Central Land Council

Rose Report One

Resources and support for Aboriginal land management

Introduction

There is a range of programs provided by the Commonwealth and Northern Territory Governments as well as non-Government and Aboriginal organisations which deal with land management issues. Mainstream land management programs focus on issues related to agricultural and pastoral land use and target the provision of services and support to those land users. Commonwealth departments and Aboriginal organisations have programs which are aimed exclusively at dealing with land management issues on Aboriginal land.

This chapter provides information on the range of land management support and funding programs currently available and examines present levels of Aboriginal access to these programs. The chapter concludes with a discussion of the future directions for programs supporting Aboriginal land management and examines the need for a re-assessment of the policies, roles and responsibilities of the organisations involved. Commonwealth Government programs The majority of financial assistance available to the public is derived from

Commonwealth programs and Commonwealth contributions to Northern Territory government agencies.

National Landcare Program (NLP)

The NLP is administered by the Department of Primary Industries and Energy (DPIE) and is the largest Commonwealth program providing funds to address the sustainable management of natural resources. The program was formed through the amalgamation of the former National Soil Conservation Program (NSCP) and the former Federal Water Resources Assistance Program (FWRAP) along with the community components of the Save The Bush and One Billion Trees programs administered by the Australian Nature Conservation Agency and the Natural Resources Management Strategy for the Murray-Darling Basin administered by the Murray-Darling Basin Commission.

The NLP has three components: a Community Landcare component, a Commonwealth/State/Territory component and a National component. The program is intended to provide a national approach to overcoming the problems of land degradation with the broad aim of developing and implementing strategies for the rehabilitation and sustainable utilisation of Australia's soil resources. There are a number of projects on Aboriginal lands which have been funded by the NLP and its predecessor the NSCP. The Pitjantjatjara Council was funded in 1991/92 to carry out land reclamation and dust suppression work around Warburton in Western Australia.

A similar program was carried out using NSCP funds to rip and revegetate scalded land around Kintore, a large Aboriginal community 450 km west of Alice Springs. There is a great need for more practical work of this nature and these programs are providing valuable demonstration projects enabling different techniques for revegetation in communities to be assessed. Tangentyere Council in Alice Springs has accessed National Landcare Program funds to produce an award winning landcare educational video which addresses problems of dust control around communities and the issues related to environmental planning. The video supplements Tangentyere's range of land management services aimed at improving the community environment are discussed in more detail later in this chapter.

Tangentyere Council has also received National Landcare Program funding to develop a Landcare Education Program which works at the community level. The Central Land Council was funded from 1991 to 1994 for a Cross Cultural Land Management Project. This report represents the first stage of this project, the overall aim of which is to provide information on Aboriginal perspectives of land degradation and identify the means whereby information on landcare and resources for its implementation can be made available to Aboriginal people. In 1989/90 the percentage of NSCP funds committed to Aboriginal projects nationally was 0.3%. In 1990/91 this figure was 1.9%.

With the establishment of the NLP over successive years the level of Aboriginal access to Landcare funds has increased significantly. However, despite this increase research undertaken by the CLC for the National Landcare Advisory Committee (NLAC) shows that Aboriginal access to Landcare funds is well below non-Aboriginal levels of access.

Some of the key reasons for this are that Aboriginal awareness of Landcare is low; Aboriginal resources for developing and managing Landcare projects are limited; Landcare programs are not targeted to Aboriginal issues and State and Territory controlled Landcare funds are not seen as being equitably available to Aboriginal groups. NLP funding is focused on land management and land degradation on agricultural land and consequently funding for Aboriginal lands is a lower priority. Many of the same issues were identified in an earlier study by Young, et.al. as barriers to Aboriginal involvement in Landcare.

One of the key elements of the landcare movement is that it is landholders themselves, individually and in groups, who are taking responsibility for their land use practices. For such a process to work in the Aboriginal community, individuals must firstly be aware of the environmental problems they are faced with and the resources and support available to them to deal with these issues. The second report in this series identifies Aboriginal awareness of environmental issues and the programs and services available to deal with them as being extremely low.

Aboriginal organisations in central Australia have made considerable efforts to provide information about Landcare and to empower Aboriginal communities to act. The Landcare education programs run by Tangentyere Council with NLP support are a good example, facilitating community planning and implementation of landcare works and encouraging community self reliance.

