1951.

aOMMONYvEAIIT'H OF AUSTRALIA

NAT IV EW ELF ARE

......:.:..

MEETING OF COMMONWEALTH .AND STATE MINISTERS

held at

CANBERRA, 3rd AND 4th SEPrEMBER, 1951.

,. '.\

By A uthori ty~ L.F.Johnston, Commonwealth Government Printer,

Canberra.

NATIVE WELFARE - IVlEETING OFCOMMONvvEALTH AND STATE lVlINISTERS H.ELD AT CANBERRA, 3rd AND

4th SEPTEMBER, 1951.

As the result of a decision by the Federal Cabinet

on 19th June, 1951, the Prime Minister invited all state Premiers

to be represented at a Ministerial Conference on Nati va Welfare

to be held in Canberra. The Premiers of New South Wales, /l .

Queensland, South Australia, and Western Australia accepted the

invit\ition.

2. The Conference met in the senate Committee Room,

Parliament House, Caba~erra, on 3rd and 4th September, 1951-

The representatives of' the Conl11onwealth and statos woro as follows~-

Conmonwealth;

New Southwa16s~

Queensland:

South Australia;

:Eestorn Australia~

The Hon.Paul Hasluck, IViinister for Territories. J.B.Howse, ESQ., M.P., parliamentary under- .

Socretary to I'ilinistcr for Territorios. C.R.Lambert, ESQ., secretary of the Department

of Territories. F.H.Moy, ESQ., M.B.E' g Director of Native

Affairs, Northern Torritory. J.E.vVilloughby, ESQ., Assistant Secrotary,

Dopartment of Territories. Dr.A.J.MotcalfG, Diroctor-Genoral of Health. Dr.s • D.VI/atsford, Deputy Director of' Health,

Northorn Territory. Dr.CGcil· Cook, Department of Health. F.H.Rowe, ESQ., Diryctor-Genoral of Social . Services ~ ,. . .

W.J.WeGden, ESQ., Acting Diroctor, Commonwealth Off'ice of Education.

The Hon.Clivo R.Evatt, K.C., Chief Secretary, Minister for Co;"'operativG Societios and Assistant Troasuror.

Tho Hon.E.G.Wright, M.L.C. R.S.Connor, ESQ., M.L.A. J.R.Mullins, ESQ. H. S .Groves, ESQ.

The Hon.W.LMoor8, Secretary for Health and Homo Af'fai rs.

a.O'Leary, ESQ., Diroctor of' Nativo Af'f'airs.

W.R.P6nhall, ESQ., socrotary of tho Aboriginas'·· Protoc ti on Board.

Tho Hon.Victor Donoy, Chief' Socrotary and Minister for Local Govornment and Nativo Aff ai rs.

S.G.Middleton, ESQ., Commissionor for Nativo Aff'ai rs.

2.

3. The Minister for Torri tories was Chai rman of the

Conference and thG secretariat was provided by tho·])Opartmont of

Territories.

4. Tho followi ng agenda, which had been circulated before-

hand, was adopted~-

1. Ci tizenshi:p s tat us.

Defi nit i on of aborigi nes Exemption and its significance Legislative action necossary for granting

citizons' rights.

2. Social Servico Benefits.

3. HoEl-th.

Consideration --e:r 1950 Conference Resolutions.

Policy~ . --Surveys to ascertain the provalonce of diseases

Prevention Treatment of diseaso Comrnunications Ambulance transport.

4. Educati"eQ.

Special pro~school and primary oducati on The part of MiSSions in special pre-school and

primary school oducation Boarding institutions for native children Secondary Education Hostels in developed communi ties for' socondary

school pupi Is Tho problem of adolescents Rural trai ni ng Rolati ng advanced educati on to omployme nt

opportunity ~ Training of teachers Use of special aids.

5. Employmont of Aborigines.

Control of conditions of employment Licensing ofemployors RemunQration for aborigine labour Native emplo;y1uont servico.

6. r.ilission Station§..

Acceptance of tho principal objectives of policy Location of l'lissionstations Managemont and Staff. Administrativo suporvision Work for tho aborigi nes Rousi ng and hygione Trading store Finance Various types of stations.

3.

7. Franchis,£.

Eligibility ~or state ~ranchiso Eligibili ty ~or OOlllillonwoalt.h ~ranchiso Uni~ormi ty i n ~ranchiso quali~icati ons

. Proposal ~ or spGcial l'ilomber( s) to bG oloctod by cOlourod Australians.

It was agree d that t ho Con~erencG should discuss I toms 1, 2 [0. nd

3 in plenary sessions; that Itoms 3, 4, 5 and 6 should be

re~errod ~or GX~lination, in tho ~irst instance, by a co~mttoG

o~ o~~icials and technical ox-ports ~rom tho vari ous delegati ons,

with a view to preparing rocomnondations based on thoir practical

oxperience o~ native administration} and that thoso rocollliTlondations

should then bo considorod by Ministors in plenary sossion.

I n tho arrangemonts ~or tho Con~Gren~o, it had boen mado clear , that tho moo. n purpos es woro an Gxchango o~ i n~ormati on rogardi ng

prosont mG'Il'hods o~ administrati on, and an attempt to roach -::

agroomont on tho broad objectives o~ native policy and tho methods by

which th at policy should bo served. It was recognisod that

rosponsibili ty for exec uti va action would still ramai n with the

respective Governments taking pal't in tho Con~oronco.

5. Discussion procoedod aGcording to this plan, and

resulted in tho drawing up of a sorios o~ statemonts on oach item

of the agenda. Theso statements, Which were accoptod by all

dolegations, were as ~ollows:-

STATEMENT ON CITIZENSHIP STATUS.

The COlmlonwealth and statos, having assimilation as the objective o~ native wel~arQ measures, dosiro to soe all psrsonsborn in Australia enjoying ~ull citizenship. It is alSO desirable that thero should bo uni~ormi ty throughout Australia in the enjoymont o~ tho privileges o~ citizonship, and in any limits Which may be sot on these privilegos, by necessity, in tho interosts o~ tho individual and of tho communi ty.

Thoro aroat tho prosent time in Australia many persons o~ aboriginal or part-aborigi nal blood who are prepared ~ or and capable of accepting the full responsibilities of citizonship. In tho ~uturo, as the measures for the advanco-mont o~ .native welfare show results, the number o~ porsons so qualified will increase. At tho present, and for many years to como, thoro are also a number o~ persons, particul8I'ly in the northern parts. o~ Australia,whoroquiro the benefits o~ special legislation in ordor that their own interosts may be sa~eguardod and in ordor that thoir 8.dVancOillcnt in ci vilizati on may be assisted.

4.

At tho prGsent time, sorno anomalies arc creatod by reason of the various dofini ti ons gi vento tho terms "nativa" apd "aboriginal" in such spacial logislation and by reason of tho differon ce in the applicati on of the sys tern of exampti on from such logislati on. I t is recognised that a system of exemption is open to. objection inasmuch as it suggests, to somo poople, that all persons who arc defined as "aboriginos" or "nativGs ll in thCl respoctive Foderaland state logislation arc rcg8rdod as constituting adifforGnt class of ci tizons by thoil' very nature. The moro corroct statement of our view is that those persons to whom tho spocial logislation appli.oG aro wards of the state Who, for tho time being, stand in need of guardianship arid who should automatically coaso to be ·wards whon they are ablo to RSSUIDe the full citizenship to which they arGontitlcd. This vi OW could be gi von cloar expression by amendmonts of O1dsting ·legislation whorCl noceS8cr~r9 80 that, in place of attempts to dofine e_ nati vo or an tLborigi nnl, tho logisl8.ti on would bo mado to apply only t.o those persons deomed to stand in nOGd of tho provisions of such legislation for their guardianship 2.nd -cutolRgo.

Each of' tho I'opresontf'.tivos at this conforence will m8.ko rocormnondations t:J his Govornmont in ordoI' to givo

. affect to this view in tho lT10nnOr bost suited to tho state or territory under its jUI'is~i.ction.

~

We recognise thnt somo of tho barriers 8gRinst the onjo~nGnt of all tho privilobGs of citizenship today ore not legal but social barriers. Those citizens will only enjoy the pl'ivilegGs of citizonship if they can livG and work as accepted mombers of tho community. Tho ref ore , it bGhoves all sections of the communi ty to Co-opoI'ate in tho ultimate assimilation of our native people.

STATEMENT ON SOCIAL SERVICES.

This Conferenco of ~'!i nis tors and offici als controlli ng Nati vo Aff airs Departme ots 1'0 cwosts the Fedoral G oVGI'mne nt to rovi ow and li boralis G tho applicRti on of Social Services to OUI' aboriginalnntive pooplos with a vievv to removing existing anomalies.

STATEMENT ON HEALTH. -------------------1. The health problems of tho natives in southern Australia are those of the general white population, but are aggravated by tho soci8.2. ard economic condi tions poculi8.r to the natives. Any imprcvome nt in the general health of natives in southern .f, ustrRlia dep~nds upon s oci al betterment rather than upon special health n108.sures.

2. For the North, tho Conference draws attonti on to, and approv0s in principle, rccomnondations 4-18 of t he Conference on Health probloms in NOI'thorn }\Ustrali8. of 16th August, 1950 (S60 Appendix).

3. Conference alsO directs 8.ttention to tho following:-

(a) Improvement of health of tho n ati ves of Northern Australia has, 8.S 8. prorGquiBito, systematic investigation to Rscortnin tho provRloncG of diseases by l11assGurvGYs and by sustained. medical suparvisi on of tho . individual.

5.

Owing to tho isolation and primitive conditions of many nativGs in tho northorn parts of Australia, successful dotection and control of disoase depend largely on others than hoalth porsonnel •. Activo co-oporati on and 8Bsistance from Governmont Stations, IlJiissions and employers of labour is rOQuired.

(b) On each GovornmontStation and rHssion, thoro should bo - .

(c)

( d)

( 0)

(i) a sick bay wit.h accommodation to tho standard required by tho Hoalth Authority;

( i i )8. t 10 as tor. G t r 8.i n G d n urs G •

Tho staff of the l"icsj.on or Government 'Station should include sufi'icic~j':: :por'sonnel with a knowledgo of prophylaxis, hyg.LOllO and moth ods of troatmo nt of provalent dj.soaso, and for their trmning in this fiGld tho 8.ssistanco of tho School of Public HGalth and TropiuFll lAcc1icino may bo sought.

This pro~ision woul} [;0 far tooliminnto the disturbing inflno:'Gs at pI~esont associated vi/ith the removal of tho sic.~ to centrally si tuated hospi t als and thai r oxpos ure, whi Is t awai ti ng repa tri a ti on, -to conditions and infoctions with which they would not meko contact in thoir normRl onvironmont.

Where thEl_ co-oporation is not forthcoming, tho NativG Affai:r1;Departmont should torminRte tho liconco of the defaulting ~j:i8sion or chango the rGsponsible staff on its own Station.

C%roful consideration should bo given by all states and Torritorios t::.:- .f;ha Gxtension of those rOQuire­ments and con(l:i.t~.O)8 to tho employers of lRrge numbors of nativr} lRbol1r and compliance should bo mado a condi tiO~l 010 tho isS uo or renowRl of thG Ii co nco t 0 olTl"p1 O~T,

Ono of tho Gxisting o'bstaclos to tho provision of an offective Hoa:::')1 SGrvico in certain parts of Northorn Austrflli~o, is tho inadequacy of communications and, to ovor:3oru] t.tiis difficulty, it is rocommonded R8 n ffiRttor of ~rCGncy that R Burvoy of proscnt communications bo mado by tho appropriate fluthoritios •

. 4. Each of tho r01)r(;30~tntivos at this Conforonce will make rocommendations to his Go',"o::'<~1lilOnt in order to give offect to

. thoso proposals in tho mS.]!jor Dest buHed to tho Stato or Torritory under its juri~dic~ion.

fiT AT~HEtlT O~J EDUCATION.

1. Objectiv~ of Poli9Y.

In accordance wi th acceptance of a policy of aSSimilation, tho long torm objoctive of native oducation is oducation for livi ng in fullci tizonship as part of the J,ustrali8.n community. Education must ombrace th6 spiritual [tS \7911 as the cultural, provi9-0o for trflining in health and hygiene, Rnd should include preparOation for work ::1l1Q. oth~r usoful endeavour to fi t the individual to maintflin a position of ind~-'p6ndence in and service to the conununity. The moans should be sought in various programmes designed to fit tho various typos of .~ --"-: .. .; ,.":1.,,,1,,, !'\~('ooY'rl"ing: to thoir proscnt standards and

6,

2.uso of state Schools. To the uxtont to ~Vhich tho place of livi ng and genoral

s~andRrd of aborigi nal c hildron wi 11 parmi t, they should be talwn into, [lnd r(JCGivo thGir oducati on in, tho srune institutions as are provided for white children. Prejudicos ctod social condi tionsvvhich OpGr2to 8.gctinst this policy should 4e acti voly combatod.

3. Nou.9; for~eciEl 8.2hools. Where, by roason of isoletioo, temporary sGgregation in

communi ti as, or tho preso nt degroo of s OCiRl Rnd cultural dovolopmGn.t, education in normal institutions is not practicable 1 special schools should bo provided on GovGrnment" MiSSion and privatoly ownod StRtions.. Those schools should. conforr.! to stRndards of RCC ommodati on 2nd cdue ati on laid down by the education authority of the Oonm10nwoalth or state, with adaptation, as roquirod, to the special noods of tho children boing cnterod for. They should bo subject to approval Rnd rogular inspoction by tho Education .!luthori ty.

4. Vocational Training. ~reas i~~is~sirab18 that 8boriginals should bo

tN'l.inod to G8.rn their own living, oVGry Govc\.nmant RndMissioll Station should~ as far as possible, provide special faoiliti os for trai ni ng in, G. g. -

(Ell rur.Hl and pastoral work9 b trades nnd crafts,

. c domestic sciances, nnd ¢l. tho usc and value of money.

Where doomod advisable, the establishment of a special farnl or pastoral trill ni ng schOOl should bo c onsi dared.

5. Hi~h8r Education. Special opportunitiGs for highor education, including

schol8.rships, should also be providGd for aboriginal children.

6. Em~Gnt nnd PlaC61TD nt. PartOf tho uducnti on system for natives should include

an organisation rosponsiblc for tho placemo nt of nati vo youths or girls in omployn10nt or apprenticeship under agreement, s upGrvisi ng condi ti ons of employmont 5 wRges, acoommodati on, etc., and n1aintai ni ng s ubsG qL16nt inspection 13.1 s uporvisi on until such child roachos tho Rge of 21 years.

7. Hostels. -TO facili t8.to the> education of aborigin8~ children Rnd

thoir subsoquont plaCGElent in omploymont, suitably placed hos tolsshould be OS tablishad oi thor by tho Government, or under private or ~,iission control, whero thaehildren may be housod and carGd for undor Europoan condi ti ons andthoi r

. attondance at school or omployment supervised. Those hostels should conform to approvod standards and should be:; subjoct to Govornment suporvision. vihoro necossary, suitable private or MiSSion hostels should bo 8.ssistod. wi th establishment and oporati ng cos ts.

8.RGcrui tmont and Training of'T'eachors. ·~l{herG8.s tORchors for special schools requir~ speciRl

qualif'ications and training, fl.od itis desiNl.blo to consolidato tho f'ac ili ti 6S nvni18.blG for this ;;:>urposo, the CDmmonwealth might consider providing.spc;cial training f8cilitios to be utilized by tho COl1unonwoalth, tho statos and tho Missions, subjoct to satisfactoryarrangGlilcnts in rospect of financial contri buti on.

7.

STATEMENT ON EMPLOY1lENT OF LBORIGINES.

1. FUll ci tizeoship for aborigines should include the right to .recei vo tho s 8111G condi ti ons as all Australi aos for work of simi lar class and tho rigbt to.full H1Gmbership of appropriate trade unions or professional as soci at ions. The Oonferonco notes that tbis is genorally applied, and considers that, in those few instaoces whore it is not applied, action should be takon to romovo ['my discrimination.

2. vlfhoro aboriginos aro still subjoct to C8.ro and welfare as wards of the Oommonwoalth or State, thore should be an authority charged vuth tho rosponsibility of suporvising their conditions of CJffiploymont and dotermining thoirminimum ratos of remuneration and standards of acconmodation. Such authority should provide adequate inspoctional services.

3.Whorever possiblo g tho minimum conditi ons applicable to tho omploymo nt of ab origi nes, Who aro wards of th 0 S tato , should be prescribed by the controlling authority.

Si nc 0, howevur, the s t[lnd[lrds of advancomo nt Rnd cRpacity of these aborig.a nes vary cons idorably, provis ion should bo mado parmi tti ng the contI' olli ng authori ty to authori zo spGci al arrangements with an employor in proper cases. 'l'horo sbould, h oWGvor, bo nothing to prevent an aborigi nRI ac copti ng omploywo nt at botter tl1an mi nimwn prescribod conch ti ons.

4. En~loyors of aboriginal wards of the State should bo subjoct to suporvision9 Rnd the right to omploy should include an obliga.ti on to obsorvG pl'Gscri bod regulati ons or the roquiremonts of tl10 controlling autbori ty with rogard to tho conditions of employment of' any such aboriginal. Tho right to omploy should bo liabJ.c to cancGlla.tion in the ovent of Hny broRch.

5. Wheroas somo aborigin21 w8.rds of the Stato aro not sufficiontly advancod to bo loft complotoly in chRrgo of the wholo of thoir oarnings, and it is doomed advisablG that some control and guidanco sl10uld bo oxorcised in tho application of o8rni ngs for the aborigi nos' own welfare, tho Oonforonco oXpresses its agroemont vvitil practices whereby, in such cases, somG proportion of tho oarrd ngs are p8.id into a trust account of tho aborigi n al wbi ch ho 111ay spond hims 0 If with th e gui d8.ncG and advico of tbo contrOlling authority.

Tho adoption of this practico in individual CElSOS should bo a niatter for the discroLion of tho native af'f::drs authori ty, according to tho circumstances of oach c8.SO.

6. Tho standards of' acc oitllilodb.tion to bo providod for aboriginal emploYGos should bo proscribod and, in tl1e case of married quartors, individual bousing units, instoad of compounds or barrack-liko 8.ccommodation, should bo insisted upon.

ST1\TEMENT ON GOVERNr,[ENTj,L AND MISSION STATIONS.

1. Tho continuation of Govermnontal and Missi on stations is part of tho ossonti al machi nary in providi ng for the c aro, wolfarc· and advancomont of nativos.

2. Those stations should bo strategically locatod s 0 ~ to givG tho groatost valuo in contact with and caro of natlves 9

Rod should bo so placod tbat tboro is a satisf'actory wRtor supplY and reasonably h08.lthy surr.oundings.

