‘A salvage exercise for Aboriginal rights’: human rights and social justice in Indigenous political responses to the Mabo (No.2) decision

ABSTRACT

The Mabo (No.2) decision in 1992 has been described as a historical turning point for the nation. In popular memory, it is associated with Eddie Mabo, then Prime Minister Paul Keating, and Indigenous activist and public intellectual Noel Pearson, who played an important role in seeing Mabo (No.2) embodied in Native Title law. Inasmuch as it is understood within the long history of Indigenous demands for rights, it is generally seen as pivotal in the turn to Indigenous rights. Mabo (No.2) put Indigenous sovereignty on the table like never before and emphasised its connection to self-determination and land rights in the Indigenous political agenda for rights. In this paper, I aim to expand understanding of this moment by demonstrating the ways in which human rights were deployed by Indigenous political actors, particularly those associated with the Aboriginal and Torres Strait Islander Commission, both during their discussions with the government as to the implications of the decision for Indigenous people on the Australian mainland and more generally in relation to Australia’s international human rights obligations.

KEYWORDS:

• Mabo
• native title
• self-determination
• Indigenous
• O’Donoghue
• ATSIC

Disclosure statement

No potential conflict of interest was reported by the author(s).

Correction Statement

This article has been corrected with minor changes. These changes do not impact the academic content of the article.

Notes

1 Eddie Mabo and Ors v The State of Queensland (No. 2) [1992] HCA 23; (1992) 175 CLR 1; 66 ALJR 408.

2 Lowitja O’Donoghue, Address to the 90th Interparliamentary Conference, 13 September 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 6.

3 ibid 4.

4 Graeme La Macchia, ‘Big Gubba Business. The Making of the United Nations Declaration on the Rights of Indigenous Peoples, First Nations Resurgence and the Australian Connection’ (PhD, Australian Catholic University 2018) 63–78, 87–94.

5 ibid.

6 John Chesterman and Brian Galligan, Citizens Without Rights. Aborigines and Australian Citizenship (Cambridge University Press 1997) 193–221.

7 For example, MA Stephenson and Suri Ratnapala (eds), Mabo: A Judicial Revolution. The Aboriginal Land Rights Decision and Its Impact on Australian Law (University of Queensland Press 1993); Lisa Stelein, Compromised Jurisprudence. Native Title Cases Since Mabo (Aboriginal Studies Press 2009).

8 Optional Protocol to the International Covenant on Civil and Political Rights (adopted 16 December 1966, opened for signature 19 December 1966, entered into force 23 March 1976) 999 UNTS 171.

9 Catherine J Iorns Magallanes, ‘International Human Rights and their Impact on Domestic Law on Indigenous Peoples’ Rights in Australia, Canada and New Zealand’, in Paul Havemann (ed), Indigenous Peoples Rights in Australia, Canada and New Zealand (Oxford University Press 1999) 235–76.

10 Noel Loos, Edward Koiki Mabo: His Life and Struggle for Land Rights (University of Queensland Press 1996). Mabo was one of five claimants including Reverend David Passi, Sam Passi, James Rice and Celuia Mapo Sale.

11 Chesterman and Galligan (n 6).

12 Daryl Cronin, ‘Trapped by History: Democracy, Human Rights and Justice for Indigenous Peoples in Australia’ (2017) 23 (2) Australian Journal of Human Rights 220–41.

13 For example, Chesterman and Galligan (n 6); Magallanes (n 8); Bain Attwood, Rights for Aborigines (Allen & Unwin 2003); Annemarie Devereux, Australia and the Birth of the International Bill of Rights (Federation Press 2005); Jon Piccini, Human Rights in Twentieth Century Australia (Cambridge University Press 2019).

14 Heather Goodall, Invasion to Embassy. Land in Aboriginal Politics in New South Wales, 1770–1972 (Sydney University Press 1996); Chesterman and Galligan (n 6); Attwood (n 13); John Chesterman, Civil Rights: How Indigenous Australians Won Formal Equality (University of Queensland Press 2005); Russell McGregor, ‘Another Nation: Aboriginal Activism in the Late 1960s and Early 1970s’ (2009) 40(3) Australian Historical Studies 343–60.

15 Gary Foley, Andrew Schaap and Edwina Howell (eds), The Aboriginal Tent Embassy. Sovereigny, Black Power, Land Rights and the State (Routledge 2014).