Aboriginal people from remote communities are gaining skills through Tangentyere's program which they can then pass on to others.

One Billion Trees Program

This Commonwealth Government initiative aims to establish an extra one billion trees in Australia by the year 2000. Its activities are carried out through National and State/Territory components, the collective aims of which are: to selectively increase the cover of trees and vegetation in rural areas to promote coordinated action by individuals, government and the community generally to conserve, plant and regenerate trees. to develop public awareness of the value of trees.

Greening Australia

The Northern Territory based Greening Australia is currently involved in a number of projects in central Australia aimed at revegetation and associated landcare issues around communities and on pastoral properties. Funding from Greening Australia is available for material costs for a wide range of activities for up to 50% of project costs but not for wages. Examples of the projects supported in the past include Tangentyere's landcare education program, establishing gardens and green corridors around schools, setting up seed collection and propagation houses at some Aboriginal communities and for broad scale pasture revegetation trials. Aboriginal access to Greening Australia funds has been higher in the Territory than in other states with over 60% of available funds going to projects benefiting Aboriginal schools, community groups and organisations. Young et.al. identify a close relationship between Greening Australia NT staff and the Aboriginal organisations as the primary reason for this level of support. This relationship has allowed Greening Australia NT staff members to recognise the needs of Aboriginal communities and to allow some flexibility in project guidelines.

Save the Bush grants scheme

Save the Bush provides funding for projects associated with remnant native vegetation conservation outside national parks and other reserves. The program: focuses on remnant native vegetation and is principally concerned with the maintenance of biological diversity, focuses on the protection and appropriate management of remnant native vegetation located outside national parks and other reserves, has relevance to a wide range of native vegetation types and a wide range of landuse categories. The program has not to date been accessed by Aboriginal groups in the Territory.

The scheme organisers are keen to discuss the application of this program to projects on Aboriginal land. Aboriginal land management practices are recognised as important for maintaining the vegetation of the centre and support for this management could be derived from the scheme.

Australian Nature Conservation Agency (ANCA)

The Australian Nature Conservation Agency (formerly the Australian National Parks and Wildlife Service) was set up to administer the National Parks and Wildlife Conservation Act 1975. ANCA administers two National parks in the NT (Uluru and Kakadu) as well as national nature reserves outside state waters. ANCA administers a number of programs which provide resources to manage the park environment and to extend this management across other lands of conservation value. The collective aim of these programs is to maintain the nature conservation values of the Australian natural environment and native wildlife, in cooperation with the States and Territories. Projects have been carried out under some ANCA programs which have a significant Aboriginal component and are influenced by Aboriginal ecological knowledge and aspirations. Such projects have been funded where Aboriginal involvement is seen to complement conservation objectives. Examples have included research into Aboriginal use of fire and Aboriginal collaboration with research into the ecology of endangered species.

Research and Surveys Program

The Research and Surveys Program has provided funds for external consultants to assist ANCA in its role of managing National Parks and providing advice on national nature conservation issues. Funds are not available to the public as grants under this program. Projects which have been funded under this program include the Uluru fauna survey, programs researching the ecology of endangered or restricted species such as the Brushtail possum and programs for the protection of rock art. States Cooperative Assistance Program The aim of this program is to develop nature conservation projects of national significance within the States and Territories related to wildlife and to national parks and reserves.

Funds are only available to State/Territory agencies for research and survey work. Projects which have been funded under this program include research in Finke Gorge National Park on the impact of removing feral horses from the park and research on paleo-drainage systems of the Tanami desert and Uluru National Park carried out by the CCNT.

Endangered Species Program

This program is aimed at preventing the extinction of Australian native species, developing a national strategy to conserve endangered plants and animals and their habitats and preventing other species from becoming endangered. Projects which have been funded on Aboriginal land in the NT include CSIRO research into biological controls for Mimosa pigra and CCNT research on re-introduction of the Mala (Rufous Hare-wallaby) in the Tanami desert, working with the Warlpiri landowners. The Endangered Species program funds have been accessed by the CCNT to prepare "recovery" programs for a number of endangered or restricted species, including the Bilby (Macrotis lagotis), the Brushtail possum (Trichosurus vulpecula) and a species of sweet potato isolated to the Ti-Tree region of the NT. Endangered Species program funds tend to be directed to research institutions and scientific bodies. The International Union for the Conservation of Nature, state conservation agencies and CSIRO identify the species considered endangered in each state and funding is directed accordingly.