8.

3. Tho f,l(Ltorial rusourcos Hnd oquipment of R Station should i nelude -

(8.) Buildings of sRtisfactary standard for tho housing of inhQbitants~

(b) Satisfactory sanitary arrfmgomonts.

(c) 1.dequat6 provision for honlth diagnosis and troatment whoro thos(l aro not otherwiso providod.

(d) Provision for oducation ofchildrGn in (Lccordance wi th propar s tnndnrds, where facili ti as are not othorwise nvailablo.

(e) Sc:.tisf!:',ctory rocrof'.tion facilitios.

(f) Facilities for vocation8.1 training of adoloscGnts and adults,

(g) 1'.n omploymont nnd guidance service.

(h) Gardons nnd other fncilitios, wherovor posSiblo, for producti on 01 .frosh foodstuffs FInd othor comlI10ditios, for solf-sufficiency and cash incoma.

4. Govornmonts should undortaka a systematic survE:lY of all oxi sti ng Stati ons to dotormino to what oxt Gnt prosent establishments fall short of thos(; roquirements. Particulnr rogard should be pRid housing, cducntion Rnd training.

5.. Attontion is given to tho trnining of aborigines for useful work and to thoir guidnncG and suparvision during the s tagos of transiti on from s tRti on or compound lifo to sui tabla oCcupRtions in sottled comrnunities of self'-supporting and independent citizens.

6. I n tho housi ng of inhnbi tants of' stati ons, the compound systom should bo avoidod as f'ar as pOSSible, and housi ng should bo so arrnngod as to oncourago living a.f'ter the normal Australian manner Rnd tho prRctice of' hygiene, home c arc and normnl dOD1ostic self-depondonce. Care should be t nkGn that both sexes aro raisod to [L similar standard so thEtt, when they laave tho MiSSion, men f'.nd womon will bo able to maintain this stRndard.

7. Stgff' of stations should be specially selected and trf'.ioed and only qual1f'ied personnol ongRgod. Considornti on should be givon to the organis["tion of' [L special rocruiting and trai ni ng servico, [md to tho ostalJlishment of E'.groed mi nimum s tRndards.

8. All Governmental And Uission Stations should be subjoct to rogulRr inspection by the :f\TntivG !~ffairs and HOE'.lth Authorities and should bo assistod by thoso authoritios s and othor spoci alist dopartraents ns roquired 9 in organisi ng their " .:. work. .

9. Govornments should give considorntion to tho material noods of IvIissi on Stations and should, where necQssary, assist thom fi nanciRlly with their tlstC).blishmo nt and operf'.ti ng costs. Financial nssistRnco should, however, be condi4ional upon maintonanco of reasonable r.oquirGments of policy Hnd the attainment of tho Governmentts objoctivos.

6.

9.

10. In outlying areas ~ trading stores conductod as an adjunct of' a Govornment or Mission Station should be oncouraged as those can provido backward aboriginos with good trftining in the use of' monGY and tho bonef'i ts to be gained by individual

. of'f'ort.

STATEMENT ON THE FRANCHISE.

State Governments 8.1"0. asked to reviow and liboraliso their olGct oral laws with rof'oronc6 to the f'ranchiso f' or adult aborigines. It is recognisod that, under Soction 41 of' tho Con~onwaalth Constitution, cnrol~l1ont f'or Fodoral cloctions f'ollows directly f'rom enrOlment f'or state elections.

on completion of' the agonda, Ihr.Hasluck proposed to the

CQnf'oroncG tho establishment of' t:t Nativo Welf'are Council in order to

provide permanent l118.chinory for consultation and co-operation between

the various Austr8.li2,n administrations responsiblo f'or native wolf'aro.

On his motion, tho Conforenco agrood to tho f'ollowing resolution:-

In order t o promote c losor co-operation in the advancoment of native wolf'arc in Au-stralia, the Commonweal·th and the state Govornments will f'orm a NntiVEL we If' are Council COf,lposod of the Ministers concerned with native welf't1re. This Council will tlGet at loast once a yoar and will arrango othor consultati ons or tho oxamination of' particular problems of' nat iva Rdmi nistrati on as re9.uirod. The Comnonwe aIth Department of' Territories will provido a Socrotariat f'or this Gounci 1.

7. Tho opinion was eXpressod by members of tho Conf'oronc6 that

an ondoavour should bo made to hold tho f'irst mooti ng of the Counci 1

in tho first half' of' 1952.

l

Resolutions 4-1·Sof a Conferfnce on hea.l th problems in NOl"thern Austral ia held i nCanberra on 16th August, 1950, by representatives of Queensland, Weste,rn Australia, and Northern

, Te rri tory.

(Note. Action in pursuance of most of these recommenda-tions had been commenced before their approval by the Native We1f'areConference of' September, 1951.)

RESOLUTION 4. -- The-conrerence regards the present state of housing in North Australia as one of the most important factors in the depopulation of the north and the condition of' the inhabit­ants.

Recognising that material shortages and other considera­tions will prevent, for many years, erection of a sufficient number of dwellings of conventional types the conference recommends that the Commonwealth Building Research Laborator­ies give urgent attention to researoh into the possibility of developing, for eaoh area, a method of erecting suitable dwellings of pleasing design by the ,use of local materials and local labour. .

RESOLUTION 5. This con?crence recognises the need for continued entomo­

logical surveys for the north of Australia, as an ~rgent health and defence measure.

It especially recommends that the malaria drainage scheme at Cairns be m~dc of a permanent nature, as it regards this . of' gr(os-t Llj,Jortc.nce to nati'jl1al defence.

RESOLUTION 6. ---T~1j_8COnference reslizes the importance 01'9 and difficul­ties involved in? the control of' cO:.Jmunicable disease in tropical .,I},ustralia ::tna. recommends that the subject be referred to the National Health and Medical Research Council for advice on procedurEs. .

RESOLUTION 7. - ThIsconference considers it essential that the health authority of each State or Terri tory should ensure th8t the coloured population living in townShips does so under condi­tions of' sanitation whic h conform to the regulations and by­laws of the appropriate Health Act.

RE SOLUTION 8. --"ThiSconi\: renee commends to the notice of the C ommonwc 0,1 th Government with all possible emphasis the SEcurity risks involved in the failure of the mixed blood population to integrate into the white community in certain areas. The conditions under VJhich these I>eo1)lE live. are 1.8.rge1."'J res:vms­ible 1'or this 1'ailur'e Dnd the cOnI~er[nCe is of' the opinion that urgent consideration should be given to undertaking housing and other measures to remove their disabilities.

RESOLUTION 9. This conf'ercnce emphnsi zcs thn.t there is Eln e stobli shed

need :["01.' wCl:Carc VJorkers 9 WllO should be qualified nursC'·s. ·to visit the VJhitc ,~nd col.oured families in their IlC)mCS in tropic;.~l Austr:I.-lia ::111d it is rcoOrnll'Jcndcu t~t1.::~t such \vc>rlco:r's

Ghol1.1d l-':'Ic al)J)ointcd.

RESOLUTION 10. -'-- ThiS-conferEnce recoiil,ilenc1s that the Native Affairs Depart~Jent should, in consult&.tion with the central health authority, exercise control over the selection or allocation of sites ror '1overnUlent stations or mission stations to ensure thEt they are so located that - I

(i) there is an adequate and permanent supply of suitable water having regard to the purposes for which the station is to be established;

(ii) the situation is healthy;

(iii) there are reliable means of' access by land or seo and air.

RESOLUTION 11. ----Whereas-Social insecurity is inimical to the maintenance of the heol th of t he aborigines - the conference recommends that the policies of missions and Government stotions should be so directed thct they conform to on overall policy direct­ed to ensuring that the care, welfare and advancement of aborigines is capricd through all st2ges to theijtultimate placement in settled employment in the white community.

RESOLUTION 12. ----It is-recommended by the conference that all workers in mission and Government stations should be certified by the health Guthority as f'ree from communicable disease, provided that the certificotion of tuberculosis be by radiological and~ if necessary~ by bocteriological methods, these examinations to be repeated at regular intervals where practic2ble.

per-sons diagnosed os suffering fI'o,~; infectious tubeJr!:tll­oBis should be- i;.].nedi .tcly rCLlOved fro:1 contElCt with the n::::tive population.

RBSOLUTIOJ'T 13. ----rr-isrecommended b;y the conference that the Nutrition Section of the Commonwe81th Department of Health -

( i)

( u)

supply investigatory and advisory services relating to the diet of aborigines;

prepare for the guidance of the appropriate Health and Native Affairs authorities ration scales for natives of all age groups living on missions or GovErnment stations. These scales should take into account seasonal variations of food supply and should provide for the inclusion as far as possible of foods which the balanced economy of the area can provide.

,RESOLUTION 14. This conference recommends that regu18r and frequent

inspection of all missions and Government stations should '!IE: made by t he health au t hori ty and the' t suc h s tnt ions should conform in all rEspects with the health standards in regard to water supplies, sanit3tion~ diet Fnd control of communicable diseases, imposed on the white community in the State concerned, ond that the quality of housing provided should conform to a standard to be prescribed by the health authority.

BE SOLU~' ION-12. This conference reco'llmends tb[,t, where nf'tives are to

:be moved by departments, missions or employers, they should, -wherever practic2,ble, be eXG~ained for communicnble diseases by a competent person before moyement.

RESOLUTImr 16. --ThiS conference re commend s t h£!t every native should be medically examined before entering into employment to ensure that he is free from communicable disease and fit for the work to be undertaken.

'Medical opinion regarding the suitability of the employer and conditions of employment should also be obtai n­ed wherever possible.

The conference further recommends th2,t the method of implementing these recommendations be deSigned by the N:.:':tive Affairs and Health authoritiEs of each state or Territory in consultation. !

RESOLUTION 17. --- ThisCo'Ii'f"erence recommends that in medico.l emergencies the resources of onc authority should be placed at the disposal of an adjoining authority free of charge without regard to state or Territory borders.

RESOLUTION 18. --This conference recommends that facilities for medicel and dental care available for the population, both white and native, in any state' or Territory, should not be restricted by geographical boundaries to these administrative areas, but that contiguous authorities in consultation should devise measurES to overcome the anomalies which now exist along the borders.

STATEMENT ON NATIVE ylELFARE CONFERENCE 2 ,1951.

~~NISTER FOR TERRITORIES.

Mr. Speaker - I wish to inf'orm the House of' the results of' the Native Welf'are Conf'erence held at Canberra on September 3rd and 4th. The purpose of' this conf'erence, which took place at t he invitation of' the Commonwealth Government, . was to allow an exchange of' inf'ormation and a pooling of' experience between those who are actively engaged in native administration in Australia, and to seek agreement among them on the objectives of' native policy and the methods by which those objectives may best be served. The Governments of' New South Wales,Queensland~ South Australia and Western Australia accepted the invi tation to attend.

The Conf'erence achieved its purpose to the f'Ull. A series of' statements on outstanding problems were drawn up by· the conf'erence and accepted unanimously. These statements not only express the close identity of' ViCilS among Australian Governments bllt also indicate the activities in which the various administrations are at present engaged on behalf' of' our native peoples •

. Bef'ore revie~in~ the conclusions of' the Conf'erence, however,I would ask P~E'mbers to look back over the past century and a half' in order that the present conf'erence may be seen in its place in Australian histo.l.'Y. Broadly speaking, the history of' nat~ve administration in Australia f'alls into three periods. Initially, there was a brief' period at the time of' f'irst settlement in the various 0010nies 9 when the aboriginal inhabitants of' this continent were regarded as having equality bef'ore the law with other British subjects and when the missionary purpose of' bringing to them both civilisation and Ohri stiani ty was uppermost in men's minds.

Then, af'ter the inevitable clashes which f'ollowed the extension of' settleme~lt into tribal lands and af'ter the

. discouraging f'ailure of' early attempts to convert and instruct the. savage, there came a longer period when the aboriginal was regarded as being in a special class by himself', neither amenable to the law nor in practice able to enjoy the equality which had been a"corded to him in British theory artdOhristian faith. Administra·tion during this period was based on the . idea of' protecting the aborigines f'rom the harmf'ul ef'f'ects of' White settlerr.ent, either by placing them apart in reservations or by making special laws and :.:egulations to control the

. natives thE:mselves and the nc:tJ.:J'ns of' the white man towards them. During tLis period 9 tho attitudes of' white Australians were shaped chiefly by the fact trvlt the primitive aboriginal and the detribalised aborigtnal, who had learnt only a smattering of' European ways, did not f'ollow the same habits of' lif'e as the rest of'the community, were not restrained by the same beliE: f's Clnd customs as the whi to people but had belief's and customs of' their own, and could not look after themselves and earn tbeir own living in thG normal way. Theref'ore, the white people took measures to protect tbe n~tive people f'rom injury and to supply their wants but did both on a lOWer scale than would have beenthouo-\1t f'ittingf'or the rest of' the ,"ommunity.

During t his period f' there was considerable neglect

of' the. ab~riginal, due largely to the acc~¢ptance of the idea that h1S J:nevitable end was to live a lov1i' and primitive life until his race died out,and that, by his very nature, his own needs, and consequently his rights,were less than those of other people. Our actions during this period were redeem-ed q~acts of kindness 2nd compassion but not by any faith or hope, nor did they offE~ to the aboriginal of the future any place in life more attn.ctivc than that of beine: the dumb object of pity until he di~d.

Durin~-thepast half-century, hOWEver, this second :reriod h8s been rrtvin'" .place to [l third period .in which the ldea of protection yields to the ides. of the advancement of so~ial welfare of the natives in order that they may live the best life of Which they are capable and thnt they may eventually find a fitting place as members of the Australian community.

This change has been taking shape slowly for at least half a century, and th9 conf'erence recently held in . Canberra is the culmination of the activities of'many Austral­ians, both official and jJrivate, who have been working f'or many years to bring about a new understanding Df this great Australian social problem, and a clearer recognition of' the l'laims of the aborigine.l as an individual. .

The recent conferen:::ewos, in a sense, the intieil1tor . of a confererice of' officiais Which was held at Canberra in \1 1937, f'ollowing diecussion at a Prc~icrs' Conf'erence, and of a further conference of Federal end state officials held at Canberra 1n'1948 as a consequen:8 of a move initi2ted at the Premiers' Conference in 194.7 by the Minister for Nntive Affairs 1n Western Australia. The specinl SignificAnce of the recent meeting is to be found in tho f'2ct th3t it was a conference of MinIsters and that the sGope c:::' its discussions and i~'6:i~; .onclusions were wider in range and more definite in purpose than nt thB earlier meetin~s.

Because there is n good dea: of misrepresentation, both inside Austrcclio. anC! c\er.Jcas 9 on the subject of Austral­ian treatment o~ n~tivc peoples. I should like to remind Honourable Member·s thc,t :'he0'eD(;slS of this ,llove for the advancement of n::.tive )ccJL·ILS ~:.nd. t.be: f'Jilndations of our policy are distinctively AU3tr=-:liEw.Thc found~tions of our polic~7are two princtj·llc.~ whtch RODourr.ble Mel:Jbcrs on . both sides of the House will rEco~nise as abiding and treasured principles of our Austr'O.lian life 0 The first one. i s t~e principle of equ81ity of' opporturii ty. All of us 1n t h1S Chamber know Austr8.1ia as the Hlend of' opportuni ty", ar;d as the land of "the fair g::::t ~ and, having ourse Ive s 'benef1 ted f'rom the rule that a man should C2 'lbl~ to live the most usef'u~ life f'or which his capacity 1'::1:.'0 cL::'m? we will elso sh[\r~ 1n the idea that these phrases cnd 'GrlCSe id88s should have a slngle meaning for all vvhodwell with2-n our borders. The second great and abiding Austro.lian p:!:'incip~e whic h our gr~ndfa~hcrs o.nd fathers valued and handed on tous was th8.t 9 1n th1S country, there should be no division into classes but that men should stand on their own worth. That, too 9 is a principle which leads to the logical conclusion thct the coloured people who live in Austrolio should 1101; iJe regardod as a class but as part of the general community whenever ond as soon. 8S their advnnce­mcnt in civilisntion permits them to tak8 thclr place on satisfaotory terms as members of that communi ty.

. ":,·';1,,"_.

These two characteristic principles of Australian democracy are the foundation of Australian native policy and the justification of that policy. Some persons who advocate the cause of the natives will quote any source except an Australian source when they tell us about human rights. We do not have to learn these things in a strange accent. More that is fundamentally true in principle and well-established in practice concerning human rights and liberties and human­itarian reform oan be found in our national institutions and in our heritage of English law than in any of the wordy qual .. ifications and vague aspirations of the vari:Jus docum.:..nts or

. pat;Jphlets which are so freely quoted today. In placing before thls House proposals for the advano.ementof native welfare, I ,ase my case on the long-familiar British and Australian p!'elepts and examples of kindness to the suffering 9 help for the weak ~nd respect for the worth and dignity of the human persona offer­lng an Australian policy based on an Australian view. that was shaped in freedom in this lanch .

It will be seen that the two principles to which I have briefly referred relate in part to the rights of the individual and in part to the general well-being of the cOil1mun­tty. On the one hand$ we in Australia want to give the chance of a happy and a useful life to all our people; on the other hand, we want to build a society in which there shall be no minorities or special classes and in which the benefits yieldeO by society shall be accessible to all. Such an Australian society will not be completed until its advantages cover, too, our aboriginal people. .

While we state t llat as the idea1 9 however 9 we have to recoC(nise that many years of' sloVi and patient endeavour WiJl be needed before thE: ideal can be r~al ised: By .. ~0US. caus7:sr lan':e. nurobers of these ~eople are not 9 1n fact 9 . l~ a conch tlon today to enter into the full advantages of life in an Austral­i~ncqmmuni ty. . At the time of' the coming of the white ma:h, these i sol,ated beings we.re aprimi tive people ~ ape ople still 11 ving .at ,a leyel of material culture similar to t.hat· of the Stone Age' in Eu~ope? and we cannot expect them to .leap in bile generation across a .great valley of'technic",l change througQ whic.h the rest of mankind struggled slowly for thousandsbf','~ years. . Too. frequently sympathiserswi th the aborigines or· advocate s of t.heir cause are ignor~ntof or p,:t aside. the 8~a:rk t;act that, Inrge numbe7'8 of thef;1 arC'not at. thJ..s moment ,c:ap~?le .. ;, of entering tb,e general commUTIJ.. ty at an acceptable leYel' or"t!Jf mai.nt,aining themselves ini t. . There are many 9010ured:per:3:0ns who. have already learnt. f:r;:omthe white man how to live .gyaep'~'" . ably after themanrier of .bther Australians and are in fact dOing so, but there arerriany mbre who by reE'.son of ignorDnce and primitive habit certainly could not do so.