16 Miranda Johnson, ‘Connecting Indigenous Rights to Human Rights in the Anglo-Settler States: Another 1970s Story’ in A Dirk Moses, Marco Duranti and Roland Burke (eds), Decolonisation, Self-Determination and the Rise of Global Human Rights Politics (Cambridge University Press 2020) 109–31.

17 Samuel Moyn, The Last Utopia. Human Rights in History (Harvard University Press 2010) 6.

18 La Macchia (n 4). Note that Canada, New Zealand, Australia and the United States voted against the UNDRIP but later changed their positions. For discussion, see EG Wensing, ‘Indigenous Peoples’ Human Rights, Self-determination and Local Governance’ (2021) 24 Commonwealth Journal of Local Governance 98–123.

19 Jodie Brough, ‘Tickner Says WA’s Backyard Threat is Another Mabo Myth’ The Canberra Times (Canberra, 21 June 1993) 1.

20 Michael Meadows, ‘Lost Opportunities: The Media, Land Rights and Mabo’ (1993) 71(1) Media International Australia 100–109.

21 O’Donoghue (n 2).

22 ibid.

23 Lowitja O’Donoghue, The Sir Albert Jennings Memorial Address, 16 September 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 6.

24 Tim Rowse, ‘How We Got a Native Title Act’ (1993) 65(4) The Australian Quarterly 110–32.

25 John Gardiner-Garden, The Mabo Debate: A Chronology (Background Paper 23, Commonwealth of Australia, 1993) 9.

26 Lois O’Donoghue, ‘Address to the United Nations’ WGIP, July 1992 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Boxes 6, 8.

27 Among them were members of an informal Indigenous Native Title Working Group included David Ross, Daryl Pearce, Peter Yu, Gatano Lui, Rob Reilly, Mick and Pat Dodson and Marcia Langton.

28 Robert Tickner, Taking a Stand. Land Rights to Reconciliation (Allen & Unwin 2001) 106, 109–13.

29 Lowitja O’Donoghue to PJ Keating (Letter), 22 March 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) series 10, File 21.

30 The Aboriginal Peace Plan, 27 April 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) series 10, File 21.

31 Tickner (n 28) 113.

32 ATSIC, ATSIC’s Response to the Commonwealth Government’s Consultation Process Concerning the High Court’s Mabo Decision in the Mabo Case (Records of the Aboriginal and Torres Strait Islander Commission, NLA Ms Acc01.203) Box 1.

33 Tickner (n 28) 114.

34 ibid.

35 EG Wensing, ‘Land Justice for Indigenous Australians: How Can Two Separate Systems of Land Ownership, Use and Tenure Co-exist with Mutual Respect Based on Parity and Justice’ (PhD, The Australian National University 2019) 4.

36 In 1993 a large proportion of the Australian land mass was under pastoral lease: WA 38%, Qld 54%, SA 42%, NSW 41% and NT 51%.

37 Gardiner-Garden (n 25) 5. The Northern Territory government passed the Confirmation of Titles to Land (Request) Act which requested the Commonwealth parliament to pass laws validating land titles in the Northern Territory.

38 Rod Campbell, ‘Settlement Extinguished Native Title: WA’ The Canberra Times (Canberra, 9 September 1994) 4.

39 Tickner (n 28) 116.

40 ibid 112.

41 Bain Attwood and Andrew Marcus, The 1967 Referendum (Aboriginal Studies Press 2007).

42 For a list of relevant statutes, see Wensing (n 35) 47.

43 John Maynard, Fight for Liberty and Freedom. The Origins of Australian Aboriginal Activism (Aboriginal Studies Press 2007).

44 William Cooper to the Prime Minister Lyons 26 October 1937, National Archives of Australia: A461, A300/1 Part 3. See also Bain Attwood, William Cooper. An Aboriginal Life Story (Miegunyah Press 2021).

45 For example, Yvonne Nicholls, Not Slaves, Not Citizens. Condition of the Australian Aborigines of the Northern Territory (Australian Council of Civil Liberties 1952); Mary Bennett, Human Rights for Australian Aborigines (Truth 1957).

46 Attwood (n 13) 132–36.

47 Anietie Inyang and Blessing J. Edit, ‘The Atlantic Charter and Decolonisation Movements in Africa, 1941-1960’ (2019) 4(1) African Journal of History and Archaeology 1–13.

48 International Convention on the Elimination of All Forms of Racial Discrimination (adopted 21 December 1965, entered into force 4 January 1969) 660 UNTS 195.