Contract Employment Program for Aboriginals in Natural and Cultural Resource Management (CEPANCRM)

The CEPANCRM is a program specifically for Aboriginal people, promoting long term Aboriginal employment and participation in conservation and land management activities. This program is established under the Aboriginal Employment Development Program (AEDP), which is an inter-departmental program coordinated by a task force representing participating departments. The CEPANCRM supplies seed funding for the development of contracts between government and non-government organisations with a responsibility in nature conservation and cultural heritage management.

The program funds labour and on-costs of projects but capital costs are expected to be provided by the conservation agencies or communities. The aim is to establish contracting relationships between Aboriginal groups and conservation agencies which will continue to be funded by those agencies when Commonwealth funds are removed. Some of the projects which have been supported under this program include Athel Pine control in Finke Gorge National Park, fire management at Mutitjulu community and on the Angarapa Aboriginal Land Trust, rock-hole maintenance in the Pitjantjatjara lands and Aboriginal labor for endangered species reintroduction programs.

As the main aim of CEPANCRM is the development of employment contracts, the projects which result are based on past conservation and resource management practices as these have established support structures and legitimacy in mainstream land management. There is some scope within the program for the initiation of projects across different land tenure situations, and projects which reflect Aboriginal priorities for natural resource management. Young et.al. point out that the program has given Aboriginal people a number of meaningful roles in conservation through a growing acceptance of Aboriginal priorities and the recording of Aboriginal knowledge and heritage. There have also been several projects aimed at researching traditional Aboriginal strategies of land management. Funding has been directly accessed by the Central Land Council for the employment of Aboriginal people to assist in research into fire management in the Tanami region and Aboriginal attitudes to feral animals and land degradation. These projects are intended to provide information to assist with the future management of Aboriginal land.

Aboriginal Rural Resources Initiative (ARRI)

The lead agency for the Aboriginal Rural Resources Initiative is the Bureau of Resource Sciences (formerly the Bureau of Rural Resources). The program provides economic incentives and scientific advice to Aboriginal people to facilitate the development of pest animal management and wildlife utilisation enterprises. Projects which have been supported under this program include a rabbit harvesting program based at Finke community, a camel capture and training program at Kulail outstation near Kaltukatjara (Docker River) and feral horse control programs. As this program is aimed primarily at creating employment an important aspect of project assessment is commercial viability.

Projects are intended to be self supporting with BRS funds providing capital, on costs and labour to get the project running. Despite the main aim of the program being the development of commercially viable projects there is considerable scope in the nature of the projects supported and the status of the land on which the projects are carried out. Projects originating from Aboriginal groups are preferred and Aboriginal endorsement is necessary for a project to be approved. On this basis projects which reflect Aboriginal priorities are promoted. The Aboriginal Rural Resources Initiative was developed in response to the Royal Commission in to Aboriginal deaths in custody and the funding for the project is due to be cut from 1995/96.

Rural Access Program (RAP)

The RAP is administered through the Department of Primary Industries and Energy. The objective of the RAP is to improve the access of people in rural and remote communities to services and opportunities. RAP provides grants for community based projects using a local approach to solving problems relevant to the needs of local communities for education, training, information, social and other services. RAP funds projects up to $30,000 from a budget of $1.5 million in 1994/95. Aboriginal groups in the NT have made use of these funds for a range of activities including community development planning, developing native products and other self development projects.

National Estate Grants Program (NEGP)

This program is coordinated by the Australian Heritage Commission and its purpose is to identify, preserve, restore and improve sites listed in the register of the national estate. Funds are not available to individuals but community organisations, professional and academic bodies and government organisations are eligible. Examples of projects funded under this program include resource inventories, protection of rock art, surveys associated with endangered species programs, documentation of sacred sites and research into the significance of natural areas to Aboriginal people.

The Australian Heritage Commission are currently reviewing the direction of funding provided by the NEGP and consider that some projects have been funded which are only loosely correlated with the aims of the program. This occurred when the program was coordinated by DASETT whose priorities influenced the direction of program funding. In the NT the CCNT administers the program and the projects which have been carried out reflect their priorities with an emphasis on protection of the natural environment.