One fact that'. is too often overlooked is the ~'lide diversity in their condltion. At one end Of the scale is the primitive tribesman, a nomad who wanders naked in his tri~al. territory, hunting and gathering food 9 wholly bound by trl bal o"J.stom and belief~. Ascending the scale will be founopeopl~ .' in all stages of contact "wi th civilisation and 9f progr~ssin iJ education •.. We Dan declare the same ideal for all of them but, if we are to be reaiistic

9 we Will recognise that the rate of,

progress towards the attainment of that ideal will be very slow for many of them, that their immediate needs vary greatl;y

accordin.r.r to their present condition and that the methods by which their interests will be best served must from group to group and from period to period.

The recent Native Welfare Conference agreed that assimilation is the objective of native welfare measures. Assimilation means~ in practical terms~ that, in the course of time~ it is expected that all per~ons of aboriginal blood or mixed blood in Australia will live like white Australians t!o. The acceptance of this policy governs all other aspects of na ti ve affairs admini stra tion.

Seeing that the policy of assimilation determines the of other administrative measures, it calls for elose scrutiny. What are the other possible courses open to us? One alternative to a policy of assimilation is a policy of complete segregation of natives under conditions lower than those of t he rest of the communi ty. In examining this alternative~ the first point to be recognised is th3t eontact between the natives and the white people has nm, 'Tone so far that in no of this conti'nent are we dealing wi th a vi and more than two-thirds of the natives arc either de bali~ed or well 6n the way to lOSing their tribal life. te of the creation of large aboriginal reserves for the ive tribes in the North and Central Australia 9

contact with the remaining third is bound to increase at the volition of the natives as well as through the activities of the rilissionary, anthropologist 8.nd officic~l. Even if we wished to the remnant of trib:::.l l13.tivLs into some sort of

cal zoo in the isolf::tcd cornE.rs of the continent" it is extreme doubtful whether ~e could arrEst the curiosity that is daily ext"'" ndinrrtl1cir knowlcdO'E of WhitE ways.

The second point - and I make this without apology either to the cynics or the scientists - is that the blessings of ci isation are worth having. For many years pa , ople have been rather nervous of using phrases about carrying he ~less of civilisation to the savage for fear that they might accused of cQnt and hD~bug. The world today, however, is corning around agnin to the idea thnt inevitable change can be made n for the better. . We recognise now thet the noble nan benefi t from rne28ures taken to impI'ove his health s nutrition 9 :'0 teo.ch him better cultiv,:,tion, and to lead him in oi vil i8Ed Y~nys of life. We know thEt culture is not but that it either ch2nges or dies.. We know that the idea of progress~ once so easily derided, has the germ of truth in it. Assimilction does not mean the suppression of the eulture but. r2ther that, for gener8tion after cultur8,1 adjustment will t3ke The na ti ve grow into the society in which, by fClrce of hi ory~ they nre bound to live"

The third point is th::1t the 1- rge body of natives who are alrendy losing grip on their tribel'life or have lost it r will be left spiritually as welles m erial di 8sed unless sornethingsatisf'ying is put in the of r lost trib21 custorn~

Thus, segregation at a lower level of civilisation than the rEst of the community is out of the question for two­thirds of the coloured people and ',voclld be of only ne tive

value and p08 ihly of their ·race.

duration i'or the reiTIainder

AnDther alternetive is segre ion on st9ndards Which~ in the course of tioe, may improve to a stage similar to that Of the rest of the communi ty. Such s ion could place in settlements and missions occupied by natives. The objection to this policy is that, if it succeeds, we will build u.p :.D Aus-;ralia an ever-increasing body of people who belong to a separate caste, and who live iq Australia but are not cEmlJcrs e;f the Aus communi ty. We will create a Seri€5 of minority groups living in little bits of terri tory on their ovm. '(he more the method succeeds, the more awkward it w:\.ll be for it will re in the VE ry s on in Australia vihicl1 ViC have always sought to avoi,d, namely, the existenDC' of 2 racial group living on its own. In pursuit of a policy of assimilation, the settlement and the mission station can be used for the advancement of the native peoples and as a fer those of them who need protection during a transiti period. Some of those who cannot complete the transition may live and die on settlement s ~ but those who have the strength and c ty to develop their abili tie s more fully should hEve freedoill to enter into a

life in the general conmlUnity.

This leads uoto the major nt for a policy of assimilation. It is a policy cf unity. It gives to the aboriginal and to the person mixed blood a chance to shape his own lii'e. If he succeeds, .it places no li-mi t on his success but opens the door ful 0 Segregation of any kind opens the door into a peculia~ and separate world for coloured people only.

I propose to on the t a report of the pro-ceeding-sor the ,,;,;tht.. 'v'/clfc::rc COederf nC€:9 so I 'will not recapitulate the var10~s Cecisiane here.

The fin2tl :Ic::ci.s ion (: the Conference was to create a Native Welf''''rc CcuDci 1 ccm'-' sea of the Ministers in the Commonwealth and state DYCl~·.h'TIents who are concerned with native welfare"

Out or the disC1IBSi OClR 0:' this Council, we hope to see emerge prac'~i ce-l 8.~,'l. c :::'f'ec:;ive proposals for nat ion-wide action. The executive Ij.ty in native affairs remains wi th eacb. of the Governments in respect of its own terri tory" The Council fJents a bid for a bette.r native policy and a bid for closer ral·-state co-operation and mutual assistance to that endo

In c ion, I should 1 ike to acknowledge the value of the contribut:on made to the recent con:ference by the State represent ivco - the Han. Clive Evatt from NeVI South Wales~ the Hon. 1N~ U. liIoore fro(J QueenSland, the Hon. Victor Doney from We ern Australia and tiro W. R. penhall' from South Australia and b~,' their advisers. The nce Was a co-operative whtci.1 readily produced a plan :for co-operative action. Kne"lJin9; their minds on this subject, I feel that I con express to honourable members. the common thought of those who took part in the discussions. We have

6 •

• set ourselves a humane task; WE have t'ollnded our resolVE on a faith in the cap2city of human bein.R"s; we have shaped our plan on the best traditions of democratic life tn Australia; ~e want all those who are trying to build a better Australia to join wit h us in this effort. We want to make sure that everyone living in our country will be able to have a happy and a useful life - a life worthy of a human being.

Mr. Speaker, I lay on the table a copy of this statement and a report on the proceedings of the Native Welfare Conference and move that both papers be printed.

\

1. CITIZ.Ei~8hIF STATUS.

3.

'----..,..-----D8finition of EXeillpticn and its Legislativ~ action

ri s.

ines gnificance

necessary granting citizens'

,Cl·nsideraticn of 1950 CcnfercH1ce ResGlutions.'

P(licy~

Surveys asc~rtain tho p ence of diseases Fr8vbnticn Tr6J.tment cf disease CrjIi1n: uni ns Ambulance transport.

4. £D!IQ~TI(JI:{.

Specia.l pre-scheol and primary educaticn The part of Missions in special pre-school and primary

school education Bearding institutions for iVE: children Secondary Education Hostels in devoloped cCill;huni ties for sec'Jndary school

pupils The problem of adolescents Rural tro.ining

, Relatin[ educatic'n employment oppurtuni ty Tr2"ining' of teachers Use of sp aids.

Cc:ntrc 1 of cendi th ns cf cymcnt Licensing cif emplcyers Remunerntion fGr alJCriZine 1 ur Native emploYr.10nt service.

6. ' MISSION STATIONS.

Acceptance of the princip cbjectives cf icy Lecatien of Mission Stations Manag and Staff Administrative supervision We rk f0r aboril:::ines Hcusing hygiene Trdding stGre Finance Various s of Stations.

, 7. FRAHc:taSE.

Elit:ibili ty Eligibil UnifGrr:1i Pr(,pes

fer State S8

for Ccramonwe th franchise in franchise qualifications

special II:Iember{s) to bv elected by ured Aust

AGENDUM...1-.

OOMMONWRALTH AND STATES NATIVE WELFARE CONFERENCE. ..... 4 ••

OITIZENSHIP STATUSI

~ 4 __

Introduc ti On:

Under the Oommonwealth "Nationality and Oitizenship!! Act of 1948, "a person born in Australia after the commencement of this Act shall be an Australian citizen by birth." Also "a person who was a Bri Ush sub ject immediately prior to the date of commencement of the (Nationality and Oitizenship) Act (1948), shall, on that date 9 become an Australian citizen if -he was born in Australia." Under the Nationality Act 1920-46, lIAny person born within His Majesty's dominions .•• shall be deemed to be a British subjeet." Sonsequently all aborigines born in A.ustralia after the com;'1encement of the Act are Australian citizens. However g the rights of citizenship are restricted by the operation of various state Acts or Northern Territory OrdinanoeS 9 dealing with the aborigines.

lle~wi t i2JLQf 4bor~g~1£:

The various Acts and the Ordinance dealin~ with aborigines and part bloods in the mainland states and Northern Territory each have different definitions of "Aboriginel! (N.S.W. &: S.A.), 1'Aboriginal" (Qld. ~ N.T.) and."Native ll (W.A.) (See Appendix "An). In the ease of the Ordinance (N.T.) IIHalf­caste" is defined for the purpose of the legislation and would seem to include persons with any admixture of aborigh'lal blood (Ap1'e ndix "A"). tI:nalf-blood"is defined in tbe Queensland Act. In N.B,W' g the term "half-oaste" is used but is not defined while in Western Australia IIQuadroon" is defined (Appendix nAil).

In ~ertain circumstances p usually when the person is living a:fter the manner of a :full-blood aborigine, "half­<'Iaste lf, "half-blood", II quadroon" or, in the aase of the NO. rth-ern Territory, any person with a strain of aooriginal blood . are included in the definition of' "Aboril"Sine", "Aboriginalil

or "Native" for the purpose of the Act. In South Australia, "every ocrson ••• of less t han full blood ••• unless exempted ••• (is) an aborigine."

Some of the definitions and UBa?;e si n the Acts and Ordinances are more embracin~ than others; some arc striotly delineated, While others are only loosely stated. These differences were, no doubt, determined to a considerable degree by the varying conditions obtaining in the State or· Territory to which the legislation refers. While these vary­ing conditions still exist to a certain extent, it may be deSirable to bring some uniformity into the definition of "aborigine" between the states and the Northern Terri tory. Some part-aborigines may need to be classified as "aborigineslt

for their own protection, others of the same peroentage blood living under civilised conditions may feel it a racial dis­crimination to be so classified. Aoompromise clearly has to.

---~-.-----.------- --_. -.--------.~--------1. The oituation as it refers to Victoria ~nd T&smania is

not discussed in this paper.

'e struck. At the lower end of the scale there is a case for a l~ck ~f rigid definition, With the coloured person being given a certaln option as to whether he should be wlassified as an "aborigine" or not. .

~xempti0B-.~ its Significance.

The Northern Territory and all the mainland states have seotions in their Acts or Ordinance for the exemption, under certain conditions,' of the aborigine or half caste i'rom the provisions of the statutes.

Exemption ~~ does not imply full citizenship status for ~wo reasons:

(1) exemption CBn usually be rescinded,

(2) exemption from the Aboriginal Act or Ordinance does not, except in the case of South Australia 9 '

give exemption f'rom other AC'GS or Ordinances.

Thus, in the case of t he Northern Terri tory, exemption from the Aboriginal Ordinanoe allows an exempt half' caste to drink liquor at a licensed premises but does not allow an exempt. aborigine (Licensing Ordinance Sec. 141). Furt her, no aboriginal or half' cS ste native of' Australia, exempt or otherwise 9 can be grantEd a license under this Ordinance.

An sboriqinal native of Australia but not a h21f caste is expressly eXCltlded from the provisi'JQs of the Northern Terri tory Workmen! s Compensation 0::'0 immce. l'lo mention is m8de of exerlDtt',l1 in this Ordi.nance.

In Western Australia, the Natives (Qitizens' Rights) Act, 23 of' 1944, enables the granting of' full cit izenship rights to natives. However,in this e-ase, citizenship can also be cancelled or suspended in certain circumstances.

. South Australia adopts a diff'erent and broader approach to t he question of' exemption which virtually in the case of uneondi tional exemption means full citizenship. Two types of' exemption which ref'er specif'ically not only to the Aborigines Act but to any other Act are granted 9 one uncondit ional and the other limited. The limited exemption may be rescinded but, after being in f'orce three years~ becomes unconditional and cannot be rescinded.

It will be noted from Appendix uW· that the machinery and conditions for obtaining exemption varies between the states and Territory.

In one State (N.S.W.), an application in writing is required. This presupposes literacy in the aborigine. This is not a condition f'or white Australian citizenship and to enforce a written application may be considered as undue dis-crimination against coloured Australians. A certain standard of' health and, f'reedom from a number of' diseases are specified as conditions for the granting ofci tizenship rights under t he We stern Australian Act. Contracting any of the specif'ied diseases is grounds for rescinding the citizenship in this case.

3. Agendum I (cont.)~

While it is appreciated that the practical aspects of disease control are involved, this would appear\to be an explicit discrimination against the coloured Ausi:ralians. A condition for exemption that the aborigine should have a certain level of intelligence as in the South Australian Act may also be construed as discrimination. Although these various factors would be weighed when matters of exemption and citizenship are being considered, it may not be desirable that they should be stated explicitly in the Acts~

l,egislattvE!.._4ction necessi3....EY- for granting Oi tize~s I Rights.

To bring the legislation dealing with the aborigines into line with contemporary views of human rights, various . amendments and possibly fresh legislation seem necessary. First it should be legislatively possible for all aborigines or part bloods to attain full citizenship without the possib­ility of cancellation. Secondly, it would seem that this could be best obtained by progressive steps. One possibility is that the aborigine or part blood might first be granted conditional exemption from the aboriginal statute. This exemption could be rescinded under certain conditions. If· after a specified lapse of time the exemption has not been cancelled, it could automatically become permanent, During the period of exemption, either conch tional or permanent, the aborigine or part blood would be subject to restrictions under statut'es other than the Aboriginal Act or Or(}inance. After a further period,the aborigine or part blood could be granted conditional citizenship with the possibility of can­cellation as in the case of the Wes.tern Australian Natives (01 zenship Rights) Act. If not rescinded, these rights could be made unconditional after a period. The period of probation might in each case be waived at the discretion of the Minister. The desirability of. this procedure and its legislative implica­tions could be discussed.

Note: AgendUlIl No.7, HFranchise" deals with this specific aspect of citizenship.

Department of Territories, Canberra.

. August, 1951.

) APf:ENDIX "A",

(1) Definition of Abordlg!ne etc. in states =nd Northern Territory Statutes~ -----

New South \'Vales.

"3. In this Act, unless the context or subject matter otherwise indicates or reguires:-

fAborigine' means any full-blooded or half caste aboriginal who is a native of Australia and who is tel11.;)oro_rily or permanently resident in l"4ew South Wales."

n 5. (2) The followi ng persons shall be and be deemed to be

'aboriginals' within the meaning of this Act, namely -

(1) Any aboriginal native of the mainland of Australia or of any isla.nds in the territorial jurisdiction of Australia;

(ii) Any person who has a preponderance of the blood of aboriginals as defined in paragraph (i) hereof;

(iii) Any half-blood decla~ed by a judge or police magis­trate or two or more justices after trial to be in need of the protection of this Act, and who is ordered to be so protected;

(iv) Any half-blood who lives as wife or husband with an aborir;inal as hereinbefore defined, or who habit­ually associatEs wi th aborigiD31s as so defined;

(v) Any resident of a reserve othEr than an official or person authorised by the Protector;

(vi) A child living on a reserve with a mother who is an aboriginal as hereinbefore defiried:

Provided that an islander shall not be deemed to be an 'abor­iginal ti. within the meaning of this Act unless he is residing on a ;f re se rve • "

"4. (1) Every pe:t'son -

( a)

( b)

who is of full blood descended from the original inhabitants of Australia; or

who being of less than full blood is descended frOm the original inhabitants of Australia,

shall, unless exempted pursuant to section lla, be deemed to 8e an aborigine within the meaning of this Act.

(2) Inj~is Act 'aboriginal' means appertaining or relating to anU\'f!origine."

Western Australia.

"2. In this Act, unle ss the context otherwise requires -

•••• 'Native' means -

APfendiX itA" contd.)

. (a) any person of the full blood descended from the original inhabitants of Australia;

(b) subject to the exceptions stated in this definition any person of less than full blood who is descended from the origi nal inhabitants of Australia or from their full blood descendants, excepting however any person who is -

. (i) a quadroon under t'vventy-one years of age who nei thcr associates wi th or 11 ves sub­stantially after the manner of the class of perSons mentioned in paragraph (a) in this definition unless such quadroon is ordered by a magistrate to be classed as a native under this Act;

(i i) a quadroon over tiiJC nty -one years of age, unless that person is by the order of a magistrate ordered to be classed 8S a nativE under this Act, or requests that he be classed as a native under this Act; and

(iii) a person of Ie ss than quadroon blood who was born prior to the 31st day of December, 1936 g unless such person expressly applies to be brought under this Ac~ and the Minister consents."

Northern Territory.

"3. In this Ordinance, unle ss the contrary intention appears ...

'Aboriginal' means any person who is-

(a) an aboriginal native of Australia or of any of the is12nds adjacent or belonging thereto; or

(b) a half-caste who lives with an aboriginal native as wi~e or husband; or

(c) a half-caste who, other-wise than as the wife or husband of such an aboriginal native, habitually lives or associates with such aboriginal natives; or

( e)

(f)

a half-caste male ~hild who~e age does not appar­ently exceed twenty-one years; or

a female half caste not legally marriEd to a person who is substantially of European origin or descent and livinR: l;Hth her husband; or

a male half caste whose age exceeds twenty-one years and who, in the opinion of the Director, is incapable of managing his own affairs and is declared by the Director to be subject to this Ordina.noe. II

. 1l.:QfendiX l!A II 'contd:)

.3.

~. J)efinition of Part Bloods. ---------------~~~~~~~

New South Wales. ------.. No defini tiona

Queensland.

H (4) •• ••••

'Half-blood' - A pErson ~

(i) One of whose' parents was an aborigi rial and whose other parent had no strain of the blood of an aboriginal or abori ; or

(ii) Both of whose parents have a n of aboriginal blood, and who himself has a strain of more than twenty-five per cent. of aboriginal blood but who has not a preponderance of such blood;

In this ,definition the term I aboriginal' relates to an abol~iginal native of the mainland of Australia or of any islands in the territorial jurisdiction of Australia, but 6UC~1 teFl'] docs not include an islander;"

SOllt h, .Austre.1i a.

No defini tiQn.

We s t c :r:n ...!!Qs,tra Ii a.