49 Tickner (n 28) 100–105.

50 ATSIC, ‘Annual Report’ (1992-3) 17.

51 Bruce Buchan, The Empire of Political Thought: Indigenous Australians and the Language of Colonial Government (Routledge 2008); Bruce Buchan, ‘The Empire of Political Thought: The Language of Civilization and Perceptions of Indigenous Government’, History of the Human Sciences, [2005] 18(2) 1–22 https://doi.org/10.1177/0952695105054179.

52 Brennan, J, Mabo (No.2) (n 1) para 63.

53 Kevin Tory, ‘Eva Valley and the Mabo Decision’ (1993) 23 Education: Journal of the NSW Public School Teachers Federation 24.

54 ATSIC (n 50) 16.

55 Tickner (n 28) 117.

56 The discussion paper was titled, ‘Mabo: The High Court Decision on Native Title’. See ATSIC (n 50) 16. See also Statement of the Prime Minister, the Hon P.J. Keating, Release of Commonwealth Principles and Discussion Paper on the Mabo Decision (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445 3) series 10, file 21; see also Gardiner-Garden (n 25) 10.

57 Opening Remarks by ATSIC Chairperson, Joint Press Conference, 3 June 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445 3) series 10, file 21.

58 Tory (n 53).

59 ATSIC Commissioners Caution Government on Mabo Legislation, 23 September 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445).

60 Keith Scott, ‘Blacks Bounce Government on Mabo’ The Canberra Times (Canberra, 6 August 1993) 1.

61 Tickner (n 28) 123.

62 ibid 122–28.

63 Gardiner-Garden (n 25) 13.

64 ibid 19.

65 ibid 6–7.

66 ibid 14.

67 ibid 14.

68 Human Rights and Equal Opportunity Commission, ‘Report of the National Inquiry into Racist Violence’ (Australian Government, 1991).

69 Lois O’Donoghue, Speech to the World Conference on Human Rights in Vienna, 18 June 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 6.

70 La Macchia (n 4) 55.

71 ibid 56–57. The Declaration was not endorsed by the General Assembly until September 2007, another 14 years after Lowitja made this statement.

72 Keith Scott, ‘Greens Hijack Our Authority: O’Donoghue’ The Canberra Times (Canberra 25 November 1993) 1.

73 ibid.

74 ATSIC (n 50) 16; see also ATSIC, Australian Democrats and Greens (WA), ‘Mabo Statement’ (Joint Media Release, 30 September 1993) (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 6.

75 Frank Brennan, ‘Undermining Mabo’, The Age (Melbourne, 4 October 1993) 13; see also Gardiner-Garden (n 25) 27–28.

76 Amanda Meade, ‘Response to Mabo “a Lost Opportunity”’ The Sydney Morning Herald, (Sydney, 4 October 1993) 3–4.

77 ATSIC, ‘ATSIC Commissioners Caution Government on Mabo Legislation’ (Media Release) 23 September 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 19.

78 Gardiner-Garden (n 25) 34–35.

79 Eva Valley Working Group, The Commonwealth’s Mabo Proposals Fact Sheets, 25 September 1993 (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) Box 19.

80 ibid, Fact Sheet no. 4.

81 ibid Fact Sheet no. 1.

82 Philip Cornford, ‘Mabo’s Young Black Power Brokers’, Financial Review (Sydney, 21 October 1993) 17–18.

83 ATSIC (n 50) 23.

84 ‘The Historic Blueprint that Puts Terra Nullius to Rest. A Statement by Mr Keating on the Government’s Response to Mabo and A Statement Toward Reconciliation. Statement by Lois O’Donoghue’, The Australian (Sydney, 20 October 1993) 2.

85 Keith Scott, ‘Hewson Damns PM’s Mabo Plan’, The Canberra Times (Canberra, 19 November 1993) 3.

86 Innes Willcox, ‘Aboriginal Leaders Clash on Mabo’, The Age (Melbourne, 7 December 1993) 3.

87 Noel Pearson, ‘From Remnant Title to Social Justice’ (1993) 65(4) The Australian Quarterly 179–84.

88 ibid.

89 ATSIC (n 50) 23.

90 Scott (n 72).

91 Lenore Taylor, ‘Blacks Slam Greens for Threat to Mabo Bill’ The Australian (Sydney, 25 November 1993) 1.

92 Lois O’Donoghue, ‘A Step Towards Reconciliation’ The Australian (Sydney, 2 October 1993) 2.

93 ibid.

