirrar, butitseemsthattheviewsofothertraditionalownerswithcustodialrightsover agreestraditional ownersoftheMirarrestate.TheAustralianGovernment thatthisiscurrent The MissionnotedthatwhilethefactlandscapeofKakaduisspiritually Study (KRSIS)completedinJuly1997. and residentpopulationgrowthhavebeenthoroughlydocumentedintheKakaduRegionSocialImpact and 1992.ThenatureofincursionsintotheKakaduareawhichincludemining,tourism,urbanisation Kakadu haveincreasedsinceitsinscriptionontheWorld HeritageListinthreestages1981,1987 and economicdistresses.Themissionisoftheopinionthatthreatstolivingculturaltraditions traditions arebeingdirectlyandindirectlyimpactedbyminingactivityatJabilukaothersocial which KakaduNationalParkwaslisted,aredemonstrablyunderthreat.Itclaimsthattheliving relationships totheland.Itstatesthatthisability, andthereforethelivingculturalheritagevaluesfor criterion (vi)dependsontheabilityofaffectedAboriginalcommunitiestocontinuetheirtraditional recognised bytheinclusionofKakaduNationalParkonWorld HeritageListonthebasisofcultural List ofWorld HeritageinDanger:CriteriaandBenchmarks • The Australian Government hasgivenhighprioritytothesupportofcooperativeinitiativesfor TheAustralianGovernment • TheAboriginalpopulationoftheParksinceinscription hasrisenfrom about140to530 • understandsthattheviewexpressed TheAustralianGovernment intheMission’s report isnot • Evidence: The Findings: Mission’s tothelivingculturalheritageofKakadu Threats 7.5.9 willcontinue toopenlyreport TheAustralianGovernment onprogress. • TheStatePartyhasindicateditswillingnesstoworkwiththetraditionalownersandproponent • Mitigation: TheWorld HeritageCommitteeacceptedtheboundariesofWorld Heritageproperty, withthe • Noverifiableevidenceispresented bytheMissionofanydirect ascertainedorpotentialthreat to threat: • of level the in Changes Park managementandthevisitor experience(seeAppendix3). cultural heritageprotection andprograms forensuringthatculturalvaluesare anessentialpartof has beenimplementedincludinganextensivenumberofagreements withtraditionalownersfor National Park,especiallyworkingthrough theKakaduBoard ofManagement.Arange initiatives sustaining andenhancingthelivingculturaltraditionsofKakadu sincethedeclarationofKakadu traditional ownershasdecreased sincetheintroduction ofmining. relationships to land.Itisnotconsistentwithaviewthattheoverallattractivenessofarea to continuity intheParkandshowsthattraditionalownersare abletocontinuetheirtraditional (1996 estimate)asaresult ofminingroyalties andParkactivities.Thishasstrengthened cultural the Mission. onthisissueto sustainable. TheJawoynandothertraditionalownershaveconveyedtheirconcerns Mirrar justifylistinglandsbelongingtoothertraditionalownersasWorld Heritage inDangerisnot Mirrar peopleare theownersof2%KakaduNationalPark.To suggestthattheclaimsby shared byallofthetraditionalownerslandcovered bytheWorld Heritageproperty. The in definingtheboundariesandensuringprotection ofthesite. specific exclusionoftheJabilukaleasein1992. broader culturalvaluesoftheWorld Heritageproperty. the definedandagreed boundariesoftheBoiweksite,orfordamagebeyondthatsiteto The MissionarguesthattheintegrityofWorld Heritageassociativevalues 115