The Aboriginal Areas Protection Authority (AAPA) and the CCNT have accessed funds from this program for site documentation and protection. There is some scope within the project guidelines for an increase in Aboriginal driven projects reflecting Aboriginal heritage protection priorities. Labour market programs A number of labour market programs from the Department of Employment Education and Training (DEET) can be used to fund environmental and land management work. Programs generally provide wages and training for participants. Some programs provide funds for environmental planning or for some project costs. Programs which have the scope to work with land issues or which are specifically targeted at environment issues include: Landcare Employment Action Program (LEAP) The LEAP program is designed for unemployed youth under the age of 18 years. It is targeted specifically at employment in environment related positions. LEAP programs can be accessed by Aboriginal communities to fund wages and access training for land management works. Jobskills Jobskills is a program for the unemployed which provides on and off the job training. Jobskills participants can work and train in a wide range of vocations. Land management and environment related employment can be supported through the Jobskills program.

Regional Environment Employment Projects (REEP)

The REEP program is a more recent government initiative which has the potential to be widely applicable to remote communities. The program is focused on regional environmental issues and in its initial phase will operate using a combination of Jobskills and LEAP coordinated through the preparation of an environmental plan.

Office of Labour Market Adjustment (OLMA)

The Office of Labour Market Adjustment provides assistance to particular industries where employment is affected by structural adjustment or a downturn in economic conditions. Funding can be accessed to assist in the development of regional initiatives which have beneficial labour market outcomes. The OLMA has provided funds to Julalikari Council in Tennant Creek to carry out work on the development of a local Sweet Potato species for supply to local and interstate markets. Developing bush food resources such as the sweet potato has significant potential for regional the Aboriginal economy and employment rate. Landcare taxation deductions Section 75D of the Income Tax Assessment Act 1936 allows for income tax deductions for expenditure which is directly related to land care. Outright deductions (i.e. 100% write-off in the year of the expenditure) are available for expenditure on eligible activities which include: eradication of plant and animal pests; fencing for control of animals and to separate different land classes; land degradation preventative measures such as regeneration of vegetation, planting trees for erosion control and windbreaks etc., and construction of ponding banks and earthworks associated with drainage control. Taxation deductions are relevant only to those Aboriginal land holders who conduct their land management activities as business enterprises.

Research and Development Organisations

Land and Water Resources Research and Development Corporation

The Land and Water Resources Research and Development Corporation (LWRRDC) was established in July 1990 under the Primary Industries and Energy Research and Development Act 1989. Its mission statement is to improve the long term productive capacity, sustainable use, management and conservation of Australia's land water and vegetation resources through a directed, integrated and focused research and development effort. Funding is available from the corporation for research and development in four program areas; land resources, water resources, ecological systems and social, economic and management systems. To date funds from this program have not been accessed by Aboriginal groups in the central Australian region. There is considerable scope for Aboriginal groups to approach this program given the significant need for research into issues such as the economics of multiple land use on Aboriginal lands. A call for applications for funding support from the LWRRDC is made in June each year.

Rural Industry Research and Development Corporation (RIRDC)

RIRDC was established in 1990 to help agricultural industries to enhance their sustained economic contribution to the national economy. The corporation supports and funds new and emerging rural industries and research into issues which have an impact on agricultural industries such as agribusiness, pest and disease control and farm health and safety. RIRDC funding has the potential to be used in a number of ways on Aboriginal lands. Within its scope for funding are the development of multiple land use systems and alternative enterprises such as bush tucker or harvesting wild animals or natural products. RIRDC has recently funded the establishment of an Australian Native Bushfoods Industry Committee to look into ways to further develop the bushfoods industry. RIRDC funding is advertised in August each year.

Northern Territory Programs Within the Northern Territory

there are government and non-government programs involved in the provision of land management services. Aboriginal access to these services varies with the aims of the programs offered and the perceived extent and distribution of the issues being addressed.