94 ibid.

95 Margaret Easterbrook, ‘Voter Turnout Expected to Rise in ATSIC Elections’, The Age (Melbourne, 3 December 1993) 6.

96 Robert Tickner, ‘Time to rally in support of Aboriginal aspiration’ The Australian (Sydney, 5 October 1993) 11.

97 ‘A Triumph For Australia’, Sydney Morning Herald (Sydney, 1 January 1994) 4.

98 Amanda Hurley, ‘ATSIC’s Birth Pains are Over’, says O’Donoghue’ The West Australian (Perth, 2 December 1993) 11.

99 Innes Willcox, ‘Keating Pledges New Deal for Aborigines’ The Age (Melbourne, 20 October 1993) 6; Iain Scott, ‘ATSIC Changes Reflect Growth in Importance’ Albany Advertiser (Albany, 30 November 1993) 4.

100 Terence Willmot, ‘Proud to be a member of ATSIC’ The Morning Bulletin (Rockhampton 7 December 1993) 7.

101 ATSIC (n 50) 16.

102 Pearson (n 87).

103 ATSIC, ‘Annual Report’ (1993-4), 24.

104 JT Josh and AC Kay, ‘Social Justice: History, Theory and Research’, ST Fiske et al (eds), Handbook of Social Psychology (John Wiley and Sons 2010) 1122–165.

105 ATSIC (n 50) 13.

106 Mick Dodson, Social Justice for Indigenous Peoples (Third David Unaipon Lecture, October 1993).

107 ibid.

108 ATSIC, ‘Recognition, Rights and Reform: A Report to the Government on Native Title Social Justice Measures’ (ATSIC, 1995). This was a work of collaboration between ATSIC, the Council For Aboriginal Reconciliation and the Human Rights Social Justice Commissioner.

109 ibid.

110 William Jonas, ‘Reflections on the History of Indigenous People’s Struggle for Human Rights in Australia – What Role Could a Treaty Play?’, in Peter Read, Gary Meyers and Bob Reece (eds), What Good Condition? Reflections on an Australian Aboriginal Treaty 1986–2006 (ANU Press 2006) 50.

111 Liberal Party of Australia & National Party of Australia, Policies for a Coalition Government: For All of Us (Liberal Party of Australia and National Party of Australia 1995) (Papers of Lowitja O’Donoghue, National Library of Australia (NLA) MS 10445) series 10, File 32.

112 Andrew Gunstone (ed), Over a Decade of Despair. The Howard Government and Indigenous Affairs (Australian Scholarly Publishing 2010).

113 Elizabeth Strakosch, Neoliberal Indigenous Policy: Settler Colonialism and the ‘Post Welfare’ State (Palgrave Macmillan 2015); Deidre Howard-Wagner, ‘Legislating Away Indigenous Rights’, (2008) 12 Law Text Culture 44–68.

114 La Macchia (n 4) 125.

115 Gary Foley, ‘The Australian Labor Party and the Native Title Act’ in Aileen Moreton-Robinson (ed), Sovereign Subjects. Indigenous Sovereignty Matters (Routledge 2007) 118–39; Maureen Tehan, ‘A Hope Disillusioned, an Opportunity Lost? Reflections on Common Law Native Title and Ten Years of the Native Title Act’ (2003) 27(2) Melbourne University Law Review 523–71.

116 La Macchia (n 4) 16.

117 Mick Dodson, ‘Human Rights and the Extinguishment of Native Title’ (1996) 2 Australian Aboriginal Studies 12–23.

118 ibid, 146–47.

119 Meade (n 76).

Additional information

Funding

Research for this article was funded by the Australian Research Council (DP230100714: Policy for Self-Determination: the Case Study of ATSIC)

Notes on contributors

Alison Holland

Alison Holland works in the Department of History and Archaeology at Macquarie University, Sydney, where she teaches Australian and World History and the history of human rights. She has published widely in the fields of Indigenous history, settler colonialism, human rights, humanitarianism, citizenship and race. Her first monograph, Just Relations. The Story of Mary Bennett’s Crusade For Aboriginal Rights (UWA Publishing 2015) was shortlisted for the NSW Premier’s History Awards in 2016. Her second monograph, Breaking the Silence. Aboriginal Defenders and the Settler State, 1905–1939, was published by Melbourne University Publishing in 2019. She is a CI on an ARC DP (DP230100714), Policy for Self-Determination: The Case Study of ATSIC.