Native Title and the Tide of History: Shifting the Sands
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Native Title And The Tide of History: Shifting The Sands BY BROOKE HALL B.A. Adelaide University, 1994 LL.B. (Hons.) Northern Territory University, 1998 GCLP. University of South Australia, 1998 A THESIS SUBMITTED IN PARTIAL FULFILMENT OF THE REQUIRMENTS FOR THE DEGREE OF MASTER OF LAWS In THE FACULTY OF GRADUATE STUDIES FACULTY OF LAW We accept this thesis as conforming to the required standard Professor Michael Jdcjf.so'n Q.C. Associate Professor Douglas C. Harris THE UNIVERISTY OF BRITISH COLUMBIA August 2002 © BROOKE HALL 2002 In presenting this thesis in partial fulfilment of the requirements for an advanced degree at the University of British Columbia, I agree that the Library shall make it freely available for reference and study. I further agree that permission for extensive copying of this thesis for scholarly purposes may be granted by the head of my department or by his or her representatives. It is understood that copying or publication of this thesis for financial gain shall not be allowed without my written permission. Department of Law The University of British Columbia Vancouver, Canada Date: August 2002 Native Title And The Tide of History: Shifting The Sands Abstract This thesis is designed to contribute to the discussion of the issues confronting Australian Courts by evaluating the process of recognition and protection of native title and to delineate how it is being shaped. The High Court of Australia's decision in Mabo v. The State of Queensland [No.2] (1992) C.L.R. 1 and the subsequent Native Title Act 1993 (Cth) in Australia have begun the process of recognition and protection of native title. This thesis looks at the scope of the High Court and some Federal Court of Australia decisions since Mabo [No.2], and examines the relationships at law that underlay a theoretical foundation for those decisions. Two relationships underlay the Courts' reasons: relationships to history, and relationships to land. Australian Courts are articulating a particular conception of these relationships, and the foundation of this thesis is to propose a shift in native title discourse to include indigenous perspectives when determining native title claims. ii Table of Contents Abstract ii Table of Contents iii Acknowledgements . v Chapter One: Introduction: Defining Relationships 1 Chapter Two: Methodology: Australian decisions & the appropriateness of comparative reference 7 2.1 THE METHOD 7 2.2 AUSTRALIAN JURISPRUDENCE 7 2.2.1 COMMON LAW RECOGNITION OF NATIVE TITLE 8 2.2.2 THE TEN YEARS SINCE MABO[NO.2] (1992-2002) 14 2.2.3 THE RUBRIC OF NATIVE TITLE 28 2.3 CANADIAN JURISPRUDENCE 30 2.3.1 THE CONSTITUTIONAL FRAMEWORK 3 2 2.3.2 THE EVOLUTION OF SECTION 35(1) 34 2.3.3 THE INTERPRETATIVE PRINCIPLES OF SECTION 35 45 Chapter Three: The Tide of History: Winning the battle yet frozen at war 47 3.1 RELATIONSHIPS TO HISTORY 47 3.2 THE GUIDEPOSTS OF MABO [NO.2] 50 3.3 THE BIAS OF HISTORY IN NATIVE TITLE CLAIMS 62 3.4 THE EVIDENTIARY ASPECTS 68 3.4.1 THE NATURE OF NATIVE TITLE PROCEEDINGS 68 3.4.2 THE INHERENT EVIDENTIARY DIFFICULTIES 70 3.5 THE CANADIAN EXPERIENCE 87 3.6 THE CONTEXTUAL APPROACH 95 Chapter Four: Property Regimes: something old & something new for the coexistence of peoples 97 4.1 RELATIONSHIPS TO LAND 97 4.1.1 THE ABORIGINAL RELATIONSHIP TO LAND 98 4.1.2 THE NON-INDIGENOUS RELATIONSHIP TO PROPERTY 103 4.2 THE INTERSECTION AND COEXISTENCE OF RELATIONSHIPS TO PROPERTY 107 4.2.1 THE APPLICATION OF ABSTRACT PRINCIPLES OF PROPERTY 107 4.2.2 COEXISTENCE 117 4.2.3 LEGAL PLURALISM? 123 4.3 NATIVE TITLE IS A RELATIONSHIP WITH LAND 125 Chapter Five: Conclusion: Shifting the Sands 128 BIBLIOGRAPHY 133 PRIMARY SOURCES 133 CASE LAW 133 LEGISLATION 133 SECONDARY SOURCES 139 SECONDARY MATERIAL: MONOGRAPHS 139 SECONDARY MATERIAL: ARTICLES AND REPORTS 141 iv Acknowledgements This thesis has been supported by a fellowship from the Law Foundation of British Columbia and the kindness and academic wisdom of Professors Michael Jackson and Douglas Harris. Thanks also to Professor Ruth Buchanan. Chapter One Introduction: Defining Relationships The common law is articulating native title. The purpose of this paper is to step inside that sphere of articulation and delineate how it is being shaped. This thesis is an examination of the two relationships at law that underlay a theoretical foundation for Australian decisions. It looks at the scope of the High Court and some Federal Court of Australia decisions since Mabo [No.2] v. Queensland} [hereinafter Mabo [No.2]] and the two relationships lying behind the decisions: the relationships between indigenous and non-indigenous Australians to their shared and separate histories, and to the territory which they share. Australian Courts are allowing the non-indigenous conception of these relationships to overwhelm the