111 Quadroon' means a person who is descended from the full blood originel inh8.bi tants of Australia ort he ir full blood descendants but who is only one-fourth of the original full blood. .

"3. (1) Any quadroon over twenty-one years of a may -

(a) on application being made by the Commissioner in t he pre scri bed manner to a magistrate be ordered to be classed as a native under this Act; or

( b) on his appli cation and wi th the consent of the Minister be classed as a n2tive Under this Aot.

(2) Any person J)ecember, 1936, and who apply to the Minister to consents. It

Northern Ter!itor~.

who was born prior to the 31st day of of less than quadroon blood may

be classed as a native if the Minister

III Half-caste I means any. person who is the IJffspri ng of par6nts~ onB but not both of whom is an cbo D21, and includES anypcrson one of whose parents is a half-c c."

Statutory Power for exempting Aborigines etc. from the Provisions of the state Acts and Northern Territory

Ordi nanc e s.

New South Wales. ---------- .-"Exemption of aborigines from provisions of Act and Regul­

ations (new seotion added, Act No. 13 1943, s.3(b»:

"18e.(1) The board may upon application in writing issue to any aborigine or person apparently an admixture of aboriginal blood who~ in the opinion of the board 9 ought no longer be subject to the provisions of this Act or there r~la­tion or any of such provisions~ a certificate in or to the effect of the prescribed form exemptinr,r such aborigine 'b'1" person from the provision of this Act or the lation specified therein. Upon the issue of such ce ificate ~nd until such t as such certificate may be cancelled as here-inafter- .provided, the provisions specified in such (;ertificate Shall not apply to or in respect of the abori or person apparently hav an admixture of aboriginal ood named in the certificate and any such aborigine or person shall be deemed not to be an aborigine or person having an ad'Tiixturt; of abor nal blood wi thin the rae the prov-isic>ns of this or the regulation SPecified ,such certifi-cate.

(2) The board na? at an;? time cf-meel any certLE'ic8te issued un~er this section and any person to whom any such certificate s been issued shall, upon being not ified of such cancellation, return the certificate to the board.

Any person who fails to return such certificate within the time cified in any such notification shall be guilty of an offence against this Act.

(3) Nothing in this section contained shall operate so as to preclude any aborigine or person apparently having an admixture of aboriginal blood to whom a certificate under this seotion has been issued from being nominated or appOinted as a member of t board or from holding office as such."

Queensland.

"Exemption.

(3) The or may, by writin~ under his hand in the prescribed form exemption from the provis ions of this Act to any ab who 9 in his opinion, no longer to be subject to this Act, and thereupon such abori nal·shall no longer be subject to this Act:

Provided that such exemption may be ed to sUGh concH tions as the Director may impose, inc condi tion that all money or property belonging to aboriF.;inal and held in trust by a protector shall continue to be--held in trust b~r such protector for such tL11e as may

-be deter;:ninE.d b.y the Director.

exemption,

and ~h7reupon ~~e provisions of this Act shall apply to such aborl.gl.nal as 11 no exemption had ever been granted. II

SOll t.t"! h. ust r:al~S!:.!.

"Exe,':;p ti on fr 0;'[; t. ct.

lla. (1). In any case Where the board is of opinion that any aborirrine by reason of his character and standard of intelligence 8.nd development should be exempted from the provis-ions of this Act, the board may, by notice in wri t ,declare that the aborigine shall cease to be an aborigine for the purpose of this Act. Any such declaration may be n:iade by the board whether or not an application is made by the person to whom the declaration refers.

(2). Any such declaration may be made unconditionally by the board and any unconditional declaration shall not be revocable. The board may~in any·case it thinks fit, make a limited declaration subject to any conditions as are thought f'i t by the board. If any such limited declaration is made and the bOard is subsequently of opinion that the person referred to in the declaration is not of the character or standard of intelligence or development to justi the continuance of the declaration, the board may? by notice in wri ting, revoke the limited declaration. If during the period of three years after the making of a limited declaration, the board dOES not revoke the limited declaration, the board shall, at the expiration of the said period 9 make an unconditional declaration in respect of the person referred to in the limited declaration. The board may, if it thinks fit, at any time prior to the expiration of the said period of three years9 make an unconditional declaration.

(3) •. During the time of any such uncondi ti onal or limited declaration is in force the person to whom it refers shall not be deemed to be an aboriginal f'or the purpose of this Act or an,i other bet. If any uncondi tioi.1al decl8r2,tion is made in respect of any person, the descendants of that person who are born aftEr the maldnJ. 0:[: t:18 dee1ar-Etton, shall not be deem?d to be 2.'.~,oriq;tnc8 for the pUr:::08c of.this or any other i~ct by rlj3ason of their relationship to the 9crson in respect of whom the deelaratinn is. made.

In any proceedings before any court under this or any other Act where it is m~terial for any purpose to prove whether or not a person is an aborigine and the eourt could 9

apart from this section, infer by reason of evidence before the court or otherwise thst the said person was an aboriginal 9 the onus of proving t hat a declaration was, at the relevant time, in force as regards the said person or any ancestor of the said person, as the case may. require, shall be upon the party to the proceedings seeking to prove that the said person was not an aborigine.

This subsection shall have application with respect to any ~rovision in any other Act where refe:rcnce is rna. de to a person \ however described in suc h provision) who is inc luded within the definition of 'aborigine' as defined by subsection (1) of section 4 of this Act.

(4). If~ on the applicaticJl1 of any abori 9 the

board. refuses to make a declaration under this sectioD, OP if the board revokes any such declaration? the applicant or, as the case may be, the person ref'erred to in the declaration may appeal to a special magistrate who may make such order on the appeal as appears to him just. Every such appeal shall be made within the time and in the manner prescribed. The special magistrate by such order may make any declaration which the board could make and subsections (2) and (3) shall apply to any such declar'2tion."

"72. The Minister may issue to any native who, in his opinion ought not to be subject to this Act, a certif'icate in wri t in!! under his hand that such na ti ve is exempt f'rom the provision of' this Act, and from and af'ter the issue of' such certif'icate such nE~tive shall be so exe;npt accordingly.

But any such certif'icate may be revoked at any time by the Minister, and thereupon this Act shall apply to such native as if' no such certif'icate had been issued.

Provided that any n2.tive Who is aggrieved on account of' the ref'usal by t he Minister to grant such certificate or of' the revocation by the Minister of' his certif'icate under this section may appeal to a magistrate in the magisterial district in which he resides. The magistrate may make such order regspd­ing the issue or revocation of' the certif'icates as in his opinion the justice of' the case requires, ('.nd such order shall be givLn ef'f'ect by the Minister. Such appeal shall be in nccord:nce with the regulations, which may prescribe the time for app~71iDg end the procedure to be followed."

"Exemption of' certain aborigine Is and half'-castes from the provisions of' the Ordinance.

"3A. - (1) The Director may, by notice in the Gnze tte declare that any person shall not be deemed to be an aboriginal or 2 helf-caste, as the case may be, for the purpOSE of' this Ordin2nce or of' the Jrovision thereof."

AGENDUM 2.

CQMM01~4LTH AND STATES NATl]]LWELFARE CONFEREN~

§OCIAL SERVICE BENEFITS

Int.!:.Qd]J,cii.Q!l~

Under the Commonwealth Social Services Consolidation Act 1947-50, aborigines under certain conditions can be beneficiaries in respect of -

1. Age and Invalid Pensions.

2. Widows I Pensions.

3. Maternity Allowances.

40 child Endowment.

5. Unemployment and Sickness Benefits.

These conditions are set out in Appendix I.

It will be noted that, in the case of the Northern Terri­tory and those States with exemption provisions in the aboriginal Acts, exemption on the part of the aborigine is a qualifying con­dition of eligibility for -

1. Age and Invalid Pensions.

2. Widows' Pensions t

3. Maternity Allowance.

but is not a condition of eligibility for other benefits.

Where there are no exemption provisions in the Acts, an aborigine c.an be a beneficiary for Age, Invalid and Widows Pensions, and Maternity Allowance if the "Director-General (of Social Services) is satisfied that ••• it is desirable that (that benefit) should be granted. II .

In the case of those States which do not have exemption provisions in their Acts the criterion adopted by the Department of Social Services is whether the aborigine lives in such social and economic conditions that would. entitle him to exemption, if he lived in a State which granted exemption.

The Social Services Consolidation Act also stipulates other persons or institutions on behalf of the native to whom social s.ervice benefits payments may be made. These conditions are given in Appendix 2 to this pap.er. In respect to Age, Invalid and Widows' Pensions, Maternity Allowance and Child Endowment, specific mention is made to aborigines, but in sub-section 123 (1) in respect to unemployment and sickness benefits no specific men­tion is made of aborigines.

2. Dis~ion

Social Services are an entitlement or privilege which the general community, through its elected GQvernments has provided for itself, and the benefits have been worked out having regard to the form of life and needs of that community. This generalised statement has some bearing in the consideration of the application of social services to aborigines. .

The general purposes of legislation for aborigines in the Australian community is to provide for the protection, care and

2 ..

AGEi"-DUIvI 2 (contd).

welfare of a class of people who are not regarded as· capable of taking their place in the general community as equal citizens wi thEuropeans? and for the a.duc2.tion and advancement of such people to a stage where they can be admitted to equal citizenship status. There are some diversions from a common policy between the respective governmental regions because of different inter­pretations of who is legally defined as an abor ine, and different conceptions of the time and manner of admittance to citizenship status.

However, the general purpose is to regard the persons legally classed as abori6ines as wards of the State, with the· state responsible for their care and welfare, to" the extent they

. cannot provide for themselves, until they are advanced to citizen-ship status. In effect there is guardianship legislation which contempl s thereunder providing all the things necessary to ensure the care, welfare etc. of the legally defined aborigines according to their needs,

There is thus a break-up into two aSses of those people who? in the genetic sense, might be termed as of the aboriginal race. There are those who are still legally classed as aborigines, and for whom special wardship by the state is provided, and there are those who have been admitted to full ci tizenship status and are no longer legally classed as aborigines but, as ordinary citizens of the community, responsible for making their own way in the general community and providing for their own needs.

Another very important consideration is that amongst those who are still wards of the State there are widely differing degrees of advancement ranging? through various stages, from the primitive and nomadic tribal native to those living in or in close proximi ty to settled cormnuni ties who are well advanced, largely self-dependsnt, and may be said to be practically next door to admittance to citizenship status. It follows that the needs of tllGse people vary from· the very simple needs of the primitive tribal native to the very advanced needs of the"townl! native. Likewise their understanding of the use and value of money varies· considerably •

. Eavingregard to this background, it would seem, on first consideration, that the proper approach is to restrict the application of social services to the members of the general community - and those would include persons of the aboriginal race admi tted to full ci tizenship - and to provide separately unQer thE: special native laws for those people who are still legally classed as aborigines. This would, in respect of the last mentioned cl"ass, enable assistance to be applied, according to the varying individual needs and understandings, by people who are specially trained and employed in the understanding and admin­istration of the affairs of natives.

It has been advocated by some people that all aborigines should be given full social benefits. On the 0 ther hand, there are many who question the wisdom of making these paymE:nts to natives because in some cases where they have been made they have led to a decline in the native's living standards and have halted the advancement of their welfare, in as much as they have accepted social" benefit payments as a means of' li velihood and have been content to live at the standard which such an income provides and give up vvage earnings.

It is difficult to deny that the payment of social benefits will have very different results in the" case of natives at different levels of progress towards civilisaticn.

AGENDUM 2 (contd).

, The qu~stion not just one of entitlement. A more important conside'ration ip the best use of the payments, and the thought which must be given ser iouscons ideration is whether, in

\ the ca~e of natives who have not reached ci ~ize:r;ship status,. the, expendlture should be controlled by an instJ.tutlon or authorlty charged with the care and welfare of natives. If this thought is adopted and considered in conjunction with the remarks on the varyipg needs and understandings of natives at different degrees of advancement, then it would seem that the logical idea would be not to apply the specially designated and defined social ser­vice payment~, ,but rather a common. fund, to be controlled by the administering author i ty and dispensed according to the needs and circumstances of th,e individual cases. Such a fund would of itself be asocial service fund.

It will be observed that the provisions of the Social Services Act are dissimilar in respect of -

Age and Invalid Pensions,

Widows' Ponsions,

ternity Allowances,

and that generally the qualifying condition ,is exemption from the native law or, in other words, attainment of citizenship status. The exception is in the case of Victoria (Tasmania may be dis­regarded) which does not have provision for exemption. To meet the Victorian position, the Director-General of Soc 1 Services himself applies a qualifying test which is not dissimilar to that which would be applied by the Commonwealth and the other states in granting an exemption.

The position with regard to child endowment is somewhat different. There is no attempt to d tinguish the recipients on the legal basis, as in the case of age 'and invalid pensions etc. There must inevitably be d icult questions of interpretation in which the Director-General must rely on the advice of the Native Affairs administering authorities. It could als 0 happen quite frequently that an aborigine might himself be a ward of the State under Native Affairs law, yet be itled to claim direct payments from social services for his dependent children. The remarks prev­iouslY Made on the question of the wisdom of direct payments in these cases should be considered.

In the case of unemployment and sickness benefits, there is again no attempt to distinguish the recipients on the 1 basis, and it is left to the Director-General of Social Services to apply a test of eligibility similar to that which would be applied in determining an exemption fro~ a Native Affairs Ordinance.

The foregoing notes relate to direct payments, but Appendix 2 of th agendum reveals an important set of provisions in the Social Serv Act 'iilhereby the administering authority of a State or Territory, or an institution or some authority. or person approved by the Director-General may be the recipient. Under the provisionsr ting to child endowment, missions are big claimants of benefits on behalf of children under their caree It is not always possible to ensure that the payments are applied specificallY to the interests of the children or other beneficiar s and not treated as a source af general revenue. Again, it does not follow that the needs of the children or other beneficiaries are the same in all circumstances, or that their needs can best be met in this way. If the trust fund system is adopted, there the disadVantage of the tendency to accumulate unclaimed or und tributed funds,

3. Questions for Consideration.

Questions for consideration are··;...

4. AGENDUM 2 (contd).

1. Is the present entitlement of exempted aborigines to s.ocial benefits satis£actory?

2. Should social service benefits be extended to people who are legally classed as aborigines and their· dependants, or should their requirements be provided for out of general funds provided specifically for the care and welfare of aborigines?

3. If is considered that the benef should be extended either wholly or in part -

(a) Is the present entitlement sat factory?

(b) Is the pres method of payment in the best interests of the aborigines? .

(c) Can qualification for social service benefits be related with advantage to progress in citizenship?

Department of Territories, Canberra, A.C.T. August, 1951.

1/ ,,\PPBNDIX/TO AI}:S1TDm~ 2. ---, -. j-------.-

'1. AGE PENSIONS XND INVj~LID PENSIONS. __ ~~ ___ .. o ... ___ • __ .. ~______ _ ._

"1,.-( 2) An age' pension or 'an invalid pension may be granted to an aboriginal native of\Australia if':-

( a~ He is for the time being exempt from the provisions of' the law of' the State', or Terri tory in which he resides relating to t he control of aboriginal natives; or

(b) He resides in a State or Territory the law of' which does not make provision for such exeinption,and the birector-General is satisfied that, by reaSon of t he character and of' the standard of' intellirwnce and social develo:pment of' thE native, it is desir­able that a pension should be granted to hLl,

but shall not otherwise be granted to such a native."

g. WIDOW'.§ PENSION.

"62. -( 2) A pension may be granted to an aboriginal native of ~ustralia if:-

(a) She is for the. tLne bt:inr.; eXE::,Jpt f'l~orilthe provisions of the la'N of the St8.-i~e or Terri tory in which she resides reL'tino~ to t he control of' 3. boriginal netives;, 01'"

(b) She resides in a state or Terri tory the law of which does not make provision for such exemption, and the birector-General is satisfied that~ by reason of the character and 6f' the standard of intelligence and social development of the native, it is desirable that a penSion should be granted to her,

but shall not otherwiSE: be granted to such a native. II '

~MA TERNITY il101NANCE,!.

"86.-(3) A maternity allowance may be granted to an aborig-i 'hal native of' Australia if:-

( a) She is'for the time being exempt from the provis­ions of the law of' the state or Territory in which she resides relating to the control of' aboriginal natives; or

She resides in a state or Territory the law of which does not make provision f'or suchexeillption, and the Director~General is satisfied that, by

, reason Jlf' the character and of the standard of intelligence and social development of the native, it is desirable that a maternity allowance should be granted to her,

but shall not otherwise be granted to Buch a native."

4. CHILD ENDOWMENT.

II An E ndOWtiJE nt may be granted to an a borigi nal native -of' Austrc.:lia unless:-

(a) he is c; or

(b) the chi respect of whom endowment is claimed is wholly or mainly dependent upon the OommonwE 81th or a state f'or his support. II

"Ill. An aboriginal na,title 01' Australia shall not be 1'ied to recEive an unemployment benefit or a sickness.

fit unless the DirEctor-General is sati ied that9 by reason of' the character and 01' the standard of intelligence and social development of' that native, it is desirable that this section should not apply. n

"47. Where1 in the opinion of the Director-General~ it is desirab::Le to do so~ he may direct the payment of the pension of an aboriginal native of Australia shall be made~ on behalf of the pensioner~ to an authority of a state or Territory controlling the affairs of Direc"'o­aboriginal natives~ or to some other "8.\lthority 01' p·01'son.illhorl t:l1J...~7- . General considers to be suitable for the purpose~ a~d payment shall, until the direction is revoked~ be made accordingly.1I

2. Widows' Pensi0Iill..

"76. Where 1 in the opinion of the Director-General, it is desL:2ble to do so~ he may direct that payment of the pension of an aboriginal native of Australia shall be made 1 on behalf of the pensioner~ to an authority of a state or Territory controlling the affairs of aboris­inal natives~ or to som.e other authority or 'person whom the Director­General considers to be suit-sble for the purpose 1 and payment stall~ unttl. the direction is revoked, be me.de accordingly."

"91. where~ in the opinion of the Director-General~ it is desireblo to do so~ he may direct thst payment of any sum payable by way cf maternity ellowance to an e.boriginal native of Australia or to any other person (whether of aboriginal blood or otherwise) who resL1o~; on an aboriginal station~ reserve or settlement shall be made~ Gn beh,glf of the aboriginal native or other person~ to an authority of a state or Terr i tor y controlling the affairs of a bor ig iual nativ:)::; 5'

or to some other authority or person whom the Director-General con­siders to be suitable for the purpose ~ and payment shall be mede· accordingly."

4. .Qh.lld ElJ..dill"ll!J.en.t.