CHAPTER 7 CHAPTER 7 1991 transferofownership. fundamental rightsoftheindigenouspeopleandreconsiderstatus1982agreement the livingculturaltraditionsrecognisedthroughWorld Heritageinscription)musttakeintoaccountthe respected andthattheimplementationofWorld HeritageConvention(inthiscasetheprotectionof 116 List ofWorld HeritageinDanger:CriteriaandBenchmarks Theprevious seniorMirrartraditionalownerwasapartytothe1982Agreement. Noneofthe • LandCouncilaswellseniorandkeymembersoftheKakaduAboriginalcommunity TheNorthern • Thisisonlyoneviewofacomplexsituation.TheMirrar, ownersof2%thePark,are onlyoneof • TheMissionrelied ontheviewsofcurrent traditionalownersoftheMirarrestatethatprevious • Evidence: The Findings: Mission’s The1982Agreement 7.5.10 KRSISinitiativesare beingacceleratedwiththefullcooperation ofmosttraditionalowners. • willcontinuetoopenlyreport TheAustralianGovernment onprogress. • Mitigation: Noevidenceispresented bytheMissionofadirect ascertainedorpotentialthreat tothecultural threat: • of level the in Changes Thedistributionofminingroyalties hascreated manyfinancialinvestment,employmentand • KRSISfoundthatthesocialconditionsofAboriginalpeopleinKakaduregion are neither • must befollowed. two oldmenwhohadagreed tothemineproceeding were nowdeadtheir word waslaw and importance ofthe1982Agreement beingkept becauseitwas one ofthetraditionalownerswhowasaprincipalto1982 agreement, referred tothe principals associatedwiththe1982Agreement havedisowneditortheprocess. In1991 Bill Neidjie, proposal and,as agroup, consentedtoit. only havebeengivenifthetraditionalownersthemselveshad beenfullyconsultedaboutthe the traditionalowners’consenttoJabilukamine,asprovided forbythe1982Agreement, could continue tosupportthe1982Agreement andthe1991transferofrights.Legislationdictatesthat support forminingbythoseAboriginalpeopleaffected bytheexistingmine. from thetraditionalownersofJabilukaandRangerareas, there isaconsiderabledegree of Park allhaveaninterest inminingandtheirviewsalsoneedtobeconsidered onthisissue.Apart the approximately 16Aboriginallandowninggroups intheKakaduregion. Aboriginalpeopleinthe agreements hasbeenmade. consent in1982and1991.There isnoevidenceofduress, andnochallengetothevalidityof that thePark’s culturalvalueswillbeirretrievably damagedifmininggoesahead.TheMirrargave agreements bytraditionalownerswere signedunderduress ornotfullyunderstoodandtheirview The leaseisnotintheWorld Heritageproperty. small partofthelease,cannotbeaccessedbytraditionalowners.Thisrestriction hasbeenagreed. values oftheWorld Heritageproperty ofKakaduNationalPark.Onlythemineworkingarea, a economic developmentopportunitiesforAboriginalcommunitiesinthePark. Territory.demonstrably betternorworsethanotherAboriginalcommunitiesintheNorthern The Missionnotedthatthestronglyheldbeliefsoftraditionalownersmustbe Bininj (Aboriginal) lawthatsincethe additional miningprojectscommencingontheuppercatchment hasnotbeenexcluded. ecological integrityoftheexistingWorld Heritagepropertyisinpotentialdangerasthepossibilityof recent listing,theculturallandscapescriteriahadnotyetbeenestablishedunderConvention. Kakadu hadnotbeenrecognisedandprotectedwhileacknowledgingthatatthetimeofmost List ofWorld HeritageinDanger:CriteriaandBenchmarks TheRangerminehasoperatedwithoutanysignificantenvironmental impactontheWorld Heritage • ThelandinquestionisownedbyAboriginalpeople. AnydecisiontomakeitpartoftheParkwould • Evidence: The Findings: Mission’s LimitationstotheboundariesofKakaduNationalPark 7.5.12 willcontinuetoopenlyreport TheAustralianGovernment onprogress. • hasestablishedaconsultation process TheAustralianGovernment ontheissueofwhetherKakadu • Mitigation ThefactthattheKakaduWorld Heritageproperty hasnotyetbeennominatedorlistedunderthe threat: • of level the in Changes Inresponse torequests foritsnominationonculturallandscapecriteria,theAustralianGovernment • Evidence: The Findings: Mission’s oftheKakaduculturallandscape Lackofrecognition 7.5.11 willcontinue toopenlyreport TheAustralianGovernment onprogress andtosupportthe • Mitigation: TheWorld HeritageCommitteereinscribed KakaduNationalParkin1987and1992,makingno threat: • of level the in Changes TheseniortraditionalownercametoCanberrain1991withagroup oftraditionalowners,tolobby • controlled andregulated, canbecompatiblewiththeprotection ofWorld Heritagevalues. evidence thatminingoperations adjacenttotheWorld Heritageproperty, aslongtheyare strictly property andthe World HeritageCommitteehasnotrecommended itsclosure. Thisprovides have tobetheirdecision. National Parkshouldbere-nominated asaculturallandscapeundertheWorld HeritageConvention. relatively recent culturallandscapescriteriacannotbeconstruedasathreat tothevaluesofregion. has setinmotionaconsultationprocess ontheissuewithrelevant stakeholders. traditional owners’legalandnegotiatedrightstocontrol aspectsoftheminingproposal. Heritage Area. comment onthe1982agreement whichallowedforminingintheareas adjacenttotheWorld 1982 Agreement. Ministersthat the mineshouldgoaheadinaccordancesenior AustralianGovernment withthe : The Mission considered that, without protection by boundary extension,the The Missionconsideredthat,withoutprotectionbyboundary The Missionstatedthatthefullextentofoutstandingculturallandscape 117

CHAPTER 7 CHAPTER 7 the World Heritageproperty. jointmanagementpracticeofKakaducouldthreatenthe tensions intheexemplary legislative changesarefosteringadeteriorationoftrust.TheMissionexpressedconcernthatany “joint management”hasworkedwellbutclaimedthatexistingandproposedmanagement 118 List ofWorld HeritageinDanger:CriteriaandBenchmarks Theimplicationthat“anytension”insuchacomplexjoint managementarrangementcould • threat: of level in Changes agrees TheAustralianGovernment thattheMission’s reportabout oftraditionalownerconcern • Noargumentisadvancedastowhatdirect threats tonaturalorculturalvaluesoftheWorld • Themission,whileacknowledgingthatjointmanagementarrangementshasworkedwell,doesnot • Evidence: The Findings: Mission’s atKakaduNational Park tothecontinuationof“jointmanagement” regime Threat 7.5.13 willcontinuetoopenlyreport TheAustralianGovernment ontheseissues. • willconsultwiththetraditionalownersoflandsinquestionabout TheAustralianGovernment • willensure TheAustralianGovernment thattheWorld Heritageproperty willbeprotected from any • Mitigation: Threats from miningoutsidetheboundariesofParkhaveclearlynotincreased sincethetimeof • threat: of level in Changes Thetraditionalownersintheareas outsideofKakaduNationalParkhaveactivelysought • certain issuesfrom timetoisbeexpected. Kakadu NationalParkisneitherrealistic noralogicalassertion.Thepresence oftensions over constitute adirect ascertainedorpotentialthreat tothevaluesofWorld Heritageproperty of atthehighestlevel,includingthroughto thoseconcerns direct Ministerialnegotiations. these proposed arrangementsisanaccuratereflection oftheirview. isresponding The Government Board.governing day tomanagementoftheParkorchangeclearmajoritytraditionalownersonPark’s head officeTerritory ortheadditionofaNorthern membertotheBoard. Neitherwillimpactonthe Heritage property Service’s are posedby administrativechangestotheNationalParksandWildlife produce anyobjectiveevidenceofathreat tothenaturalorculturalvaluesofPark. the Missionproposal. traditional owners. activities onlandoutsidetheWorld Heritageproperty, according tolandtenure andthewishesof property issubjecttorigorous environmental assessmentandcontrol. 1992. UnderAustralianlegislation,anyproject thatcouldpossiblyimpactontheWorld Heritage listing, sincetheWorld HeritageCommitteedidnotidentifytheexistingRangermineasathreat in exploration forminerals,andhavegiventheirconsenttominingrelated projects ontheirlands. The missionnotesthat,generallyspeaking,thepartiesinvolvedfeelconceptof include theopportunitytoopposethisview. of rockart.Itwasacknowledgedthatthelegalrightstraditional ownersunderAustralianlaw Park waslocatednearthehighlyculturallysignificantNourlangie outlierwithitsoutstandinggalleries management ofthePark. and a breakdownincommunicationandtrustwhichhasthepotentialtojeopardiseconservation List ofWorld HeritageinDanger:CriteriaandBenchmarks Mission’s Findings: Findings: Mission’s TheKoongarraMineralLease 7.5.15 willcontinuetoopenlyreport TheAustralianGovernment onprogress. • isgivingcloseattentiontobothincreasing TheAustralianGovernment andimproving itsdialogue • Mitigation: Someissuesareauthorities. undernegotiationbetweentheAboriginalowners andgovernment • SincethePark’s firstlistingforWorld Heritagevalues,thePark’s returningAboriginalpopulationhas • threat: of level in Changes Arangeofprograms andinitiativesaimedatstrengthening indigenousinvolvementandcross- • issupportingmechanismstoensure TheAustralianGovernment thatindigenousinvolvementinthe • CertainmembersofthePark’s Board ofManagementexpressed theviewthat,ingeneral,they • Evidence: The Findings: Mission’s andcommunication intrust Overallbreakdown 7.5.14 willcontinue toopenlyreport TheAustralianGovernment onprogress. • Asisstandard practiceunderthejointmanagementarrangementsinplaceforKakaduNational • Mitigation: and discussion with Aboriginal people over issues of concern andcommoninterest.and discussionwithAboriginalpeopleoverissuesofconcern indication oftheongoingstrength ofculturallifeinKakadu. Traditional ownershaveclearrightsinthesematterswhichtheyare freely exercising. Thisisaclear promote culturalvalues. increased dramaticallyandtheBoard hasintroduced awiderangeofmeasures whichprotect and cultural understandingare summarisedelsewhere inthisreport (seeforinstance,Appendix3). with theAustralianGovernment’s support. based committeesandorganisationalstructures withintheKakaduregion havebeenestablished management oftheKakaduregion, iscontinuallyenhancednotdiminished. Arangeofindigenous of indigenousdecision-makersontheKakaduBoard. of proposed changes.TheFourthPlanofManagementisclearevidence,however, oftheinfluence aboutanumber authoritiesandhadconcerns experienced poorcommunicationwithgovernment Park, negotiationsoverpointsofdisagreement continuetowards amutuallyacceptableoutcome. The missionnotedthattheKoongarraMineralLeaseexcised fromKakaduNational adecreaseineffective indigenousinfluenceinthePark,and The Missionobserved 119