Conservation Commission of the Northern Territory (CCNT)

The broad charter of the CCNT is to ensure that the economic development of the Territory is compatible with the use and conservation of its natural resources. A number of CCNT programs involve work on Aboriginal land and several programs employ Aboriginal workers. As the Territory conservation body the CCNT administers the NT portion of NLP funding and funding from the NEGP. In addition to this a number of the CCNT's programs are supported by other commonwealth funding programs such as the Endangered Species program, the State's Cooperative Assistance Program and the CEPANCRM program.

Land Conservation Unit

The Land Conservation Unit of the CCNT is involved in land resource survey and evaluation, land use planning, soil conservation and landcare support. The land conservation unit has provided machinery and workers for minimal costs for revegetation and reclamation works funded by the NLP around several Aboriginal communities. The Land Conservation Unit has also assisted the Central Land Council with the establishment of a Land Assessment program for Aboriginal lands which is discussed later in this chapter.

Wildlife Unit

The CCNT Wildlife Unit has been involved with research into the ecology of arid zone species and programs to re-introduce some endangered species. Aboriginal people have been employed to assist in locating isolated populations of rare and endangered species, and in ongoing research activities monitoring their re-introduction into appropriate habitats. It has been recognised that a significant factor in the decline of some of these species is a reduction in suitable habitat resulting from a decrease in traditional Aboriginal land management activities, specifically patch burning, from large areas. The CCNT, through the Mala program in the Tanami desert, have accessed funding from a variety of sources to carry out fire management to produce suitable habitat for future re-introductions. This program has accessed funds from the Endangered Species program, the NEGP and CEPANCRM for Aboriginal people's wages. The CCNT has also been involved with research into the management of feral animals. Aboriginal people have been involved with some of this work on feral horse management and feral camel research.

Landcare NT

Apart from the NLP Landcare funding, which is administered by the CCNT, there is an NT based landcare project at the CCNT which is funded through the NT government and donations attracted from sponsors. Landcare NT promotes landcare practices across the Territory through its role as a coordinating body for local landcare groups. The landcare groups themselves consist of land holders and land users who share common land management problems associated with a region or catchment area. To join Landcare NT, landcare groups must be incorporated and be able to demonstrate that they are actively trying to address landcare issues in their region. The current composition of Landcare NT includes two Aboriginal representatives from the Tangentyere Council in Alice Springs and Dhimurru community in the top end.

Northern Territory Bushfires Council

The Northern Territory Bushfires Council is a unit of the CCNT which is primarily involved in controlling outbreaks of fire and activities to reduce bushfire hazard. More recently the Council has been involved with promoting safe burning practices on Aboriginal land and has produced a booklet for school children and a video for Aboriginal communities. In some areas Aboriginal people have expressed some concern over their liability when burning country adjacent to non-Aboriginal land. The Bushfires Council has been involved with grading fire breaks around such properties and has participated in workshops with the CSIRO and the CLC to promote Aboriginal burning practices.

Department of Primary Industries and Fisheries (DPIF)

The DPIF provides services to primary producers to enable them to maximise production and integrate new techniques and technology into their operations. DPIF provide advisory services in horticulture, animal production, rangeland production, control of weeds, veterinary services, and plant and animal quarantine. In general Aboriginal access to DPIF programs and services has been low. Aboriginal land users have not regularly sought assistance from DPIF and the Alice Springs department has stated that it has only a peripheral interest in Aboriginal projects.

The DPIF have been involved with carrying out rangeland condition assessment on Aboriginal land in the Utopia and Haasts Bluff areas, providing information on land condition and grazing potential. The aim of these exercises was to provide the information to Aboriginal groups in these areas to enable them to maximise their land use potential and avoid problems such as overgrazing. An apparent lack of response to this information has restricted further DPIF activity on Aboriginal land. There are several reasons why Aboriginal people have not used the information produced by DPIF to the extent that was expected. A key issue is a lack of appropriate information exchange mechanisms to convey this and similar information to Aboriginal people. The implications of this information are not well understood by Aboriginal people and implementing changes to land management and land use activities is difficult.

