The Jabiluka Process

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

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

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