CHAPTER 7 CHAPTER 7 level consistentwiththemanagementobjectivesofaWorld Heritageproperty. 120 List ofWorld HeritageinDanger:CriteriaandBenchmarks There isnoevidencethatJabiruposesor willposeagreater threat tothe World Heritagevaluesof • threat: of level in Changes ThedevelopmentofJabiruisstrictlyplannedunder alegalframeworkwhichprotects theWorld • MuchofJabiru’s infrastructure wasconstructedtocaterforapopulationofup6000,andwill • ThelinkagemadebetweentheopeningofanewmineatJabilukaandconcordant expansionof • Evidence: The Findings: Mission’s ThetownofJabiru 7.5.16 willcontinuetoopenlyreport TheAustralianGovernment onprogress. • hasformallysoughttheviewsoftraditionalowners,leaseholder TheAustralianGovernment • Mitigation: There islittleevidencetosupporttheviewthatanydirect ascertainedorpotentialthreat tothe • threat: of level in Changes Anypotentialthreat totheWorld HeritagevaluesofthePark,includingNourlangieoutlier, will • TheWorld HeritageCommitteehasbeenadvisedregularly onthestatusofKoongarraMineral • Theagreementwouldberequired ofboththetraditionalownersandAustralianGovernment • Evidence: The respectively) are wellbelowthemaximumpopulationof3500 recommended bytheFoxInquiry. Jabiluka development.Itspresent andestimated future population figures (1480 and1700 the Parkthanitdidin1992when theParkwaslisted.Thetownwillnotgrow asaresult ofthe the maintenanceofJabiruasafocusfortourismactivity. functions asanimportantservicecentre forKakadu’s traditionalowners.Traditional ownerssupport Heritage valuesofthePark.Itisadministrativecentre forthemanagementofParkandalso less thanthenumberpreviously accommodatedatthepeakofoperationsRangeralone. who willrequire accommodationinJabirufrom theRangerandJabilukaoperationscombinedis net increase in population asaresult oftheJabilukadevelopment.Thenumbermineworkers not require expansion.Itisestimated thatexistinghousingstockinJabiruwillaccommodateany history ofpopulationchangeinJabiru. urban andinfrastructuraldevelopmentisbasedonafalseassumptiondoesnotaccountforthe Territoryand theNorthern overthefuture government oftheKoongarraleasearea. Koongarra lease. values oftheWorld HeritageArea ofKakaduNationalParkexistsasaresult ofthepresence ofthe World Heritagevalues. law iftheproject wastobeconsidered. Theproject wouldnotproceed ifitwoulddamagethe be identifiedinacomprehensive environmental assessmentthatwouldberequired underAustralian Lease andhasnotpreviously expressed concern. under consideration. for miningtoproceed atKoongarra.Atpresent, noapprovalhasbeengivenoris byGovernment The MissionisconcernedthatthetownofJabiruwillcontinuetogrowbeyonda continue. and theremarkablesuccessachieved.TheMissionemphasisedneedforthisintensiveeffortto animal managementwithinandbetweentheminingleasestheseareasPark. List ofWorld HeritageinDanger:CriteriaandBenchmarks Mission’s Findings: Findings: Mission’s Weeds 7.5.18 willcontinuetoopenlyreport TheAustralianGovernment onprogress. • ParksAustraliaandERAwillenhancecooperativearrangementsfortheidentification • Mitigation: There isnoevidencetosuggestthatthreats posedtotheWorld HeritagevaluesoftheParkbyferal • threat: of level in Changes Managementregimes intheParkandonleaseareas accountfortheseriskswithgoodresults • Thebestpracticemanagementoffire andferalanimalsare prioritiesintheKakaduPlanof • Evidence: The Findings: Mission’s andferalanimalmanagement Fire 7.5.17 willcontinue toopenlyreport TheAustralianGovernment onthisissue. • Mitigation: management ofanypotentialthreats posedbyferalanimalsorfire withintheleaseareas. animals andfire eventswithintheleaseareas haveincreased since1992. to date. Management. The MissionwasimpressedbyeffortstocontroloutbreaksofweedsinthePark The Missionrecommendedgreaterattentiontorisksassociatedwithfireandferal 121 (Mark Hallam) (Mark management Fire in Kakadu in National Park National CHAPTER 7 CHAPTER 7 be severe by ensuring protective regimes were based on the Precautionary Principle. be severebyensuringprotectiveregimeswerebasedonthePrecautionary toads onthePark,Missionwarnedofneedtoaccountforpossibilitythattheseeffectsmay 122 List ofWorld HeritageinDanger:CriteriaandBenchmarks • The Australian Government willcontinuetoopenlyreport TheAustralianGovernment onprogress. • TheParkwillpromote acoordinated research program, inconjunction withotherlandmanagement • Mitigation: CanetoadshavenotyetarrivedinKakadu,and posenogreater threat thanin1992. Thepotential • threat: of level in Changes Managementofcanetoadsisaregionalagencieshaveaninterest issue,andseveralgovernment in • Invasivespeciesareacross asignificantconservationconcern Australia andcanetoadsneedtobe • Control ofinvasivespeciesisrecognised asapriorityinthePlanofManagementapproved bythe • Evidence: The Findings: Mission’s Canetoads 7.5.19 willcontinuetoopenlyreport TheAustralianGovernment onprogress. • TheBoard ofManagementandrespectiveremain governments strongly committedtomaintaining • Mitigation: There isnoevidencethatthisthreat hasincreased. Insomecases,theintensiveefforts underwayto • threat: of level in Changes Thethreats posedbyweedsinthePark,especially • Evidence: The all levelsofgovernment. reflected intheresources andattentiondevotedtotheircontrol bytheBoard ofManagementand ecosystems. agencies intheregion, aimedatpredicting andminimisingtheeffects oftoadsonregional integrated approach. of thethreat posed bytheirarrivalisbeingcarefully assessedandplannedforaspartofan assessing thepotentialandactualimpacts. significant threat tobiodiversity. the threats posedbyferalcats,foxesandrabbits,there isnoconsensusthatcanetoadsare a considered seriouslybutstrategicallywithinthenationalcontext.Whilstthere isclearrecognition of Board, theDirector andtheMinister. knowledge. and enhancingtheseefforts inlinewithbestpracticeandemployingtheavailablescientific control andreverse theeffects ofweedsintheParkhaveeffectively reduced thethreat sincelisting. Recognising theexistenceofsomeuncertaintyaboutpotentialeffectscane Mimosa and Salvinia , are recognised and that there isno impactontheWorld HeritagevaluesofthePark. legislative requirements onERA,andcommitmentsbytheproponent, are more thanadequatetoensure impacts, includingimpactsthatcouldaffect theWorld HeritagevaluesofthePark.The government The comprehensive andtransparent assessmentprocess forthemineproposal identifiedallpotential experience attheRangermine. managed inaccordance withstringentenvironmental requirements builtuponnearlytwentyyearsof the KakaduPlanofManagement,whilethosearisingfrom activitiesontheJabilukaMiningleaseare values. FortheParkitself,potentialissuesrelating tonaturalandculturalvalueshavebeenidentifiedin There are anumberofissueswhichrequire proper managementtoensure protection ofWorld Heritage There isnoascertaineddangertotheWorld HeritagevaluesofKakaduNationalPark. demonstrate animpactorapotentialonthevaluesofproperty itself. dangers tovaluesoutsidetheproperty whichmightbeofWorld Heritageinterest. Itisnecessaryto the required toidentifyactualor potential threats (identifiedasascertaineddangersorpotentialin To placeKakaduNationalParkontheListofWorld HeritageinDanger, theWorld HeritageCommitteeis and culturalheritagevaluesare safe,protected andwillbemaintainedintothefuture. The strength ofAustralia’s World HeritagemanagementarrangementsforKakaduensure thatthenatural List ofWorld HeritageinDanger:CriteriaandBenchmarks Ulur management measures withindigenousownersofWorld Heritageproperties inAustralia(Kakaduand to thehigheststandard.leadershipinimplementingjoint Ithasalsodemonstratedinternational allocateverysignificantfinancialresourcesAustralian governments toensuring theseareas are managed Australia hasastrong record ofexcellenceinmanagementitsWorld Heritageproperties. Everyyear, THEBURDENOFPROOFINCONSIDERINGAWORLD HERITAGE 7.7 These were notconsidered to be ascertainedorpotentialthreats. Uranium Mine,thetownofJabiru,impactonculturalvaluesmining,orintegrityPark. in itsdecisionsoninscriptiondidnotcommentadverselytheboundaries,operationofRanger successive stageofKakaduNationalParkshouldbeinscribedontheWorld HeritageList.TheCommittee World HeritageCommitteewasaware oftheseminingactivitieswhenitrecommended thateach mapped theuraniumminingactivitiesoutsideproposed World Heritageproperty boundaries.The Each ofthethree World HeritagenominationdocumentsforKakaduNationalParkclearlynotedand new protected area. to ensure thatthispre-existing usedidnotconflictwiththevaluesormanagementobjectivesof World Heritageproperty wouldbeinappropriate. Extensivemanagementarrangementswere established and significance,itwasrightlyjudgedthattheinclusionofpre-existing miningarea aspartofthe Park andnominatingitforinclusionontheWorld HeritageList.Increating aprotected area ofthissize Australia carefully considered theappropriate delineationofboundariespriortocreating KakaduNational DELINEATION OFTHEWORLDHERITAGE BOUNDARY—HISTORY 7.6 Operational Guidelines u Kata-Tjut IN DANGERLISTING AND REASONING a NationalParks). ) totheWorld HeritagevaluesofthePark.Itisnotsufficient topoint 123