indigenous perspective. There is a tendency, often unconscious, to import or define Aboriginal culture in native title claims in terms of western knowledge. Such an approach is erroneous and irrelevant to Aboriginal people, because it creates and articulates an artificial characteristic in the tradition, custom or practice of native title. To understand why, one needs to observe the disparate foundations of Aboriginal and western culture. In western liberal theory, society is comprised of individuals who are autonomous. Liberal theory is dominant. This describes the core of western relationships to history, land and society. It provides the corner stone for the western social fabric. History more often than not depicts winners, and is written by winners. Land is all about ownership. Society is constructed around these notions of "ownership" and the individualistic society is one far removed from indigenous perspectives. This individualistic notion of rights and interests can be contrasted with a more communal perception of society that is constructed upon stewardship for the land and 1 (1992) 175 C.L.R. 1; 107 A.L.R. 1 [cited to C.L.R.]. 2 Ownership is a difficult concept. It is most commonly used as a statement of relations between people with respect to a thing. In this discourse that thing is land. See Chapter Four. In Yanner v. Eaton (1999) 201 C.L.R. 351; 166 A.L.R. 258 [cited to A.L.R.] at 266 the High Court observed 1 responsibilities. That foundation dictates comparative perceptions of history, land and society. Immediately there is a tension between a stewardship of rights and obligations that knit the indigenous social fabric and that of western society that advocates the rights of the individual. These opposite views reflect the disparity between indigenous and non- indigenous views. Colonial history and conceptions of English property are at the forefront of native title claims. Yet Aboriginal tradition derives from a different regime, from a different relationship with history and land. Furthermore, it remains malleable. The High Court is being asked not to blur the distinction, but to visualise and accommodate it in the determination of native title claims.3 There are a number of contextual historical factors that Australian Courts have yet to fully embrace such as the competing written and oral histories in demanding proof of native title. An examination of the more contemporary understandings of history in chapter three reveals the significance of relationships to land. How that relationship is constructed and visualised by the Court impacts heavily upon the articulation of native title and is more often than not the point of division amongst members of the bench. Property as an analytical tool is complex. At common law the theoretical foundations of property vary. The principal deponents in native title claims such as the Crown, third parties and claimants have different perspectives of land, and land as property. To date the Aboriginal relationship to land as articulated by the Courts has oscillated between common law theories of property as an interest in land or a bundle of rights. This thesis seeks to shift the discourse in native title to include indigenous perspectives. The shifting of the sands towards a more contextual approach is proposed in two ways, first by looking at indigenous relationships to history, and secondly, to land as a legal relationship that can recognise and protect indigenous relationships to traditional territories. A shift to a more contextual approach where indigenous relationships to land and property are evaluated within the indigenous paradigm will ensure the Aboriginal the term connotes a legal right "to have and to dispose of possession and enjoyment" of the subject matter. For example see Yorta Yorta Aboriginal Community v. Victoria (2001) 110 F.C.R. 244, 180 A.L.R. 655; heard by the High Court in May 2002. The decision of the High Court is reserved. 2 \ perspective is not further washed away by the tide of history. I set these indicia out as practical guidelines to those trying to understand the decisions and for those making such decisions. Later in this paper I will argue that a broad multi disciplinary approach by the Courts is desirable in order to provide legal and conceptual space for legal pluralism in Australia. I will also argue that the Courts are articulating particular conceptions of these relationships that are void of indigenous perspectives. It will be my contention that three issues are emerging before the Court, and those issues result from the preconceptions of the two identified relationships. The first is evidentiary: Aboriginal rights and interests are at the risk of being frozen in time if the Courts ignore indigenous perspectives. Some members of the judiciary demand a "timeless quality".4 The second is that conceptions of property are the catalyst for division on the bench.