"95( 1) Subject to this part~ a person who has tho custody~ CaJ:'('

and control of ohe or more children~ and an institution of which children 8.1'0 inm8tes ~ shall be qUP,lified to receive 2.n endOVn'18::::.t in respect of each such child in accordanco with this section • . . . ••• (6) Where an institution supervises and assists children 011",

or both of "'Ihose parents ere e.boriginal natives of Australia, b-,d; the children are not inmates of the insti tution~' endov1rment maY "we paid to the institution at the rate of Ten shillings per week per child based upon the aVerage number per week of such children supervised 8nd Rssisted during each end0wment period."

5. UnemplOYment and Sickne£~~~ll§fi~.

"123( 1) An unemploY~18nt benefit or a siclmess benefit shall be p2id~ in such manner 2S the Director-General determin;~,s ~ to the. beneficiary or to such other persnn~ on behalf of the beneficiary~ as is approved by the Director-General. 1I

!lli~rDUl,I ~.

QmliNIOm~TH AND ~IJ1ES NA TIVE WELF.l\RE CONFER~.

HEALTH.

At a conference held in Canberra during .;.ugust, 1950~ the health probleEJs in Northern Austr2_lia were discussed by representatives of' the States of' Western Australia, Queensland and the Northern Territory. (The Resolutions are attached, Appendix A.) .

It was considered that the proble~ of' the health of natives in Northern Australia is one with that of' the ~eneral oommunity and a programme for native medical care should be closely integrated with the health organisation for the whole population. Unless this were done, two separate and complete medical and he61th services would have to be urovided which would have serioUB disadvantaaes. - ~

:..:J

It was i icit in the disenssion end in the reco~~end­ations that the aon~erence considered that preventive. a~tion to combat disease was more important than purely therapeutic measures.

Some of' the recommendati ons made at the Conference have exclusi ve relevance to Northern llustr'alia but it might be appropriate f'or the Native Welf'are Conf'erence to consider them to determine in what degree they have Commonwealth-wide application and what practical administrative action can be proposed to implement the recommendations.

Resolution 4 dealing with .thE; question of' Housing was ref'erred to the Commonwc 13.1 th ExpErimental Building Station who nominated an officer to investigate the problem in Northern Australia. The general conclusion arrived at was that there exist local materi s in most parts of' Northern Australia that oDuld be used in the construction of low cost housing. Att&ched is a oOPY of' the G.E. B. S. Report (Appendix B) as it ref'ers to the Northern Terri tory.

Policy in respect of' Native Health covers:-

1.Sur.'{~.§....12._.~s...~~ rt a i n~~the....J2.£ evale nc e of' d i se as~.§..

Thi s involves a positive approach by systematic medical investigati on with individual examination and review until the native attains an awareness of' disease suff'icient to procupt hi,il to seek competent advice and treatment. Qui te a number of surveys h;we been carried iJut py .·~~le GOinnlOmvealth and state d ·)r-iti(;s dLl.dun: recent yea~'s9 and it is sU[J~gested that state and CO;::li:iOnWE 2.1th a'.1tllori ties nir;>.·bt schedule any surve~'s carried out into Datiye heal th9 sa~'9 since 1945. CollatLrn of the in::c~or:112ti(),1 w0ulr'! (Deble an 8.sseSS;"110 nt to be made of' wh2.t -",luther action in the field is required and the most economical and expeditious methods of' obtaining the further inf'ormation.

2. Pr~nt~

Active measures f'or the eradication of'tropical, communicable and other preventable disease include:-

{

(a)

( b)

2.

l\~dum 3 \contd.)

eliminat ion of t he carrie r by ident ification and treatment, if necessary in isolation; .

recognition, recording and review of contacts;

(c) immunisation of the susceptible;

(d) supervision of employment to prE;vcnt exposure of the nat ive to oommunicable disease or. industrial hazard and to avert the risk of TI2tives carrying infection to contacts in employment;

(e) soreening of migrant s and the control of l~ligration to prevent the dissemination of disease to new areas;

(f) study of diet patterns and education of the native and his empl02erin 10c21 dietetic roquircnonts under changing conditions; (See Appendix C).

(g) i8provE;~Ent of hy~iene by rCising the stand~rds of sanitation in settlc~cnts and c~mps with p3rticulBr attention to -

(i) assuring the safe and adequate supply, stnrage and distribution of water, .

(i1) safeguarding the preparation, si;.orage and serving of food~ .

(iii) establishing safe 1 routine methods of nightsoil and waste disposal,

(iv) inouloutingthe principles of and securing the provision of the necessary facili tiLs for a high. standard of personal hygiene - ablution, toilet, clothing, care of eating utensils,etc. 9

. (v) raising the standard of housing 2nd of domestic practice to "the level ncoess3ry for human securit~' and comfort;

(h) environmcntel control - reduction or elimination of environmental factors contributin~ to ill heslth bY1 for example 9 drainage and l110squi t~ control; .

(i). educetion of the native in communal 0. nd pe rscmal hygiene!J the aetiology and prevention of disease and the element s of nutri tion, mnternnl cmd child welfare ,etc.

3. T~~!~~Diseas~

This inv()lves not only tl1G .;:)I'ovisL:m of fully st2ffed and eguilJycd modern hos)it:-,.l ;:'ccco:~t1loc1,-·th:1n but <:'.1130 decentr2.1-ised sick bay ~nd aid ~ost provision on Missi:ns snd Stati0ns, adequately staffed ~n~cquippcd for the CBre of minor maladies and~hE detection of major diseases. Sympathetic, prompt and efficient treatmEnt of the minor malady will win the natives' confidence in European medical and nursing practice.

4. Qommunio~£Q§.

Agendum 3. Tcontd. y-

Development of wirEless, telegraphic e.nd postel commun­ieati on to fac iIi tate communicati on between the attendant in remote areas and the medical adviser.

Ambulance Transoort. t __ q ..... _

. By air, rOad or water for the evacuet ion of t he sick and injured requiring more specialised treatment than is loco.lly available. .

Points for Dis~ion.

(1) How far the recommcndctioTIs of the AU{J;ust 1950 Health Conference relate to the Australia-wide pPOblem of native health;

(2) Whet addi t ionel recommendations arc required to mO.ke the covere.ge /.ustr::,lia-widc.;

(3) What administrative action is requirEd:

(4)

(a) the Stctes, (b) by the Comuonwc~lth,

to implement the recommende.tions.

Oollation of scheduled material assembled by co.ch state or the Oomm'::Hlwco.l th on Surveys and investiga­tions into abor inal health in the post war period.

Dept. of Territ,Jries, Cnnberra.

August, 1951.

RESOLUTIONS.

APPENDIX I'll" (JWENDUM 3')

HEALTH ADMINISTRATION.

standards of' policy to be recommended ·f'or adoption in all states and Territories in respeot of': - .

( a) Townshi~: water supply, sanitation, housing, mosQuito control, . airport sanitation, hygieno suporvisi on.

RESOLUTION 1 - This conf'erence emphasizes that an adeQuate wator supply saf'ely distributed is essential f'or every community in North Australia. 'This supply should be of'the highost possible purity, of' the standard f'or hw-llan· consumption detorrninod by tho appropriate contral health authority and subjocted to regular inspoction. Tho' contral health authority should be vested with powors to compel the local authori ty to mai ntai n the wator at a s atisf'actory standard.

RESOLUTION 2 -This conf'oroncG urgos that the various co ntral hoalth authori t:j.os conduct survoys of' tho water supplies of' small c~mnunities in thoir tropical aroaswith a viow to taking .such action as In8Y bo necessary and practicablo to provido an adeQuato supply of' wator of' satisf'actory Quality.

RESOLTJTION 3 - This c bnf'orence recomme nds that where a suitable and suf'f'icient water supply is available the disposal of' night soil be by a water carriage system.

Where water supply is inadoQuate deep pit latrines constructed in accordanco with the by-laws under the Health Act are to be prof'erred.

Where both those systems aroimpracticablo, disposal should be by a pan system conductod strictly in accordance wi ththo by,-laws under tho Health Act in tho state or Torri tory conco rned.

RESOLUTION 4 -Tho conf'orence rogards the presontstato of' hOLlSi ng in North Australi a as one of' the most important f'actors in tho depopulation of' tho north and the degradati on of' t m i nhabi tants.

Recognising that material shortages and other conSiderations will prevont ~ f'or many years, erection of' a suf'f'icient numbor of' dwellings of' conventional type, tho conf'erence recomrrPnds that thoCommonwoalth Building Research LaboratoriGs give urgent attention to resoarch into the possibility of' devoloping, f'or each area, a mothod of' erecting suitable dweilings of' pleasing dosign by the 'usc} of' local matorials and local labour.

(b) Control of'. communicablo disGaso: Loprosy, malaria, do nguo, bOWGI infections, anklyostomiasis~ tuborculosis.

RESOLUTION 5 - This conf'eronciJ recognisos tho noed f'or conti nuod 0 ntomological surv~ys for tho north of' i'lUstr2liR, as an urgont hoalth and defonco.)lloasuro.

It Gspecially recommonds that tho malaria drainago s chome at Cai rns bo made of' a po n:mno nt nature, as it regards this of' groat importanco to nationaldofGnco.

( c)

2.

Appo ndix liN' (contd.l

RESOLUTION 6 - This con~erenc6 roalizes tho importance o~, and di~~iculties involved in, tho control o~ conrrnunicablo disease in tropical Australia and rocornrrP nds that tho subje ct be re~errCld to the National Health and Medical Research Council ~or advice on procedures.

Native communities in'Townships: Housing, water supply, sanitation, education, medical suporvision, child wol~aro.

RESOLUTION 7 - This conference c'onsidors it essential that tho health authority of each StatCl or Territory should Clnsuro that tho coloured population living in townships does so under conditions of sanitation Which conform to the regulations and by-laws of the appropriate Health Act.

RES OLUTI ON 8 - Thi s c onfo re nce comma nds to the noti ce of the COlmnonwoalth Govornmo nt with all possible emphasis the security risks involved in tho failure of the mixed blood population to intograto into tho white community in cortain aroas. Tho conditions under which these pooplo live are largGly responsiblo for this failure and the conference is of the opinion that urgent consideration should be given to undertaking housing and other moasures to remove their disabilities.

RESOLUTION 9 - This conference emphasizes that thero is an osta'6lished noed for welfare workors, who should be Clualified nurses, to visit the white and coloured families in their homos in tropical Australia and it is rocolUIlPnded that such workors should be appointed.

NATIVE .ADMINISTRJ\.TION~

Standards of health policy to be rocommonded for adoption in all States and Torritorios in respoct of~-

( a) Native Settlenn nts and Missi ons: Si to, policy, access, staff, sanitation, diet, housing, communication.

RESOLUTION 10 - This conforence recommends that the Native Affairs Department should, in consultation with tho CO ntral he 0.1 th authority, exe rcise control over the selection or allocation of sites for GovornmGnt stations or lnission stations to onsure that they are so located th~t -

- (i) there is an adequato and p~rmanent supply of suitable water having rogard to tho purposes for which the station is to be established;

(ii) the situation is healthy;

(iii) thore aro reliable nPans of' accoss by land or soa and air.

RESOLUTION 11 - Whoreas social insocurity is inimical to tho mainta.nanco of the hCf',lth of the> c.boriGin(;s -thG conforenco I'Ocow.r;Dndo tl1:~,t the policies of Lissions n,nc1 GevormJJnt sti'tions ohoulc1 bo so cliroctod th~,t they confoI'li~ to ,"..n ove rf'.ll ')olicy c1iroctod too nsuri n2 tlV",t tho cn.ro, vvolfrTG r,nc1 'ndvc:ncG.ont of r:.borisincs is cr:.rriod throl1~h :,,11 stngcs t o tho ir ul tb,n.to plac6!i1.o nt in settled employment in the white community.

3.

RZSOLUTION 12 - It is recoL, .. ,ended by the conference thf'.t p.ll vwrkers in mission fl.nd Government stati ons should be certified by the health authority as free from cOlTIffiunicabledisease, provided that the certification of tuberculosis be by radiological ~nd, if necessary, by bacteriological methods, these examinations to be repeated at regular intervals where practicable.

Persons diagnosed as suffering from infectious tuberculosis should be iII1m3diately removed from contact with the native population.

msSOLUTION 13 - It is recommended by the conference that the Nutri ti on Secti 0,1 of the Commonwealth Departme nt of Health -

(i) supply investigatory E>.nd advisory services relating to the diet of aborigines)

(ii) prepare fbrthe guidanco of the appropriate Health and Native Affairs authorities ration soales for natives of all ago groups living on missions or Govornmont stations. These soales should tako into account seasonal variations of food supply and should provide 'for the inclusion as far as possible of foods which the balancod economy of the area can provide.

RESOLUTION 14 - This confere neG ro oomriP nds that regular and freQuent-inspection of all missions and Government stations should be made by tho hoalth authority and that such stations should conforrll in all respects with tho health standards in rogard to wator supplies, sanitation, diet and control of communicable diseases, imposed on th6 white conm:utiity in the state concerned, and that tho Quality of housing provided should conform to a standard to b~ proscribed by the hoalth authority.

(b) General; Migration in rolationto disoase, conditions of employmont.

RESOLUTION 15 -This conforonco rGcornmonds that whoro nativos are to be moved by departments, missions or employers they should, wherever practicable, be Gxamined for cOMflunicable disoQses by a competont person beforel110vemont.

RESOLUTION 16 -This confor0nce rGcomnp nds that every native shouler be modically examined before entering into employmo nt to 0 nsura that ho is free from conmlUnicable· disease and fit for tho work to be undortakon.

Medical opinion regarding ,tho suitability of the employer and conditions of omployment should also be obtainod wherover ,possiblo.

The c onferenco further rocommo nds thr.>.t tho mO thod of implemo nti'ng theso recow.mEl ndations bG dosignod by tho Native Affairs and Health authorities of eaoh state or Torritory in consultation.

Medioal, Dental, NursinE,. and Ambulance ServicGs:

! aj Standard and sc ope. b Means of providing. c Co-operation with NativG Affairs d Co-ordination botweon contiguous

Admi nistrati nn. States and Territories.

4.

Appendix "A" (oontd.)

RESOLUTION 17 - This oonf'oronco recomlJlO nds that in medical emerge ncies the ro sources of' one authority should be placed at the disposal of' an adj oining authori ty f'ree of' charge without regard to StatG or TGrri tory bordGrs. .

RESOLUTION 18 - Thi s conf'ere nce re comma nds that f'acili ties f'or m0dical and do ntal care available f'or the population, both white and native, in any Stato or Territory, should. not be restricted by geographical boundaries to these administrative areas, but that contiguous authorities in consultation should devise measures to overcome the anomalies which now exist along tho borders.

Administration and other measures dGsignGd to f'acilitate attainmont of' those standards;

RESOLUTION 19 - This conf'erence is of opinion that it shOUld as at present constituted ITlGot again in six months' time to consider f'urther the problGms relating to hGal th and nHtive we If'aro in tropical Australia, to note tho progress made Rnd if nocessary to make further rOciOl1nne ndations.

RESOLUTION 20 - This conf'Grenco realises that it has made a number of' recommendations Which will entail thG exp~nditure of' a considGrablo amount of'money. Tho State s have not f'unds availablG to implement all tho re cornm:;; ndations madG and it is strongly urged that funds bG mado availablo by the CommonwCictlth as those aro matters of' national importanco.

APPENDIX 11 B" TO AGENDUM3. -----

mpART~:lENT OF WORKS l~ND HOUSING. COMMONVVEALTH EXPERI~;IENTi~r:BUILDINGSTATION.

-~------..--------.. • --.-01

HOUSING 1mB N~~TlVE POJ?UL.~TI on. - .... . --.... --~"- .. --A ort based upon an t?xtended visi to the Northern Territory.

A on a survey sponsored by the Commomvealth bepartme nt of Publi c Heal th~ and made by an officer of the Commonweel th Experimental Building Station.

SectiOll 1: .Qbje.2tive.

1.01 ~s a result of representations by the Minister for h to the Mini stei1 for National Development 9 the Station provided an officer to make the survey, with instructions to as sess:

Existing Gonditions of accommodation. Proper minimum condi tions. Local resources for implementing (ii).

Sectio..D...,g: Itin~£l.

2.01 The selected officer arrived in Darwin on Monday, 22nd January, 1951. An itine had been pre-ar by the Deputy Director of h, Dr. Watsford, in con-junction with the Director of' Native AfTairs 9 Mr. Moy; arrangements had been made for the following areas to be visited:

Bagot (Native Affairs settlement). Berrimah (Native irs settle'ilent). Bathurst Island (Ro~l1an Catholic mi ssion). Melville Island, Snake Bay (Native ,,: .. frairs settlEi'Jent), Delissaville (Native .Arf'airs settle:'lent). Millingimbi (Methodist Mission). Elcho Island (Methodist mission). Yirrkalla (Method mission)~ Oenpelli (Church of England mission).

2.02. Upon return to Darwin there were discussions with the Administrator (Mr. R.H. Driver), the Director of Native Affairs, the Roman Catholic Bishop, the Director of Works, Department of Works and Housing 9 the President, Methodist Missionary Society, and the Editor of the "Standard" newspaper. A public address was delivered at 8 p.m., Friday, 9th February 9 on methods of building with local materials, earth-wall and stone in particular. The meeting was presided over by the Administrator, who was supported by the Deputy Director of Health, the Director of Works, and the Director of Native Affairs.

2.03 At the conclusion of the work in the Northern coastal sector, tran r was made to Alice Springs as an oper­ational base 9 where an itinerary had been pre-arranged by the Medical Superintendent9 Dr. Welton. Liaison was effected with the Acting Director of Native Afi'airs,

i..ppe ndix "Bu -j'. gend urn 3 .. .,-' (connd.)

Mr. McCoy, and vi si t s we re arr2nged to a number of cattle stations and to the following native settlements;

Barroloola (Native Affairs settlement). Yuendumu (Native Affairs settle,nent). Hermcnsburg (Lutheran Mission).

Section 3: ExiGtin~ Conditions. ___ '_.n____ __,~_.;.w. ___ " _____ _

3.01 Wlt'l'er21 fe'l[J exce;)tions 9 tbe buts at the ne.tive settle­ment s PD(' ca',,!s visited were substandard and grossly un­hygienic. Condi tions varied somewhat, 8.ccordin,'!, to the availabi1it~1 of discarded war-time materiols, which had been used in effort~ to provide better'accommodation and sanitation. In oertain places no such materials were available and the shelters were consequently primitive, and in others huts made wi th such materiels were rapidly deteriorating and would in a short time be entirely use­less. However 9 without exception the accoD1,llodatioD was inadequate and over-crowding prevailed.'