CHAPTER 7 CHAPTER 7 124 List ofWorld HeritageinDanger:CriteriaandBenchmarks and objectiveconsiderationof theevidenceandissuesofconsistencyprecedence. interests ofthefuturefunctioning andcredibilityoftheConvention,shouldbetakenonly aftercareful The choicebeforetheWorld HeritageCommitteeisoneoftheutmostgravity andonewhich,inthe in Dangerwhentherearenochangedcircumstances. current mining,andexclusionsforfuturethenlisted thepropertyonWorld HeritageList World HeritageCommitteehasacceptedanominationbasedonclearpresentationoffacts,notably substantial andcredibleevidencethatthisisnotthecase. Australia alsoknowsofnocasewherethe concernedhasclearlyandunequivocallyrejectedtheassertionofdanger,the country andhasprovided Australia knowsofnocasewhereapropertyhasbeenplaced ontheWorld HeritageListinDangerwhere Convention’s implementationandadministration todate. consensus andcommonpurposewhichhasbeenafundamental featureoftheWorld Heritage World HeritagepropertiesandacrossallStatesParty. Itwouldhaveapowerfulimpactonthespiritof a newandgreatlyelevatedbenchmarkthatwouldbeneedtoappliedconsistently, overtime,toall of World HeritageinDanger. To dosoagainsttheinformedviewsofStatePartywouldbetocreate dangers, orinadequatelegalandadministrativeprotection,forplacingKakaduNationalParkontheList This Australianreportdemonstratesthatthereisnobasis,intermsofeitherascertainedorpotential CONCLUSION National Park. for theirWorld Heritagevalues.Theseexamplescannotbeequatedwiththe present situationinKakadu Heritage propertieslackedappropriate concerned managementplansandadequate legislationprotection unmanaged developmentwithinaproperty. Itappearsthatinthemajorityofthese cases, theWorld and seriousthreat tothesite,forexampleincasesofcivilunrest, poachingorillegaloccupations, of aWorld Heritageproperty. Itisclearthat listingInDangerisprimarilyundertakenwhenthere isareal strongly justifiedbyanirretrievable lossoforseriousdamagetoWorld Heritagevaluesorintheintegrity In termsoftheneedforlisting,previous listingsInDangerwithoutconsent ofStatesPartieshavebeen properties asbeingInDanger. seriously questionsthelackofamore standardised procedure inwhichtheCommitteeseekstoidentify regimes protecting World Heritagevaluesisdependentonitseconomicandsocialenvironment, it CONSISTENCYANDEQUITYISSUES While AustraliaacceptsthattheabilityofStatesPartiestoimplementmanagementandlegislative 7.8 apowerfulframeworkoflegislationtoensure theproperty isconservedandprotected. • accountablestructures eitherbeingdevelopedorare already inplaceforthecontinuousmonitoring • comprehensive actionbeingtakentopreclude ormitigateanyoftheidentifiedpotentialimpacts; • well-resourced authoritieswithresponsibility government toimplementmeasures designedto • scientificresearch, managementplansandstructures inplacetoallowpotentialthreats toWorld • as follows: The measures whichgiveconfidencethatthepotentialthreats willnotbecomeadversereal impactsare of naturalandculturalvaluesforsubsequentremedial action,whenrequired; and maintain theintegrityofproperty; Heritage valuestobeidentifiedandaddressed; CHAPTER 8