There is also a concern that the recommendations which flow from this sort of work are not formulated with an understanding of the practical desires and aspirations of the local people. Without this social context, recommendations for land use and management may be untenable or inappropriate. DPIF weed control activities take place on Aboriginal land in central Australia with the weeds Athel pine (Tamarix aphylla) Parkinsonia (Parkinsonia aculeata) and Rubberbush (Calotropis procera) being targeted. These species are considered weeds as they grow along water courses and around cattle yards etc. However, there is potential for conflict because species such as Athel pine and Parkinsonia often serve a useful function around communities for wind breaks and shade. At Yuendumu for example Parkinsonia is often the only shade providing tree in the immediate living area. Any attempt to remove or control these trees will need to be undertaken in conjunction with a program for revegetation with species considered more appropriate. Some Aboriginal groups have implemented control programs for Athel pine control with assistance from DPIF. Funding for Aboriginal wages has been accessed through the CEPANCRM program. Coordination and management for these programs has come from local Aboriginal resource centres with staff who have special interests and abilities in land management.

Aboriginal organisations

At the national level the Aboriginal and Torres Strait Islander Commission (ATSIC) has a number of land management related programs and provides funds for Aboriginal organisations involved with a wide range of land management activity. ATSIC's recent development of an Environment Policy and a Rural Industry Strategy further delineate the role and direction ATSIC will take in land management. The development of the Aboriginal Land Fund and the Indigenous Land Corporation during 1995 has the potential to impact significantly on Aboriginal Land management.

The Indigenous Land Corporation will be an independent and commercially oriented statutory authority with land purchase and land management functions. The Indigenous Land Corporation activities will proceed through the preparation of national and regional land strategies. Land management functions will be met through entering into agreements with landholders, making grants or loans for land management purposes or through establishing subsidiaries to undertake these functions on a regional basis. The emphasis and rationale for land management to be adopted by the Indigenous Land Corporation will significantly impact on Aboriginal peoples ability to manage their lands.

At regional and local levels Aboriginal land councils, town camp councils and outstation resource centres are all involved to varying degrees with land use and land management issues. The Aboriginal Land Councils are responsible for the administration of the land rights legislation including the organisation of land claims, negotiating on the behalf of the traditional landowners with mining companies and the proponents of other developments, and advocating on behalf of Aboriginal people for the provision of social and essential services for communities.

The Land Councils are also responsible for providing support and advice to assist Aboriginal people in the use of their land. The town camp councils (Tangentyere, Julalikari etc.) are involved with maintaining and improving the environment and facilities at the town camps including providing land care services to promote a healthier living environment. Outstation resource centres are primarily involved with facilitating the development of outstation infrastructure. They also play a role in supporting and initiating land use and management activities in and beyond the outstation environment.

Aboriginal and Torres Strait Islander Commission Programs

There are no funds within ATSIC specifically allocated for addressing land degradation issues on Aboriginal land. ATSIC programs do, however, greatly influence the nature of land use activities through the land acquisition function, funding for development and the maintenance of infrastructure and the funding of staff positions involved in the provision of administration and services on Aboriginal land. Such positions are essential for initiating land management proposals, administering applications for funding and resources and assisting implementation of on ground works.

The ATSIC Environment Policy sets out a number of key principles which will guide the commission's involvement with land management issues. While this policy has been ratified by the ATSIC board it is not clear what action has been taken towards its implementation. It is also not clear how the statements of principle in the policy will impact upon ATSIC's existing program structure and priorities for funding and service provision. Land Management Programs The ATSIC Maintenance of Properties Program and the Community Infrastructure Program have the scope to fund land management associated activities. The Maintenance of Properties Program is intended for property maintenance where there is a commercial enterprise, so it could be used to address issues such as land degradation on land used for pastoralism as this will impinge on the project's commercial viability.

The Community Infrastructure Program, which is intended to provide for the upgrading of community infrastructure, can provide funds to address environmental problems in the vicinity of community living areas. In practice these programs are fully applied to property maintenance and community infrastructure with little scope to fund landcare type activities as well. Landcare or land management activities would have to be an integral part of a maintenance or infrastructure project to be funded under these programs. The land management functions of ATSIC have not been used effectively by Aboriginal groups to support the development of a capacity to deal with land management issues at a regional or local level. The approach taken in funding land management has been project rather than process oriented.

Community Development Employment Program (CDEP)

The CDEP scheme provides wages equivalent to the unemployment benefit and a component for overheads, supervision, capital equipment and materials for community projects and enterprises. The CDEP is very flexible in terms of the projects it is able to support enabling it to be used to fund a variety of projects which address or impact on land management issues. Regional and Development Planning. ATSIC funds are available for community planning for social, economic, physical and cultural development. The planning process funded usually involves engaging specialist assistance to develop plans and to develop planning skills within the community. Planning is a key issue in land management.