3.02 Generally, but not without exceptions, the natives were left to their own devices in constructing humpies out of whatever scrap materials were available in their areas. In some instances Missionaries, Native Affairs officers, and the owners of cattle stations had assisted the~nat­ives to build better huts 9 but usually ~nder ~reat dif­ficulties 9 owing to the Lack of what theJ unde~stood to be suitable building materials.

3.03 Earth floors were the general rule in the huts inspecte::d. Several new huts with concrete floors were seen, the occupants being provided with rough beds, ang at one settlement clean sea-sand had been spread qn t he concrete f'loors. These arrangements can be r:ecommended9 but proper use of' them will depend upon the gradual training of' the uaers, as the customs and habits of' the adult nat­ives uitigate against the proper usc of such amenities. Por instancE::, the native uses the ~1ut to store his few, possessiuns, and sleeps indoors only durin~ inclement weather - he is accustomed to sleeping on the ~round, : gougin~ a hole to fit the hip - he frequently expector­ates on the floor 1Ni thml.t rer;a"c for his surroundinp-;s; he is aDt ,to ',18e any w()oden 0bject to f'eed his camp fire rather than walk a short distance to obtain bush. timber. The younger generation is being trained out" of these ways in the schools 9 but children quicklY", regress to the former state when they retl,lrn to family life. Half-castes do not usually follow the customs and habits of full-blood natives; it is therefore 'easier to plan for them.

3.04 There was everywhere an obvious desire on the part of, responsi ble peo,ille to improve the accommodati on an,d sani tary arrangements for, the nativ~s9 provided some assistance Qouldbe given in respect of plans and ~ advice tendered as to t he use of local materials WhlCh would ,permi t 01' construe'tion QY n.ative effort.

. " Section, 4! Minirp,.Y.m Condl tions..,Beguired. , ". "

4.01 Plans ,for standard buildings for native settlenlent should be produced as quickly, as; possible~, together with

i-

, .

j.Ol

!l2.i2endix ~]~~ -Agendum 3

conid:")

specificaj;ions for the work to be carr-ied out wi til· loc­ally obtainable materials. }articular atclention should be paid. to school layout s, as it is UlJon early tra5- ning in hygiene that the future health of the coloured people will depend. Each settlement should have a crafts work­shop, and the natives should be encouraged to learn the handling end manipulation of building tools.

The components of houses and settlement buildings must be the subject of design fora variety of different conditions; they should therefore be dealt with accord­ing to the materials available in each pa~ticular dis­trict.

Houses for natives shouid be of not less than three rooms, minimum rOO,11 size 80 sq. ft. 9 or of two rooms and open veranda, with recess for cooking stove when .amps are not provided with community kitchens. A shower re.ess should be incorporated 9 or? alternatively, ablution sheds erected, separate for males and females.

Natives! houses should be provided with a window or a hinged shutter to each rooDl? but it is suggested that additional adequate ventilation should be provided indir­ectly to outer air through the eeilings to the roof space and thence by open. eaves. Some such method is nC0essar~ owing to the native custom of bIasing doors and windows

. agai nst the entry. of evil spirits; al tcrnati vely 9 the native is likely to build an open fire indoors to ward off the spiri ts.This dOE: s not apply to houses for half-castes. .

A sufficient number of hOUSES should be built at each scttlc~cnt to make it possible to limit the number of persons t6 each house. (Extreme cases of overcrowding were tbc rule ra.thf,r then t.hc e~ception at the camps inspected.)

The most uJ:'crent nE ed (which cannot be too strongly emphasized) is for proper sanitary arrangements to be made at every native camp immediately. It is suggested that this should be done by means of latrines, and that separate buildings be provided for malES and females. Each case requires individual planning according to avail­able water supply 9 the situation (to avoid contamination of catchment or spring water), and any other conditions whic h would help to determine th.e type of service. Seat accommodation should be provided at the rate of one to ten persons 9 b:=:sed on the average, number living at the settlement or camp.

Wherever pOSSible, something better than earth flbors should be provided 9 e. g., concrete flooy·s or stone flag-ging (see Para. 5.04).· .

Sec ii9!L21 Re .£.21:lli!1Q.D~]ui 1 d i.Q&-~~.t:!.2d.§..

Because of its universal availability and low nost, earth-wall construction is recommended 13.8 the principal building material for these isolated settlements and camps •. , The material is eminently suit able f'or the northern climate and conditions, and has the added ad-

5.04

5.05

·5·06

vantages of' being fire- and termi te-proof.

In districts .where cyclonic disturbances are likely to ·occur the walls can be given greater thicknesses or . buttressing can be incorporated? thus providing ~tronger structures than the best of those now existing.

Adequate protection e . .o:ainst the tronical rains would be essential 1'01' the earth walls, and owing to ffae probable

. dif':ficl~l ties in providing suitable coatings and in prop­erly maintai ning those surfaces, it is considered that the earth material for the walls should be stabilized. Scarci ty of Portland cement and the need of it for other urgent work suggests stabilization with emulsified bi tumen.

In a number of' places stone, which is available in the nearby hilla, would be sui table for the foot ings and bases of.earth walls. For instance, at Yuendumu good building stone was found at a distance of :four miles from the settlement; this would present no quarrying problems as large quantities of good spalla were avail­able, also great quantities of flat stone, in approx­imately 2-in. thick laminations which would serve as f'lagged flooring.

~lans have been prepared for the.·main buildings at this settlement, but no work commenced o"wing, it is understood, to lack of materials •. All of the work could be carried out with local materials and native iabour. Tests were made of selected soils which were found suit able, and trial blocks were moulded using a roughly made wooden mould and a steel concrete block-making mould. A block was also made with one part Portland oement to fifteen parts of ant-hill materia+. A method of field analysis for selection of' soils was demonstrated, and the demon­strations were Watched by the Superintendent and two Baptist missionaries.

The HeY':nansburr-: Lutheran Missi'-m Settle::'"E'nt is an old­est~blished settle~C!ent (approxir~ately 70 years old) and the main buildi:::""s and residences of t he missionaries were built of stone by t he pi oneers. Very good work is being done by the missionary to rehouse the natives, and two good small houses wel~e seen which had been re­oently built, one with concrete blocks and one timber­framed with the walls 'Qovered with "Solomitlf.compressed straw sheets; both were roofed with "Solomi til and fin- .­ished wi th bituminous roofing felt. The greatest dis­advantage was said to be the high co~t ,of the completed houses. The suggestion that similar buildings could be made with earth walls was received by the Missionary in Charge, !Jastor Albrecht, . wi th considerable enthusiasm,· and soils were selected and analysed,· and methods dis­cussed. These met hod 8 would very greatly reduce costs ~nd would eliminate t he delays caused by waiting for materials.

During the inspection of the Native Affairs e;ttlement .. at Delissaville, it was found that a progress~ve prog-

5.

ramme of' work f'or the rebutlding of' the natives' huts and other buildings was being carried out with native labour, but with considerable dif'ficulty owing to the shortage of' suitable materials. The Superintendent showed keenintere st in eart h wall const ruction methods and soils were selected during the visit and a series ' of tests carried out.

5·03 'l'he forE:c;oing ti,19ifyconditions found on visits to other settlCl!1ents in the IJortb 9 thou'!:1 there were var~linc; cir­cumstances.

5.09 At Snake Bay, Melville Island, oypress pine was avail­able in quanti ties somewhat more than normally required for the s8ttlement's own building needs. At Millingimbi, cypress pine was available in more limited quantities. At both· of th"se settlements medium-sized sawmills had been set up.

5.10 The problem which is most difficult of' immediate sol-ution is that of roofing. Cypress pine, with its termite­reSisting quality, appears to be the most suitable material for roof' f'raming; however, there are very limited supplies generally available locally. It is oonsidered that it may ~e necessary to obtain metal roof framing from the Southern States for much of the bigger work. Materials f'or covering roof's are not obtainable locally, but it is known that there are persons who are keen to undertake industrial ac­tivities involving tiles and asbestos cement.

5.11 At all settlements vi si ted it was found t h2t t he Superin­tendent, one of the missionaries, or an assistant, had good knowledge of' building construction, and at the maj­ority of plsces, one or two half-castes had carried out construction work and were able to undertake the duties of a foreman. It is therefore considered that with some training in the methods of using local materials, these people could carry out their own building prog­rammes, using native labour. Suits.ble earth material in inexhaustible qU2.ntities was :[,ound within re2.c11 at all of thE: settlements 'visitcd, c,na surplus n2.tivelLbour Was available foY" the work.

5.12 As a result o~ these observations it is su~gested that:

(a) Each settlement 9 mission, 2.nd Cattle station . should be responsible for its own building work.

( b)

( c)

Half-castes might be trained as tradesmen. (Full-blooded aboriginals are usually only suited to lebouring work, 2nd require constant supervision.)

Certain places have advantages over others in avail­ability of such materials as stone, limestone. de­posits, oypress pine, or other timbers •. Advice should therefore be conveniently accessible to the responsible officers on the best uses of t heir local materials and the methods of use.

A pool of' sim~!le mechanized earth-mixing, ramming, and moulding equipment should be ere3ted, from which loan or hire could be mpde to settlements, miSSions, stations, and the like.

6.

Ap~-'endix B -£=.gendum'i­

(conrd:)

5.13 Subject to more detailed study of individual require­ments. Emd possible combinations of locally available materlals, the fallowing structural possibilities are suggested:

Wall~12artition:

FIQ.2.£.§.:

Doors and Door --:Prame s.,L--

Stone, shaped or rubble. Stabilized earth.

Pise (rammed earth) preferably bitu­men stabilized. Adobe (sun-dried block) preferably bitumen stabilized. Rammed ant-bed.

As for external walls.

Rammed stabilized earth with washable finish, although concrete or stone is to be preferred.

Cypress pine.' Steel angle or tube.

Corrugated iron. Paper bark. Reed mats impregnated with bitumen. Stabilized earth tilES (experimental).

Cypress pine, bloodwood, or other available timber cut and shaped on si te.·

Top-hinged shutters with hinged wooden stays.

Shower recess fitted with shower rose set high, and tap SEt at about 3 ft. fro::J t he floor.

Simple solid-fuel oven ranp:E.

Any ot he: r refine(01c nts are thou,rrht to be superfluous for aborigi ntHs.

S~ction 6: Gen~ral.

6.01 Enquiry elicited the fact that noreafforestation of cypress pine is being carried out in the North. This seems to be short sighted, particularly in view of the present limited quantities~ and it is considercd that the matter should, bee.xamined vvithout delay. The growth of cypress pine should be fostered at as many settlements and areas as possible, and seedlings ob­tained from the Forestry Department's nurseries for replanting in those areas.

6.02 Although the subject is beyond the scope of this report, it is thought worthwhile recording the alarming amount of damage caused in the North by the particularly vor­acious type of termi te there, which, moreover, is said to be spreading southward. Although dEfensive moas...,. ures were being taken and studied to prevent timber in

\uiidings :from be attacked, the menace was acceDted as inevitable end no effort was apparently be made· to attack the cause or check the vast increase.

6.03 Methods for the extermination of colonies and the treet­·ment of mounds are given in a booklet 1 Trade Oiroular No. 36, "Termites (White Ants)" 9 issued by the Oommon­wealth Scientific and Industrial Resear.ch Organization. Fro:n the details given in this 9 it appears that blowing arsenic powder into the nest or mound is the best method for use.

6.04 In vieYJ o:E the fore ng, it j_s thour"ht that :for the badly infested 2nd populated districts of the North, a campaign coul(! be inaugurated to treat as many nests and mounds as :Jossiple by the methods recommended in Trade Oircular No. 36, giving partioular attention to that part of the mound or nest where the wi termites are usually found. Oosts would be small when cons ered in relation to the total loss to the nation which is caus by termites.

G. F. Middleton, March, 1951.

~PENDIX C JO AGENDUM 3

.Q.Q1Illl!!ONWEALTH DEPAR,IMENT...QF HEALTH TNVESTIGATIONS INTO THE DIET AND NUTRITIONAL STATUS OF AUSTRA11AN

---.- ABORIGINES

1. NOR.THID1N AUSTBALIMLNUTRITION_SURVEY:

At the request of the Northern Australia Development

Committee, a survey Was made dMring 1947/48 of the nutrition of the

inha bi tants of Northern Australia. Incidental to the field work

with white Australians the nutritional status of some aboriginal

populations was studied.

2. ARNHEM LAND EXPEDITION:

A nutritionist and biochemi were attached to the joint

Australian/American Scientific Expedition which carried out field

work at various aentres in Arnhem Land during 1948. The inves­

tigations were mainly concerned with aborigines living in a

tribal or near tribal o8ndition.

3. NUTRITIONIST ATTACHED TO THE ]\;il.TIVE j,FFAIRS ]RANCH....:OF _TH]; NORTHERN TERRITORY ADMINISTRATIoN~ ..,. "--, -

During 1948/49 a nutritioni was attached to the Native

Jlffairs Branch and made certain investigations into the diet and

nutrition of aborigines on Government stations in the Northern

Territory.

4. WESTERN AUSTRil1 IA DIETARY SlIRVEY:

A team of nutritionists from the Nutrition Section of the

Commonweal th Department of Health opera ted in Western i.ustralia

during 1951. The problem of diet of aborigines from the Kimberleys

in the north to the far south west was studied in the field. One

of the ends to which the investigations were directed was the

implementation of Resolution 13(ii) of the August 1950 Conference

on health problems in Northern Australia - formulation of ration

scales for Missions and Government stations.

This investigation is shortly to be

Northern Territory.

, .

ended into the

AG BHDUll!I-..1.

COlfi;~OHWBALTH AND STATBS 1\'ATIVE VVi;LFArtE OONR'F.]!!.ENCE. ----------------------.-------. ------

A policy for native education presupposes an ultimate object.ive as the purpose of that education. Nith this ultimate objective clearly settled~ it becomes a matter of studying the various needs to be catered for and determining the best means to adopt in providing for them.

From a consideration of the various IJative Affairs laws of liustralia and the general trend of policy in aboriginal administration~ it seems clear that there is a fairly general acceptance of a policy of ultimate assimilation - that is assimila": tion of the aborigine into the general community and the European way of life.·· If that continues to be the general policy, then the long .term purpose of native education is clear. It is to educate the aborigine so that he may be able to not only understand the way of life in which he is to participate,. but also to take his place as a self-supporting individual of the general community~ contributing his fair quota of work and talent· to its economic life and accepting its standards of conduct and general obligations.

But all long term policy objectives must be reduced to action procedures, and this inevitably means getting dcwn to a consideration of the individuals to be dealt with, and working out immediate progranmes into which the individuals· can be fitted. There is .so much diversity in the present standards of the abcriginE:s in their classes and age groups, and in their cultural backgrliunds, that there is no single prograrrune which can be devised tc: meet all circumstances. There must be programmes of varicus kinds ttl meet the needs of the vQ.rious classes and types - juvenile, adolescent and adult.

Te sum up these introductory renarks 11 t is suggested that the long term obj~ctive of nativa aducati6n must be education f~r living in the European cC::ll:1Uni ty. Etluca tion £J1US t embrace the spiri tual as well as the cultural and must include educaticn for wcrk and cth\3r useful endeavour. The means must be scught in various prograi:uues designed to fit the va.riuus types of individuals according to their present standards and cultural environment ~ and advancemen t LlUSt be sought progressively and anticipated· gradually"

It is assumed that wherever practical and ccnveniel1t~ participaticn in the normal educ~tion facilities of the European CCllllJUni ty will be permitted the aborigine; the extent of such

. participatic.n depending upon the capacity of the indi.';ridual to takE:) h1s cr her place therein and upon the strength of the white prejudice in the lccali ty. At the same time it is assQl11ed that the

. abcrigine who is capable cf participating inths ncrmal education facili ties Gf the white cOil1illUni ty will· not be denied the right, if he·sc chooses~ tu attend a special school establithed fer his race, if that scheol is suitable to and fitted to his needs. The question cf ccmpanicnsl1ip nay aSSUIlle sema iLlporta.nce.

In the light cf those introductcry remarks, some ccn­sideratiLn might be given tc special needs of native·education.

§:e e c i al-Er..~:.. S chc c i a!!5Lt r if!?!.IL§.£hSJ2.1.§..

There seChlS tc be reom for the estahl j shnF'::-lt cf special schools designed fer nati vo cl1ildren- pel'tl"lpS predr~lJ.inantly . full- bl(>(jd but wi th n en fer part- blecds where thGse canno t be fitted into no1'1:1al schocls. A.lthc.ugh p:cejudice will to sorJe extent enter ihto tho ccnsid0rc~ticns ~ tho C2.se for these schcols seerlS to rest Dainly on the inability cf th~ abo:ciginal child to take his place readily, Q.go for age~ side by side with the European child, because of [E:·noral backwilrdness D.cC(;rding tc' European stc:.nc1ards and 1 <"'.n A' 11 ".(.'.'"'\.

2.

AGEND~JlV13 (contd.).

These schools will require special curricula and special methods adapted to the individuals, as well as specialised tea.chers trained purposely fer the task. Hygiene and languat:;e training will feature in a nUillber of these schools, particularly the lcwer grades.

Consideraticn will need to be given to such matters as -

The organisation to adr.llinister the schools; The link with the nornal educa.tiGn orgo.nisaticn, and The transition of adv<J.nced pupils from these schools to

the ho rmal s chc 01 s.

It shculd not be necessary that all such schcols should

i ~ _~ .... .1.

be run and staffed by the GcvernElent. NW:1bers of native childrel1

requiring this type cf assistance -lidll be fcund on Mission S-::'at~lon3 or in touch with 1:i ssien St&tions. There is no reason why the Kissicns who already provide educaticn facilities for their aberiginal children should nct continue in this field, but arrango­D18nts will need to be cem8 to between the Gcvernr:1.ent and the lfissions as tc; curricula, standards of teachers~ a.nd buildir:gs etc. Some consideration will also heed to b8 given to the question of Gov8r.L11flent fin::.tncial assistance tc the Missions in this field.

CCL1.I1onweal th policy towards Mission Schcols is that while the Ccmmomveal th accepts respcnsibili ty fer providing prir18.ry aed subsequently pc..st-prLliary educ.:,ticn and also aciul t educ:ation, jn order fully tc Utilise all available facilities, it will assist ll;~issicns to the extent that they are providing an educ.J.ticn which, in the view cf the Com.:llcnweal th, meets the requisite standal'c1s. Assistance may be in the fcrm of providing grants-in-aid fer buildings, equipment cr to meet the ccsts cf trainGd teachers, Grants are conai ticnal upon inspection cf schccls and prevision b~r the Fission b,.dies of trained te3.chers fGllcwing approved curricGla,

§£ecig) bs::.§I.~in[igsti~uticg~_[£!:-E.ativ~-.£hi.hdren.