Managing Values into the Future‚ Reclamation and Restoration

125

Managing Values into the Future—Reclamation and Restoration

CHAPTER EIGHT: MANAGING VALUES INTO THE FUTURE—RECLAMATION AND RESTORATION Mining activity is a temporary land use, and a great deal of effort has already been dedicated towards ensuring that the Jabiluka minesite will be returned to a state which very closely, and to the greatest extent possible, reflects the topography, landscape and natural values of its surroundings. This process will be governed by the strict set of environmental requirements placed

on the developer by the Government and in accordance with the Best Practice Environmental CHAPTER 8 Management in Mining guidelines developed by the Supervising Scientist and the Australian mining industry.

At the conclusion of the mine’s operating life, all tailings will be placed underground into the voids from which the uranium ore was extracted (or into contiguous purpose built voids) some 100 metres or more below the surface. Once full and sufficiently de-watered, the pit will be capped using a geotextile and waste rock. The topography of the repository will be sculptured to minimise erosion and to resemble the surrounding landforms. Having established a stable and representative landscape on the former minesite, revegetation activities will be managed to reflect, to the greatest extent practicable, the mix and abundance of species in the surrounding areas of Kakadu National Park. Red lilly The rehabilitation objectives for the Ranger Uranium Mine have been agreed to by the Commonwealth (Nelumbo and Northern Territory Governments, the Northern Land Council and ERA. ERA has an obligation under nucifera) the agreement with the Aboriginal landowners to rehabilitate the Ranger Mine such that it can be (Michael Preece) incorporated within Kakadu National Park at the cessation of the mine. Similar requirements will also apply to Jabiluka. The specific rehabilitation objectives will be agreed following discussions with the NLC and the traditional owners. This will Frilled-neck lizard also include agreement on the form of rehabilitation and whether (Chlamydosaurus facilities such as the access road are maintained. kingii) (Michael Preece)

127 (Michael Preece) (Michael Falls Twin (Science Group, (Science of Wetlands Gorge, Kakadu Gorge, Environment Kakadu Kakadu National Park Park National Australia) CHAPTER 8 128 Managing Values andRestoration intotheFuture—Reclamation Park willcontinuetobeprotected. rest oftheworldcancontinue.TheoutstandinguniversalnaturalandculturalvaluesKakaduNational biodiversity canthriveandwhere usebytraditionalownersandvisitorsfrom alloverAustraliaandthe available atthetime.Insodoing,minesitewillberestored toastatewhere locallyindigenous This carefully plannedandexecutedprocess willemploythebestavailabletechniquesandexperience radiation dosestomembersofthepublic,foratleast10,000years. measures whichwillavoiddetrimentalimpactstotheenvironment, andconformtostringentlimitson to humansortheenvironment. Indeed,thecompanywillberequired toputinplacerehabilitation of radioactiveorchemicalcontaminationsurfaceground waters,oranyriskofradiationexposures The moststringentrequirements havebeenplaceduponthecompanytoensure thatthere willbenorisk APPENDICES