The need fer these is apparent. It applies particularly to the abandenec1 half-c3.stechildren who are not catered fer cn Gcvern~~nt o~ kission Staticns. Th8Y8ay be set up under the aegis cf religiGus or charit2~la crganis2ticns' or Day be establi~hnd or run by the GGV2Tn.t:1C:nt. Th(:re cord twe types; the se in which t;:08 teaching is given at the insti tutL,n and thcse~vhic.b. c.lre run en tho hGstel b2_sis with the children gC'ing '~ut dE',ily to [, CCn'l8ni-Ed1.t established school. In the former case there n8eds tc be the se;;s arrange::lent with thE: Governmbnt wi th regard tc: curri:::ula, sta~'ldards etc., and in both cases the need for Gcverllilent fin;:mcial SUpp0'-~-;-. will be apparent.

at::: CCJlld£E.l_Eudcflo tion.

It :.:night be anticipated that a greati;:)l~ proportien of abcrigine children will be capable of being catered fer in the ncr::1al schOlls at the secondary stage, but thE:re ,,'1111 be nGVertild­less the need to provide special secondary schools forscme cf the1:1. Th.;;se schcols r:light fc..llGVJ the SarJ8 pattern as pri1:lary schcc.ls. That is to say, Gcvern.":l(;mt scheels will be established where the likely attend2.nce and ether circumsb.nces justify ~ and Kissicns will provide cn their Stations facilities for the highe~ standard of educaticn.

Technical training in arts and crafts, (:cE1cstic sciences and trad8s shGuld bE< given proninonce, and sp8cial a.ttenticn shculd be paid tc the types cf e.nplcyaent likelY to be aV3.ilable in the lLcali ty.

AGEIWUIid 4 (contd.)

In many instances? particularly in the remoter areas, it may not be possi blo to organise special secondary education facili ties 9 or it may no t be wise to attempt tc do so? because employment opportunities in the locality are negli£,ible. Consid·eration should therefore be given to the establishment of hostels in the more intensely settled communities to which children at the secondary education stage may be brought and cared for whilst they pursue their higher education course. These will have the advantage o·f prQviding early contact with the community in which the children will be expected to gain their future liveli­hood.

Th£-E.rcblem_~L§:.dol§:'~Qts •.

This problem may arise in two ways. There is the problem of the adolescent who is so backward that he cannot be catered for ~n the c~d~na.ry primary classes 0f the ~pe?ial native scho?ls. SpecIal prcvlslon must be made for hlm, as It IS generally unWlse to m-ix him with the lower age groups. Wherever possible, instit­utions specially catering for this type shOUld be considered. Secondly, there is the adolescent who has completed education as far as he or she can be taken, and is ready to enter employment ei ther directly or as a trainee apprentice. This is probably the most dangerous stage of all. In many cases it involves mcving in of youths from Missions and other isolated centres to settled communities in the search for employment. Lack of experience, the sudden transition and the absence of a real home environment can easily combine to contribute to the demoralisation of these youths. Without the greatest care at this stage years of patient endEaVour and training can quickly be undone, and the development e:f an unsavoury poor class town type encouraged.

The hostels appear to be the answer to this problem; places where the adolescent in the transition stage from pupil to employee may be hcused and cared for under good ccnditions and with good companionship, and given guidance and help in the choi6e of employment and in meeting the challenges which the new environment sets him or her.

Ru!:.al_6!:2.ining.

Whilst the foregoing nutes relate mainly to establish­ments which might be considered in senoral primary education and in training fer professions and trades? the need for training in rur2~1 occup2.ticns. must net be cvalcoked. It is important because of the need to encourage greater self-sufficiency 0f the aborigine in the intermedi.ate stages, and because of the natural environment cf the abGrigine which make s him sui table to cut-door occupations~ Further, there is need to make greater use of the aborigine as a labour force in the rural economy.

The aborigine is by inclination usually a good stocillnan, but he is not e.lways a willing agriculturalist. This is partly due to a mental attitude derived from his cultUral background. Nevertheless, if he is to be a useful force for his own good as well as that cf the community, he must be taught the value of agricul tural work and mnde to be a good agricul turalist~

Rural training may take two forms. First, much can be done on l\Iissions and Government Static.ns where the environment is suitable. Partly for self-sufficiency purposes and partly as training grounds, these Ste,tions should be encouraged to develop stock and agricultural activities. These should be unGer the contrcl of trained managers,. and the form of training should b? by emploYli18nt of the abor igine s on useful tasks, by del"ucns tratlon and by talks. The aim shculd be tc turn cut youths. and men

AGENDUM 4 (contd). 4.

who, according to their degrees of efficiency, may take up employment in rural work or enter into land holding as entrepreneurs on their own account. Allied with this should be a good employment service and the manager of a stock or agricultural enterprise on a Station should accept the responsi­bilityof endeavouring to place his trainees in useful jobs. Properly· run, these Stations could provide a good recruiting ground for trained native labour.

Every such Station which undertakes stock and agricul-t;ural activities should be listed on the visiting list of the Stock and Agricultural Department Extension Services. Training should include mechanical work peculiar to the stock and agricultural industries, as well as stock m8J.lagement and cultural practices. Secondly, there may be room for special aboriginal rural training establish:rtr~nts for youths, run somewhat on the lines of the State Agricultural Colleges, where specialised training can be provided. This will depend upon the extent of agricultural activities available in the locality and the consequent demand for trained personnel, and also upon the extent to which normal institutions of a similar nature cannot cope with the requirements.

One ·of the main difficulties likely to be experienced with advanced education is that sufficient employment opportunities may not be available in the remote localities to which the aborigines have been driven, ane where they are first picked up by the educationalists. It may be necessary to contemplate moving

.considerable numbers of the youths at the advanced education stage to different environments where there are more opportunities for useful employment. Thus their final training will be carried ou.t close to possible absorption places, and their placement in useful employment 'will be facilitated. 1I10ves of this nature may also need to be contemplated for the purpose of moving aborigines" from places where prejudice against them is strong to places where they might more readily be accepted into the white community and their placenent into fields of employment,with equal opportunity to EurOpCJJ1S Hore easilyfacili tated. The special hostels previously referred to can play an important part in arrangements of this nature.

Training of Teachers.

The sp8cialised services which must be created for aborigine education, and the special problems associated with the education and advancement of the aborigines call for teachers who must have specialised knowledge not· usually imparted in the training of teachers for normal European schools. SpeCial training courses must therefore be provided. The practicability of organising and maintaining a training centre will, to some extent, be depend8nt upon the size of the service demanded. There may be room to consider whether the COlilillonweal th and the States pool their resources for the purpose of centralising this activity so as to bo sure of creating a really effective organisation. Some consideration should also be given to the use which can be made of University facilities.

The use of speCial aids.

In aany instances the first contact of the aborigine child with education is a contact vvi th the unknown. He has to be brought by speCial processes from the known to the unknol'ln,and experience has shown that the cultural background of the aborigine child and his usual form of expression suggest that special aids

5.

by illustration as a means of ezpressi on cail_do Duch .. to hasten his appreciation of the lessons sought to be ihlpo.rted.. Such work as has already been done in this field is still in the exploratory stage, Ql1.d probably thoro is rOOD for a good deal nore cidvanc8nent in the enployaentof Dcthoc1s such as this in Llparting kno'Nledge. Sone consideration night be given to research in this field with regard to the adoption of v:::Lri2..ble techniqiles according to loc2.tion and the naturo.l forr:l of expressio"l in that location. Such research night well be built into the organisation

established for the training of teachers.

Questions to be considered.

1. Is there gcnoro.l ~1grGenent on the long tera obje cti ve of aboriGinill education?

2. To what extent cem n.ativcs receive their education in the existin.g educQtion systens of the various States Cilld 'l'crri tory?

3. To wh~t extent are special and soparo.te schools for J1J.tives needcd: what kind of spcciul schools are needed: what should be the relationship between such special niltive schools and the norn2l education systens of the States or Territory?

4. Is it necessary to ",lake speci2l provision for the rural training of natives whose life will be spent on stations or farns?

5. Rccr'J.i tIlcnt a~ld trClining of teachers.

6. The various types of services to be provided in catering for the needs, e.g.

Prinary schools.

Secondary schools.

Missions.

Hostels.

Rural training.

Trades and allpronticeship.

Enploynent placement.

De~artnbnt of Territories, Canberra, August, 1951.

AGENDUM 5.

cor.ThmmVEALTH ANl! STATES NATIVE WELFARE CONFERENCE

EMPLOYMENT OF ABORIGINES.

INTRODUCTION.

The employment of aborigines .and the regulation of the conditions of their employment presents many complex problems. This may b.e attributed to many causes, amongst which are -

(a) The needs of the aborigine vary considerably accordlng to the degree of advancement towards European standards, and frequently the attitude to work is dictated by how much is needed to satisfy limited immediate needs.

(b) The degree of proficiency as workers varies considerall1y.

(c) The lack of a full appreciation in the more outlying areas of the use and value of a money economy, and the means by which labour maybe rewarded and needs satisfied by the exchange of money.

(d) Tribal affinities and customs in the outlying areas whereby the employer must contemplate the employment of the aborigine as incurring an obligation to provid0 sustenance, and sometimes accOmrilodation, for the aborigine's tribal dependants.

(e) Social barriers and prejudices which exist between whi te and coloured workers, anc~ which foster the idea that the aborigine's place in employment, irrespective of his degree of advancement, is in the menial low paid tasks, or which impose strictures which may prevent tho fully advanced aborigine from joining a Union appropriate to his calling and from obtaining the Award and other benefits which Llembership of a Union can give him.

(f) A widely held belief th3.t vifhilst the aborigine I s needs arc snall he requires less reward for satisfaction of his labour than the European worker.

In SOLle quarters there is J.. pressure to place all o.boriginos on the S8YI.C money wage standards as European. worL_._. This is 3. ~hc~rat~~~l or ideological viewpoint which loses sigh~ of tho practical implications, the variable factors in the problem, and tho proper sense of relative values. ]loreover, the provision of a cash income for 3.n aborigine vvorkor ~"H'r and above what he has loarned to nEoed and use in an intelligent Pf-1Yl-~ for his own and his family's good, may often do more harm than good. D3.rwin has had exporience of the profligate use of taxis, and the penchant for gambling by aborigines with. R.urplus cash for which they have no irJ.Illediate need.

For the purposes of considering this general problem of employment, it might be convenient to divide the aborigines into two particular classes -

2. AGENDUM 5 (contd).

C.) Those who are fully advanced and can be o.dmitted to full citizenship status.

(b) Those who are not sufficientlY'advanced to be adnittcd to full citizenship status, and for whom a special provision LlUSt still be made under Native Affairs laws.

So far as the first class is concerned, the nain problems El.?peo.r to be to deterl"iline thE: steps \i,hich rJight be to.ken to rCLlove a:w social barriers 2nd strictures which prevent then enj oying the SaEle rights , privileges and opportu..rii ties for employ­Lwnt and o.dvo.ncenent therein as European vvor1ccrs •.

It is tho second class, however, which presents the chief proble:o.s.

Control of the conditions of eIilploynent.

One of the first questions which ;::crise is whether any official control should bd exercised over tho conditions of employncnt of aborigines, tinct who should exercise that control.

As the o.borigine is generally regarded o.s the ward of the Sto.te until he is o.dvo.nced to full citizenship, there is a noral responsibility on the sto.tc to (;nsurG tho.t he is not explOited, o.nd tho.t where use is Dade of his labour the conditions of his ei;lployncnt are fair Gnd reasonable. ApClrt from this Clny uncontrolled bClrgo.ining betV'wen the European er,11Jloyer o.nd the aborigil18 worker vlould be heavily loaded ecgo.inst the latter beco.use of his generally inferior conceptions and his lack of bargaining power - tho.t is power to seek legal redress or amiinistrative support.

It would soen that the best authority to control conditions of enployncnt is the State or Territory o.uthority charged with the administration of native affairs, o.lthough the view no.y be held by SODe tho.t sp6cial no.tive lo.bour enployr.lent o.gencies should be established.

Licensing of cr~l~ers.

If conditions of cnployncnt are to be controlled, the quest:i,.on arises as to vlhethor enployors of 2-bori3;inc lo.bour should be licensed. Where this practice has been adopted it'ho.s generally been for three Bain purposos:-

(a) To cnnble the controlling 2uthority to identify the enployer.

(b) To pcruit of conCitions being attached to a licence in the hands of the holder.

(c) To ensure 2. code of conduct ,o.nongst enployers and peEli t of unsui table Guployers being c.isqualified.

The conference uisht consider whEther this pro.ctice should be continued, 8.l1.d eLlso the conditions which should generally be o.ttacho.ble to licences.

3.

!.GENDUM 5 (contd).

Renuneration for aborigine labour.

This is probably the nost difficult question in connection with the eDploynent of· aborigines. It involves such considerations as - .

(a) Payment in goods and services.

(b) Paynent in cash •

. (c) Official control of cash wages in whole or in part.

(d) Responsibility for tribal dependants.

(e) AccoBilodation.

(f) Capacity to regulCJ.te conditions precisely.

(g) Fixing of nininUB conditions.

(h) Rights to indopendentbargaining.

Sone attenpts have boen nade to regulate precisely the conditions of eDploynent, but thoy cannot bo said to have oporated with entire satisfaction, This is largely because aborigines vary considerably in skills, in the will to work m1d in their requirenents for sCJ.tisfaction of nedds. The last-nentioned point cannot be dismissed because what would be regarded as poor paynent by em advanced aborigine who has le<J.rned to appreciate a high degree of wants Day be a nagnificent award to one who has not learned to Ilppreciate anything beyond the siDplest of wants. In the latter case, there is Ctlways the dCtl1ger thCtt pCtynent beyond wants Day succeed in keeping in indolence trib<J.l brothers who otherwise are able to work.

It could be argued that getting the aborigines into useful omploynent is tho prinary consideration, and reI:lUneration is the secondary consideration which can progressively advance as the aborigine is educated to appreciate and deDand gre:cter useful wants.

It is possi ble that SODe Dl11H1UIl conditions should be prescribed covering such Datters as standards of food and accorrmodation to be provided? but when cash reward is c011sidered the question becoD0s debatable.

Paynent in goods and services aSSUIlGS greater importance the less advanced the aborigine is. The inportant question of naint2.ining the nutrition and health of the aborigine and his dependants CQl1.l1.ot be ignored.

Paynont in cash can be a nixGd blessing. It needs to be carefully considered in relation to the aborigine's state of advrulceDen~,particul~rly in the appreciation of the use of noney Ctnd how it can be applied to i41prove his living conditions. If this is disregarded entirely, wrong conceptions nay be obtained and degenerCtting prClctices encouraged.

4. AGENTIUM 5 (contd).

Attenpts have been Dade to protoct the aborigine by official control of the whole or part of his noney wages. In sorne respects, that control has been directod to protecting him ag,'2inst unscrupulous eLlployers, whilst in others it has been directed to protecting the aborigine fran the dispensation of funds which he has not yet learned to eBploy proporly.

The right to independent bargaining as between the enployor and the aborigine worker for conditions beyond those proscribed as the niniyaUD is difficult to resist. Without it

,the right of the aborigine to advance with his inproveE18nt in skill and the incentive to so inprove would be lost. With the need tD protect the uborigine against tho possession of cash which he is not able or qualified to expopd to good advffi~tage arises the question whether to enploy the device of holding part of the co.sh rer.mnero.ti on in offi cial trust or to arbitrarily restrict the renuneration.

ND.tive employmen~ service.

Too I.1Uch importance cann.ot bo attached to tho need for em efficient service if it is to effectively foster the enployment of o.borigines and control tho conditions of their cnployncnt. Tho organisation Dust be geared to keep closely and constantly in touch with aborigine labour available, to find avenues of employnent and encourago o.cceptance thereof. It l'J.ust be o.ble to settle pror;1ptly and on the spot questions of enployncntconditions between cnployer and aborigine lo.bourer, and Dust be capable of and willing to act cOl1sicentiously and purposefu:J..ly in policing the concli tions of erllploynent.

WherE resort is had to :Ulanaging aborigines' wages in trust, care Dust be exercised to see that adEl.inistration does not becone set in its ways and perfunctory in nanagenent.

An interest Bust be taken in each aborigine, and in encouraging hin in ways by which the Donies held for hin nay be expended to his advantage and in the interests of his progression. The aborigine should also be kept infor:r:18d as to where he stands anct taught to appreciate the advffilt2.ge of the s2ving ago.inst the greater needs that he he will corte to appreciate and wzmt. Too much centraliso.tion of this activi ty at the head office level should be avoided.

Questions which Dust be considered under this heading are -

1. Should thc conditions of aborigine cnployncnt be controlled in a special way, and if so by what authority?

2. How is tho.t o.uthority best constituted, and who.t functions should it be required to assune?

3. To what extent can conch tions be prescribed by statute or order? and to what extent LlUSt they be c1eterLlined in individual co.ses by the controlling authority?

4. Should paYIlsnt in goods and services be encouraged?

5. Should the po.y:pent of cash wages·be linited to the cLlployee's capo.city to use then wisely or should control take the forn of withholding part in trust accounts for

5. AGENDUM 5 (contd).

later expenditure under official release?

6. Should employers be licensed and if so what general conditions are appropriate to licenses?

7. Should responsibility for sus tenance for td bal dependants be provided in the conditions of employment in certain cases such~s pastoral employees, or made an obligation of the State?

8. The position of the native who is capable of taking his place side by side with European worfu~en and enjoying award conditions and rates of pay.

Department of Te.rri tories, CAN.a~RRA. h.C.T. August, 1951.

COMMOKN2ALTE AND STATES NATIVE -vVELFARE CONFERENCE. ----------------------------- --

Beth govern:nental anG Christian missicns have been working a:J.cng the natives in Austre.lic.. for nore than a century. The passage of tiLle. anu changin§: conGi tions have brcught about I:larkec1 changes in the act1 vi ties ef the Stati'~ns. The StatL n as a place of first contact

. hardly exists to-Clay, as there are f6w, if any, abc rigines in Australia whc have not illade contact with civilisation in some degreE< cr ether. To-day tho pattern is variec1,and the missicn stations have varicus forms l·f establishrl1ent and differ in .IJ~thod according to their lccationanc1 the class and stand s of abcr1gines fer whom they care.

The Christian ini ssions have a relig1c us purpose which, it is generally agreeci, lies above anG ap3.rt frcD any state activity, but mest lf th8I:1 also serve the physical anc~ naterial welfare of the abcri§,ines ane. help in their secular instruction. In this phase of their w(.rk, th8ir aiDS ane, activities are parallel t, .. those cf the vdricus hustralian gcverffilents Qne the missions arerE;ccgnised by g0verrr.'lents as bE-ing an essential ally in the ae~vancenent nati ve welfare. G0verrunent staticns.and Christian missicns, except where the last-nentLned are C. eve only tGthe teachingcf the gospel, can therefcre be Giscussed tcgether, rSB83bering always that the religious purpose of the fJ.issions ,nay affect their l:Jethods ane~ will c.eter;nine their ul til:late aim.

There are fl2_rkeG diff0rences in degrees cf success ~chi ? by beth classes cf mission staticns, but these are due mostly tc factors of locality, ;::.ana£er.1ent ane: interpretation. Generally tho value of these Stations in furthering the 3aterial cbj6ctives c~epcnc.s upon sE::veral factors] seLl'S of which are discusseC in the paragraphs which fcllcl'l} •

~~cept~g~~_cf~g~rin~~E~!~£1~tiy~~0f_E~!icl·

It is now gemlrally acc8pted by GcvernI.1ents that assi:'lilati(,n is thE; lcng terr.l cbjective ef nE.tive affairs policy, but this is not always fully acceptee:. by the·Uissicns ane:, in sen\;;; Cb.S ,by the ill3.nagers cf Gcverm:ent Stathns. In sene instances there s Q Fltrong tE:nd ancy to try tG k8ep the abcrigines pernanE;ntly 1Ivi thin the Mi ssion are&s, and tc cppcse rath&r than encourage ccntact with the whites. OnG Missicn is knL.wn to have incluGed in the aius fer its Mission area the establish­"--lent therecn of CV:lLlUni ties c f abc rig-ines where they Day live under a cCElilluna.l fc.rl,l of existence. Little thought has been given to econc;,lic ccnsiGeraticns which must necessarily impose lisitaticns on the success uf such a venture, but it is apparent that the idea cf permanent seE.regaticn is c.cLlinant,

A cC1lJllunal fura c f living is inevitable en many welfare staticns? but in the lcng tern view thi scan cnly be regarcee1 as an intermeciate stage in the advance;:lent of the aborigine am:: net the terminal point.

T(c earlY ane. toe frequent ccntact with the white ccnmunity in the early. stages has often been tc the aborigine's cisadvantage, but that is nl t &11 due t". the fact cf contact itself. In so,me instances, the aborigine has net beenprcperlypreparec. fer bQntact, whilst often thE: fault li8s in net providing the follc;w-up welfare service to keep in touch wi th the C":borigine ane. h31p pilot hL:"1 throuGh the ini tiaticn cr tr:;nsition stage.

It is not surprising that the idee:. Gf segrc(:c:ticn still has some inflUence on the policy of Stations. For very Dany yeo.rs native c:.ffairs policy swun[ v8.riably between the opposine: fcrces of assimila­ticn and sogregaticn, a~c: CV2n to-Gay there are still adherents of the s8t,regation pelicy. The plain effect, hewever, is that economic forces will make it increasingly more difficult to maintain the

-2- AGENDUM 6 (contd).

abori s in segregation. The world's for food alone demands putting Australia's land to the higher uses wherever possible. Thi s cer:lanc, inevitably must encourage the re of the whi te culture and the restriction of the lanGs which can reservod Gxclusively for the abo to live thereon their cld form of life.

is necessary that all Stations, GoverlliJent anc1 Missicn, accept at n as the principal aim of cy ane direct their activities

acce inely. Would it be a fair say that the success of a. Station c,Jn largely be measureC. by at which it is wo itself cut of a job, or, perhaps , itself into a qui te kinG of a job?

n.

In their first establishment, ~hen the initial aiD was to , Stations were set up where the natives were. Frequently,

fact0r was the cap ty to reach the Staticns by wi th supplies fru;:;l the outside; another ccnsideration was a

ily availablE; surface water supply. As time went on transport , tiipping of underground water supplies beCs.Jle an accunplished

, and the need to develop emplcyment and traininE; facili t s apparent. The rasul t was that lc,caticn becalile a matter of

mere careful selection. Corilp between the Missions has ely lecaticn down to well areas of influence, but there is

probably SOLJe unnecessary cation in the pattern cf Govern-ment and Mission Station establi

At this staEs, there is probably reCI;} fer an exarainaticn of the 10 n cf Stations and a cc'nsideraticn of whether some of can any lenger justify their exi ence in their present location. Unfortunately the extent cf cap investu6nt is often a er to

irable change.

Mdnag~£nt_Q£~_~!aff.

G(;(;0. manageoent and efficient staff are essential fc,r success cf a Statiun. Above all, the personnel need tc be practi . in their

reach. In addition to a knowledge cf the abori2ine's cultural rounc1 and! cf the expE.riences gained frGu a Ion!; reccrd of

adninistrative,asscciation with them, Station porsonnel character, enthusiasm anu a ty to find practicc=.l Cleans of overCOl:}-

problems anl~ ir:lprcvising l:1eet local difficul tics. is no r fc;r the neurctic, the inc:clent or the inp2tient.

Unfortunately there is not a big c.emanc1 fer eraploYfiIent in this , anG. suitable staff are hare. tc get. Some people who c:ffer are

nc t ;:ilE:ntally sui ted tu wcrk. Frcm the point of view of recrui t-li16n t anc~ of· naking the be use of the material offering, some con-sideraticn should be 6iven to providing special trainin& or instructi(;n&l ccurses. ,.lay be rGCIJ tc cvnsi(;er whether the Cc..r,li'il0nweal th, States ahe Missions shc,uld combine their forces to prcvide an adequate service in this resp~ct. Administrative Supervisicn. -----,;veFy Gov6F.nment-gtalS'icn ane: every Mission Station which aSSW::les the welfare Df aborigines is an ail~ tc.. carrying out the of natiGnal pelicy. The f that it 1,;::issicn Bay rGly entirely on its cwn funds does not al tar this. Because Australian gcvernaents have resp~nsi bili ty for the welf arec=.nCl a0.vance~18nt of n6. ti ves, they are obliged. tu takE: a close t in what is being done en missions snd to assure themselves that work of missions is in fact ccntributing tc,wo.rds the desired s. One cf the prcblems of straticn is tc work (, ut s wi th [;1issions which will s public respr:nsibility discharged and at the same respect the private interests Christian missions. Some of the matters in which Governments a particular intE:rest are nenticned below.

-3- AGENDUM 6 (contd).

1iJork fGr the abcri;:"ines. -------------------'----. Part of the tr.:lining cf the abcrigine shculd incluui9 ;traininG fer

wGrk. ThE;ru is ncthing wcrse than c. Staticn which encouraGes inc~clence aJ1cn€;st employa.ble males, by prcviGing fGce and clothint; as free issues. Irrespective cf whether it is huntin~ cn Reserves j dcing useful wc·rk on the Statiuns j Gr 6L.·int; cut tc employment, wc:rkshcul<1 be insisteC: upcn anG, where necessary, pr\vided. Ancngst the fenales there. is room for 81:1ployr.lent invaric)us forills l f arts and crafts and dosestic duties.

Sone ccnsideraticn might be given tc the pelicy cf Staticns in these respects.

~~sing_~£~_glkh~~·

These are i~lpcrtant factors in thE.: life of 3. Staticn. Part of the educe,ticn cf thE: abcri[;ine for livin£: in the Eurr:p88.n way is in teaching hin tc live in J. house and hc;w tel keep heuse. The exa;aple of Gna l'ilissicn Static,n which hc.uses its sinf;;le fedale menbors in cottages Cafew tc: each) rather than in icrDi tcries ane; enc(;urafcs then tc keep hause, is well werth follcwing.

Apart frc'in the humani t.:::.ricln aspects of prcviC:inC for tho nec1ical C~Lr8 cf aboriLines ~ nc service is satisfactc;ry unless it provides instructicJn in hyciene' and self-c2.re, an( is helped by the Staticns in puttine; the instruction to practical effect. There is n86c1 for very clo se Ii aison bctw8Gn the Health Authorities ane: Gc·vern"1ont ane: Mi ssion Stati,.'ns. Every St2.ticn shculc. include SCf:leOnG who has ha(~ special training in hyciene ane: also in prcphylactic 'W(,rk.

1:~.€::di£4-f tc~.

The settinG, up of a trading stcre as part of the establish1:tent (;f a Stc::.ticn, particularly in rerJoter areas, is well worth encGuraging. A stcre of this nature can de a lot in the educaticn cf the aborigine. It can teach hiD) the value cf things j and a desire fer thine:-s which will i;-,:prc ve hi s existence anG hew tel get the se thinGS by prccucinG ether things as a resul t of his cwn wcrk and ene:eavcur. In the tribal areas cf Ar.phen Lam., the influence cf recently established trac'~inc stcres is alreac:.y apparent in the activities cf abcri;;incs in c·rganisint, hunt­in!': fl:r such things as crcccc:il"" ane buff ale skins anei fishinC for trcchus, etc ..

Even in the Elcre a(~vanced arGas a properly run trac~ing stcrG can c'c much in tr&inin[ the abLricine tc knew the value of things anc~ preparo hLl against explci tation which unfcrtunately is practisee~ by SG~:18 less scrupulcus traders. In a lessGr c'.egree j st,-res can bE: a tr2.inin~ gr"unLi for future eJlplcynen t cf a. few abc rigines.

Finctnce. ----

This i3 all all-LDpL.rts.nt consic.E;ratiun in thG successful establislli:1E:nt and runninc: cf a Station. The thr88 najcr i t6:-JS ar8 -

ec:) Capital esto.olishllent by way of builc'.ins;s, Gtc. (b) EquipL18nt, (c) RunninG expenses 5 incluc~inE.. staff so.l:J.ries.

Inaciequate finance can very Greatly ree:UC8 thE; effE.cti veness anc~ valUE; cf d Station, .

G'jvernnont Staticns IJ.ust IGvk to allocation frc~il Government . -:ev8nues . Tho nc rDc..l Cl. ursE; is for the Staticn tl' buc.get fer inC.l.U.S ..... l .... · .... ~.: ••. f ... :.·; . .-n··.·.~·.J··.·.'c·.;···.J'.f-.·. III tho L:8partllental estlr.lates '''F'~:';:l''''~J:~

Missions primarily depend upon voluntary subscription, but this is Usually,an inadeqUate source, and supplementation by Government grant is now the accepted practice. In some cases· the relatiqnShip on fihancebetween the. Mission and the Government is a pprc5ached on the budget system with an all-embracing Government grant, whilst in others the practice is to meke grants for specific purposes such as staff salaries for edUcation, and provision of nursing sisters, '~!ith sometimes grants for specific ca pital purposes. .

Many Missions have been ineffective in practical matters associated 1JI!ith furthering the advencement of aborigines because of inadequate finance. The responstb tty of the Government in this direction cannot be avoided, beCause of its over-all responsibility for the care, welfare, education and advancement of the aborigine and its acceptance of the Mission Stations 9S part of the organisation set up for th purpose.

It .is necessary to consider, h01/llever, to what extent and in what manner the Government should lay down conditions before it a pproves of the opening of mis sions or provide s gra nts to enable those miss ions to operate. To what extent should a Governmentspecify the services which a iniss ion shOUld ')rovide to carry out effectively the'3ims of policy? To whe t extent should a Government require a miss ion to discuss 1n advance its programme of work and set dO\Jl1n that programme in the form of a budget of finances? Should tha Government stipula what records and accounts shoUld be kept and shOUld a Government h~ve the right to inspect them? Should Governments be able to discuss the management of a miss ion, for exa mple, to ensure that the miss ion was using home ... grown products or taking other steps inggriculture or industry to make it

. self-supporting?' .

Vf!ious tx~eq of Station~.

_ S tions cannot be conceived as following the same pattern. Regard shOUld be paid to the various needs accord ing to location, and the types of 8borigines to be dealt. wi tho is need for ..

(a) Outpost Stations deSigned for the initial contact stBges and as bases for movement into tribal areas.

(b) Rural Rtations providing C8re and training for the' semi-tribal a nd mol'S 8dv9nced natives.

(c) Buffer ,stations to control the movement of aborigines from trib91 BraeS to cantres of white settlement.

(d) Town Stations to provide for the less adv3nced aborigines in contact with towns And working in towns.

(e) St3tions for half-c?ste children to provide shelter and . education for the ne cted half-cas childran recovered in outer 9re9S.

(f) Hostels for adolescents, to care for them during the period when they .'::"re making contact for the first time with settled com~uniti9s, and to pilot them through the stRges of appren­ticeship, etc., ':lOd ultim?te settl?ment in the general community •.

(g) Special training c3ntres to Drovide teaching in rural And industrial activities.

~uestions to be_£QnelQ~Q.

1. Is it nerally accepted that assimilation And not segregation is tha ultimate 3im of' policy, and th:9t the work of Government and Mission Stations should be arranged and directed accord­ingly?

-5- AGENDlffii6 (contd).

2. Is there a need to review the location of Static ns?

3. V.Jhat are the !!lain difficulties in obtaininG suitable fer Static.ns? Vv0ulc. re be ariye.dvantaces in provic~ing speci recrui tL18nt and traininc facilities and if so, what fcrm shoul~ they best ?

4. Shculd Government supervisicn of the wo of Mission Stations be undertaken and what for!:! should that supervision

5. Is sufficient GOrie on Stations to encourage and train in wcrk of various kinds?

6. Is sufficient attention paie on Staticns to housinc of aborit s anc: training 0f theIa in housekeeping? How can iEiprove;"lents be carried out?

7. Row can wcrk of Statirns be related st tL the g health services, particularly in the fields of hygiene prcphyl s?

rit,ines

8.. What vc:.lue is there in the establishl:1ent Qf trading stores?

9. Are Stations not fully effective because of financial lirJi taticns? What relations shoulc.~ exi between the vern-l11ent ssicn StatiGns on the prcvisicn of finance, and what ccndi ti(;ns shoulC: attached to [rants cf assistance?

10. Are needs beine; adequatelY provided for by existing Stations? What addi ticnal provisions be made? Is suffici attention be paie to fellow up welfare services after riginal leaves the Stations to live in or adjacent to settled cOITUJunities?

Department of Territories, Canberra. AUgust, 1951.

AGENDUM 7.

GOMMONVvEALTH AND STATES NATIVE WELFARE CONFERENCE.

FRANCHISE.

ELIGIBILITY FOR STATE FRANCHISE.

Some States do not place restrictions on the enrolment and voting at Eloctions of coloured l,ustralians of part or full aboriginal descent. Inothor states various restrictions are irnposed. Thus, in Weste rn Austrfllia, no aboriginal or half blood can vbte, although it is presumed that a holda r of a Oertifi cata of Oi tize nship unda r the Native (Citizenship Rights) Act 1944 would be entitled to enrol and voto. .

ELIGIBILITY FOR COMMONVfEALTH FRANCHISE.

Broadly speaking, eligibility for Commonwealth franchise is an aggregate of eligibility for state franchise. Conditions under tho Cmmnonwealth Electoral Act are as follows~-

"39( 5) No aboriginal native of Australia ..••••• shall bo onti tIed to have his· n8me placed on or retained on any roll or to vote at any Senato oloction or House of Representativo olection unless;

(a) he is so entitled under Section forty-ona of the Constitution,

(aa) he is an aboriginal nativo of Australia and

( i)

(ii)

is 6 nti tlod undor tho law of tho State in which ho residos to be onrolled as an eloctor of that State and, upon enrolment, to vote at olections for the more numerous House of tho Parliament of tho stato (or if thero is only ono House of tho parliament of that state, for that Houso), or

is or has boe n a membo r of the Defe nco ForcGs. II

section 41 of the Constitution statos:-

"No adult person who hEts oracquiros a right to vote at elections for tho more numerous Houso of tho Parlinment of a state shall, while tho right continuos, be prevented by any law of the Commonwealth from voting at eloctions for either House of Parliamont of tho CommonwoA.lth."

In the Northorn Territory eligibility to enrol and voto dopoods on Gxemption from the .Aboriginals Ordinance. statutory Rule - No. 148 of 1947, as amended by statutory Rule No.61 of 1949 states:-

"NO aborigi nal native of Australia ••••.. shall be onti tIed to have his n8l110 placed on or rotained on any Roll or to voto at any 0 lecti on unloss

a. ho is an aboriginal of Australia Rod -

2. .Agendum 7 (contd.J.

i. is, by virtue of a declaration in pursue.nce of Soction 3A of tho .P,boriginals Ordinance 1918-1947 of tho Territory, not deemed to be an aboriginal for tho purpose of that ~rdinance or of any prOVisions thoroof, or

ii. is or hRS boe n a mambo r of tho Defo nce Forco s."

UNIFORMITY IN FR.ANCHISE QUALIFIC.,\TIONS.

Uniformity in i tsolf may not be desirable 9 but in soma states extension of tho franchise to thoso colourod Austre.liRns who can tRka their place in the general connnunity, would S6em warranted. .

For administrative and othar reEtsons it may not be possible to extond enrolment and voting in all states to overy aborigine and pRrt blood who may wish to avail themsGlves of the right. But if legislation is pRssad in the states and Northorn Territory, as suggostod in I,gendum l,to enable allY sui tably qualifiod aborigine or pRrt blood to Rttai n full citizenship th~n, 2S in thecaso of whito }\.ustr8.liRns, it should be compulsory for those RboriginGs with fUll citizonship, to onrol and vote both for the state and CommonweRlth ParliaElint. In the CRse of thoSG StRtes whore thore is no rostriction on

, aborigines or part bloods G nrollin'g and voting, this option should be rGtainod for nRtivos other than those with full ci tizonship.

PROPOS.AI, FOR SPECIJiL MENiBER( S) TO BE ELECTED BY COLOURED Il'lISTRj..LIANS IN THE STATE 1J'ID COMr:iONvv'EJ\LTH PJ\RLI}ll,lliNT.

This suggestion hRS boon put forward from various Quarters on the grounds that tho mGmbor(s) clected by coloured AustrRlians would specifically loolc RftGr tho interosts of coloured Australians. '

( 1)

(2 )

There arc a number of objections~-

The special mombe r would be 0 Ie ctcd by coloured AustraliRns Rnd thG 1118.jority of thoso oloctors would be pRrt bloods as few full bloods would be oligiblo or RblG to enrol and voto. ConsoQuently tho intorests of those people 'which are in most nGed of protection, namely, tho tribalisod or partiRlly tribRlised aboriginos, Would not bo reprGsGntod~

Havi ng special mombo rs for coloured fustralians would'tond to reinforce tho distinction betweon the white AustrRli an and coloured J\ustr8,li 8.n which is contrRry to the aim of policy for economic, social and poli tieDl RssimilRti on.

(3) Tho propoB8.1 would probably offer cortain constitutional difficulties particularly in rospoct to Cormnonwealth frRnchise·.

Department of Territories,

CanberrR.

August, 1951.