References Appendix 1 Appendix 2 Appendix 3 Appendix 4 Glossary

129

References of 1973, Australian Government PublishingService,Canberra. of 1973,AustralianGovernment Woodward, AE(1973),AboriginalLandRightsCommission,FirstReport,ParliamentaryPaper No.138 Commission. Estate: KakaduandKatherineArea,Territory. Northern UnpublishedReportfortheAustralianHeritage P.Vinnicombe, (1973),IndependentAssessmentofSites NominatedfortheRegisterofNational UNESCO, OperationalGuidelinesfortheImplementationof theWorld HeritageConvention. Kakadu NationalParkRegion Senate StandingCommitteeonEnvironment, Recreation andtheArts(1988), Australia, Occupation SiteinNorthern Roberts, RG,Jones,RandSmith,MA(1990),ThermoluminescenceDatingofa50,000Year OldHuman Colonisation ofAustralia, Roberts, RGandJones,R(1994),LuminescenceDatingofSediments:NewLightontheHuman LandCouncil,(1980). Northern Jabiluka MillAlternative,PublicEnvironmentReport Kinhill EngineersPtyLtdandEnergyResources ofAustraliaEnvironmental ServicesLtd(1998), The JabilukaProjectMainReport,DraftEnvironmentalImpactStatement Kinhill EngineersPtyLtdandEnergyResources ofAustraliaEnvironmental ServicesLtd(1996), Management Kakadu Board ofManagement&ParksAustralia,(1998), Second Report Fox ,MrJusticeRW, Kelleher, GGandKerr, CB(1977), Publishing Service,Canberra. Fox, MrJusticeRW. (1976), oftheAustralianAboriginalRockArt ArnhemLand Story Chaloupka, G.(1993), Chaloupka, G.(1978), Inclusion intheWorld HeritageList Service,(1980), Australian NationalparksandWildlife ANPWS, Canberra Service,(1980), Australian NationalParksandWildlife , Jabiru. , Australian Government PublishingService,Canberra. , AustralianGovernment Journey inTime:TheWorlds LongestContinuingArtTradition :The50,000Year Djawumbu-Madjawarnja SiteComplex Australian AboriginalStudies Ranger UraniumEnvironmentalInquiry, FirstReport , Australian Government PublishingService,Canberra. , AustralianGovernment Alligator RiversStageIILandClaim , ANPWS. Nature , 345:153–156. , Inprint,Brisbane. Kakadu NationalParkPlanofManagement, Nomination ofKakaduNationalParkfor , No.2,2–17. Ranger Uranium Environmental Inquiry Ranger UraniumEnvironmentalInquiry Kakadu NationalParkPlanof . Chatswood,NSW: Reed. . NT: NESR. . Berrimah,NT. , Inprint,Brisbane. The Potentialofthe , AustralianGovernment The 131

APPENDICES APPENDICES ac 99Fourth planofmanagementfor Kakadutocomeintooperation (prepared MemorandumofUnderstandingRegarding theControl ofAboriginal 8 March 1999 Leaseentered intobetweenthe GunlomAboriginalLandTrust and 20 May1996 20 May1996 aur 963,310km MemorandumofUnderstandingRegarding theControl ofAboriginal January 1996 KakaduinscribedontheWorld Heritagelistasrenominated (nomination May 1995 Third planofmanagementforKakaducomesintooperation(prepared 14 December1992 Amendedleaseentered intobetweentheKakaduAboriginalLandTrust 1 April1992 Kakadu,includingStage3,renominated forWorld Heritagelisting 21 January1992 Leaseentered intobetweentheJabilukaAboriginalLandTrust and 25 September1991 KakaduBoard ofManagementestablishedwithtwotoonemajority 27 March 1991 KakaduStage2includedinWorld HeritagelistwithStage1(nomination 26 July1989 SecondplanofmanagementforKakaducomesintooperation—prepared 9 December1987 14 November1986 132 Appendix 1 oebr18 354km Grant ofareas nowintheJabilukamineralleasetoAboriginal November 1986 World HeritagelistingofKakaduStage1(nominationprepared withthe FirstplanofmanagementforKakaducomesintooperation—prepared in 25 June1982 26 October1981 2 April1981 (SINCE PARK DECLARED) THEIR INTERESTSORCULTURAL HERITAGE PROTECTION AGREEMENTS SIGNEDWITHTRADITIONALOWNERSREGARDING and theDirector) jointly bytheKakaduBoard ofManagement with itsAboriginalmajority Gunlom lease) Cultural MaterialinKakaduNationalParkagreed (annexedto Director ofNational ParksandWildlife Trust pursuanttotheLandRightsAct Cultural MaterialinKakaduNationalParksigned prepared withthesupportofAboriginal traditionalowners) and theDirector) jointly bytheKakaduBoard ofManagementwithitsAboriginalmajority Stage 1ofKakadu inrespectand Director ofAboriginallandin ofNationalParksandWildlife (nomination prepared withthe supportofAboriginaltraditionalowners) Stage 2ofKakadu inrespectDirector ofAboriginallandin ofNationalParksandWildlife representation from Aboriginaltraditionalowners. prepared withthesupportofAboriginal traditionalowners) in consultationwithAboriginaltraditionalowners. pursuant totheLandRightsAct support ofAboriginaltraditionalowners) consultation withAboriginaltraditionalowners Land Trust 2 in KakaduStage2grantedtotheJabilukaAboriginalLandTrust 2 in KakaduStage3grantedtotheGunlomAboriginalLand Appendix 1 itr fpr • end JawoynculturaladviserRoy Andersonappointedforsouthern KakaduRegionSocialImpact Studyundertaken Reviewofculturalheritage managementinitiatedbytraditionalowners. history ofpark Ongoing throughout FulltimeSecretary toBoard ofManagementpositionestablished. 1997 MemorandumofUnderstandingRegarding theControl ofAboriginal Warradjan CulturalCentre opened 1996 1995 May 1995 CulturalResource ManagementCommitteeformed.(predecessor tothe KeepingPlaceMuseumTour GagugduAssociationcontractforartsitemaintenancecontinued forAboriginaltraditionalowners 1995 1995 Centre TheInternational fortheStudyofPreservation andRestorationof November 1995 Traditional ownerJonathonNadgiappointedasculturaladviserfor 1991/92 1990 Traditional fire practicesintroduced intoparkmanagement(acontentious AboriginalTraining program established. Nanguluwurartsiteopened 1988 Nourlangieartsitesopened 1986 Ubirrrock artsitesopened 1985/86 Traditional ownerMickAlderson appointedasculturaladviserforthe 1979 1979 1979 1979 1979 HERITAGE PROTECTIONINTHEPARK PROGRAMS ANDINITIATIVES CONCERNINGPROTECTIONOFCULTURAL Bininj HeritageManagementCommittee Cultural MaterialinKakaduNationalParksignedandtheformationof Bininj HeritageManagementCommittee). Nourlangie Rock. Cultural Property undertookaspecialrock artconservationproject at endofpark northern issue atthetime) central partofthepark Numerous specificconsultancies egJawoynBoundaryreport. • Numerous languageconsultancies • Numerous archaeology consultancies • Emphasisonoralhistoryrecording undertakenbybothparkstaff • of thepark and consultants. Regular monitoringofartsitesonaverageover550visited peryear 133

APPENDICES APPENDICES 134 Appendix 2 Region.” (page13) 1978 isresponsible formonitoringandlimitingtheeffects ofuraniumminingintheAlligatorRivers “The SupervisingScientistestablishedundertheEnvironment Protection (AlligatorRiverRegion)Act but stringentenvironmental controls haveprevented adverseeffects onthePark.”(page13) region. In1990–91 approximately $6.7millionwasallocatedtotheOffice.” (page79) Region) Act1978 “The Office of the SupervisingScientist,establishedunder (page 76) commenced in1979,nosignificanteffects onthewaterqualityofMagelaCreek havebeen detected” Energy monitorthemine’s operationsandenvironmental impacts.Sincetheoperationofmine agency—the OfficeTerritory oftheSupervisingScientist—andNorthern Department ofMinesand Park (seeFigure 2).Stringentenvironmental controls are appliedtothemineandaCommonwealth The RangerUraniumMine,intheMagelaCreek catchment,operatesinan area surrounded bythe 1991 Nomination: 1986 Nomination: Alligator RiversRegion.”(page14) “A supervisingscientistisresponsible formonitoringandlimitingtheeffects ofuraniummininginthe develop thetown.”(page8) Territoryleased toaNorthern statutoryauthority, theJabiruTown DevelopmentAuthority, whichwill industry (Jabiru)issituatedwithinthePark.Anarea ofapproximately 13square kilometres istobe areas havebeenexcludedfrom thePark.Howevertownbeingdevelopedtoservicemining importanceandminingofthesedepositshasbegunrecently.international Anumberofminerallease “Mineral explorationandmininghavealsooccurred intheregion. Theuraniumdepositsare of 1980 Nomination: documents area asfollows: existing leasearea andminingactivitieswithinit.Therelevant passagesfrom thesuccessivenomination accepting eachofthesenominationsforlisting,theCommitteewasaware oftheexistencepre- nomination containedmapsthatclearlydelineatedtheminingleasearea (RangerandJabiluka).In to thepresence ofuraniumminingintheregion inareas surrounded bythePark.Inaddition,each documents were prepared foreachofthesestages(in1980,1986and1991).Eachdocumentreferred Kakadu NationalParkwasinscribedontheWorld HeritageListin3stages.Separatenomination NOMINATION DOCUMENTS EXTRACTS RELATING TOURANIUMMININGOPERATIONS FROMKAKADU “The RangerUraniumMineintheMagelaCreek catchmentisapotential threat toareas downstream, , isresponsible for monitoringtheeffects ofminingoperationsintheAlligatorRivers Environment Protection(AlligatorRivers Appendix 3 81/96Chan 28/11/1986 6/12/1985 inscription Date of 41/92SangayNational Threats arisefrom theeffects ofarmedconflict. 14/12/1992 Cambodia MountNimba 14/12/1992 Angkor 14/12/1992 Threats arisefrom sandencroachment. Mali Theabsenceofappropriate conservation SrebarnaNature 14/12/1992 Timbuktu Oman 12/12/1990 BahlaFort 9/12/1988 71/92OldCityof 17/12/1982 Natural& 26/10/1979 IN DANGER ANALYSIS INCLUDEDONTHELISTOFWORLD HERITAGE OFPROPERTIES rprySaePryAscertained/potentialthreats StateParty Property its Walls Jerusalem & Region ofKotor Cultural-Historical Abomey Royal Palacesof Zone Archaeological Park Nature Reserve Reserve euThreats arisefrom absenceofappropriate Peru cao Threats result from heavypoachingof wildlife, Ecuador Guinea Cote d’Ivoire/ Aseriesofupstream interferences, includinga Bulgaria euae Threats arisefrom severe destructionfollowedby Jerusalem Yugoslavia Benin a rapidurbanisation. damage tobuildingstockofthetowns. An earthquakecausedextensivestructural the royal enclosure andmuseums. Threats arisefromdamageto extensivetornado management ofthesite. measures forconservation,restoration and the earthstructures ofthefort. measures hasledtodegradationoftheoasisand construction. the Park’s perimeter, andunplanned road illegal livestockgrazing,encroachment along and thearrivalofalargenumberrefugees. result from aproposed iron-ore miningproject Threats, including towaterqualityintheregion, passerine andwaterbird populations. leading tothedeclineordisappearanceof surrounding areas haveimpacted thewetlands, site, andagriculturalresidential useofthe dam, permanentlyaltered thehydrology ofthis 135

APPENDICES APPENDICES 136 Appendix 3 11/93Everglades 11/12/1993 Air&Ténéré 14/12/1992 ManasWildlife 14/12/1992 /219 SimienNational 7/12/1996 Garamba 7/12/1996 UnitedStates Yellowstone 9/12/1995 National Virunga 17/12/1994 inscription Date of rprySaePryAscertained/potentialthreats StateParty Property National Park Natural Reserves Sanctuary Park National Park Park tipaThepopulation oftheWalia ibexhas Ethiopia Congo Republic ofthe Democratic of America Congo Republic ofthe Democratic of America Threats arisefrom theeffects ofmilitaryconflict. United States Niger Politicalinstabilityandmilitaryactivityin India within thesite construction andhumanpopulationincrease this andotherlargemammalsfrom road deteriorated, andthere are ongoingthreats to to thespeciesfrom poaching. seriously declinedandthere isanongoingthreat The populationofthewhiterhinoceros has to eradicatebrucellosisintheherds. population related toproposed control measures pressures, andpotentialthreat tothebison throat trout; road construction;year-round visitor lake trout competitivewiththeendemiccut- contamination; illegalintroduction ofnon-native impact ofsewageleakageandwaste mining operationsonthewatershedecology, Threats arisefrom potentialimpacts ofadjacent the site. widespread deforestation and poachingat of thewarinaneighbouringcountryledto A massiveinfluxofrefugees escapingtheeffects ecology oftheproperty. measures, andahurricanehavedamagedthe a fallinwaterlevelsduetofloodprotection fertilizers, mercury poisoningoffishandwildlife, Nearby urbandevelopment,pollutionfrom rhino andotherspeciesofwildlife. infrastructure, andanincrease inpoachingof around theParkhasledtodamage Appendix 3 /219 OkapiWildlife 6/12/1997 Kahuzi-Biega 6/12/1997 Looting ofthesitemuseumduringcivil Manovo-Gounda 6/12/1997 Albania Butrinti 6/12/1997 IchkeulNational 7/12/1996 RioPlatano 7/12/1996 inscription Date of rprySaePryAscertained/potentialthreats StateParty Property Reserve National Park Park St. FlorisNational Park Reserve Biosphere Congo Republic ofthe Democratic Congo Republic ofthe Democratic Republic Central African Construction ofthree damsonriverssupplying Tunisia Threats arisefrom commercial andagricultural Honduras conservation ofthesite. adequate protection, management,and of thesite,andthere isacontinuedlackof disturbances inthecountrydamagedvalues gold miningwithinthepark. the staff havefled thepark.There are reports of and thekillingofelephantsinthissite.Most Armed conflicthasledtothelootingoffacilities be servingasahideoutformilitantgroups. park staff haveleftthearea. The parkmayalso have beenlootedanddestroyed, andmostofthe hunting hasbeenreported there. Parkfacilities Portions oftheparkhavebeendeforested and on thepark’s wildlife. Illegal grazingandpoachinghasheavilyimpacted populations. halophytic plants,andreduction inmigratorybird replacement offresh-water plant speciesby fresh water, resulting inincreased salinity, the Lakeanditsmarsheshascutoff inflowof insufficient parkmanagementstaff. species, absenceofamanagementplanand hunting ofwildanimals,introduction ofexotic area oftheReserve,uncontrolled commercial extraction ofvaluabletimber, reducing theforest intrusions intothesite,includingmassive 137

APPENDICES APPENDICES 138 Appendix 4 • Annual Australian Government funding (not including State Government funding)—$50million. funding(notincludingStateGovernment AnnualAustralianGovernment • World Heritage FundinginAustralia Total anticipated from theJabilukamine—$231million • From theRanger minesincethe1978agreement toallowmining—$145.8million • Payments toAboriginalinterests TheRangerminecommenced—constructionin1979andoperation1981 • Inscriptionofthethree StagesofKakaduNationalParkonthe World HeritageList • 13sqkm Proclamation ofthethree StagesofKakaduNationalPark • 7.1sqkm Dates Jabirutownshipin1998—1480people 79sqkm • AboriginalpeopleinKakaduNationalPark1996—533 • AboriginalpeopleinKakaduNationalPark1979—139 • Populations 73sqkm 0.8sqkm Jabirutownship 1.3sqkm • 19,804sqkm Rangerminesite • RangerMineralLease • Jabilukaminesite(RMAoption) • Jabilukaminesite(JMAoption) • JabilukaMineralLease • KakaduNationalPark • Areas KAKADU STATISTICAL DATA Stage 3:1992 Stage 2:1987 Stage 1:1981 Stage 3:Phase1:1987;2:1989;1991 Stage 2:1984 Stage 1:1979 Glossary TA JabiruTown Territory Development Authority(Northern JabilukaMillingAlternative Township whichservesRanger andJabilukaminesites Miningdevelopment World ConservationUnion JTDA Councilfor MonumentsandSites International JMA GundjehmiAboriginalCorporation Jabiru Inheritedclangroup Jabiluka Traditional owner—clan group IUCN ICOMOS Gunmogurrgurr Placesthatrelate tocreation ortheDreaming Alsoreferred toastheRangerUraniumEnvironmental Inquiry Electrolytic ZincCompanyofAustraliasia GAC Placesthatrelate tocreation andbecauseoftheirparticularreligious Gundjehmi Environmental Research Institute oftheSupervisingScientist EnergyResourcesFox Inquiry(1&2) ofAustralia Environmental PerformanceReview Djang adjamun Environmental ImpactStatement Djang EZ ERISS BestPracticableTechnology Frenchutilitywhichpresently Government ownstheKoongarralease ERA FederalDepartmentoftheEnvironment andHeritage EPR Environment Australia EIS Sacred site—small,discrete soakage/swamplocatedtothewestof COGEMA AboriginalandTorres Strait IslanderCommission Aboriginal AlligatorRiversRegion BPT Non-Aboriginal Boiwek/Boyweg Bininj/Mungguy boundaryofKakadu Aboriginalownedlandadjacenttotheeastern Balanda/Mam ATSIC Service(subsequentlyrenamed the AustralianNationalParksandWildlife RainbowSnake/creation figure ARR AustralianHeritageCommission AboriginalArea Protection Authority Land Arnhem AustralianAcademyofHumanities ANPWS Almudj AHC AAPA AAH government authority) government significances are considered dangerous andrequire heavilyrestricted access Jabiluka minevalley National Park Australia) Australian Nature ConservationAgency, andthenlaterrenamed Parks 139

APPENDICES APPENDICES 140 Glossary S SupervisingScientistGroup UnitedNationalsEducational,ScientificandCulturalOrganisation RangerMillingAlternative 1973CommonwealthCommissionofInquiryintoAboriginallandrightsin Woodward Inquiry Probable maximumprecipitation UNESCO PublicEnvironmental Review 1975InquiryintotheSocialandEnvironmental ImpactsoftheRanger SSG Peko–Wallsend Operationslimited RMA Territory Northern University Ranger Inquiry PMP Territory Northern Department ofMinesandEnergy LandCouncil Northern PER NowknownastheJabiluka Mine Peko NationalCentre forTropical Wetlands Research Traditional owners—clangroup Pancontinential Mine TheKakaduRegionalSocialImpactStudyReport NTU NTDME NLC NCTWR Mirrar KRSIS the Northern Territorythe Northern Development