While these programs are not formulated specifically to address land management issues they do have the scope to be applied to these issues in context with the range of development options and effects. Inevitably, however, environmental issues seem to be overlooked in this process. ATSIC planning processes tend to focus on planning for accessing development funds and become more of a community funding application list rather than a considered planning process.

Land Councils

Pitjantjatjara Council and Anangu Pitjantjatjara Pitjantjatjara Council and Anangu Pitjantjatjara are Aboriginal organisations which have set up land management and landcare services for the communities on the Pitjantjatjara, Yankunytjatjara, and Ngaanyatjarra lands of the southern Northern Territory, South Australia and Western Australia. Projects have included some large scale revegetation works as well as activities based on Aboriginal "caring for country". These projects focus on Aboriginal priorities for looking after their land thereby giving value to Aboriginal concerns and working through them to institute landcare activities.

The approaches taken by Anangu Pitjantjatjara are seen by other Aboriginal organisations as an effective model to be developed for other situations so they are discussed more fully here. The Anangu Pitjantjatjara role in developing land management and land use projects occurred after extensive consultation with traditional owners to ascertain what projects they were actually involved in and what they wished to pursue. This consultation process established clearly the directions anangu wanted to pursue. This approach which has been funded and supported through the CEPANCRM program allows people to look after country in the ways they have been taught and shown and which have worked for thousands of years. The key to this approach is that it ties in physical, spiritual, social and cultural factors. Anangu Pitjantjatjara has also developed a number of enterprise operations based on the utilisation of feral animals. These projects have been funded and supported under the ARRI program. Projects include camel farms, rabbit shooting programs, and feral horse mustering. Anangu Pitjantjatjara is also providing advice and assistance to people wishing to develop cattle industries. They are working with State and Commonwealth Government departments to develop sustainable economic and appropriate pastoral industry on the Anangu Pitjantjatjara lands.

Central Land Council

The Central Land Council (CLC) was initially set up to administer the provisions of the Aboriginal Land Rights (NT) Act 1976 to assist Aboriginal people to gain title to their lands and to provide support for the administration and development of that land. The land management section of the Central Land Council carries out a number of roles in relation to land use and management. It carries out consultations with traditional owners over land use proposals and provides advice and support to landowners in the development of land based enterprises such as pastoralism, tourism, feral animal harvesting. A number of specialist units within the land management section provide services and support for Aboriginal landowners which is not available from mainstream agencies.

The Land Assessment unit provides land system information and can assess land capability as a basis for land use planning and enterprise development. Land assessments are carried out with close collaboration with landowners so that current land uses and land use aspirations are recorded. Information is provided to landowners in appropriate media to enable them to make informed planning decisions regarding land use proposals.

The Pastoral unit provides specialist advice and support for Aboriginal pastoral enterprises ranging from large scale commercial ventures to smaller family run "killer herd" projects. Services provided include technical advice and assistance for land management and business aspects of projects as well as financial management services. Landholder training programs such as training for cattle company directors are also coordinated through the unit.

The Land Council has also established a Land Information unit which has a Geographic Information System (GIS) using ArcInfo software and access to satellite imagery to monitor and provide management advice for Aboriginal land use projects. The GIS system holds information on land tenure, topography, vegetation, geology, soils, bore information and mining activity The Land Information section serves as a tool for land management planning, decision making and monitoring. Town Camp Councils Town camp councils such as Tangentyere at Alice Springs and Julalikari at Tennant Creek provide a range of services to the urban Aboriginal population.

Tangentyere Council

Tangentyere Council is based in Alice Springs and was initially set up to service the town camp communities. The land management section of Tangentyere has, from its inception, been oriented to providing practical land management services to improve the environment of the town camps. The council retains a strong emphasis on environment and health related issues and provides landscaping and environmental planning services. Tangentyere has extended its activities beyond the Alice Springs town camps to address the needs of the communities and outstations in more remote areas. The Tangentyere Bush Services Program provides environmental planning, trees and materials for community revegetation programs to address the problems of loss of vegetation around communities.

Some of the projects with which Tangentyere have been involved include support from mainstream land management bodies such as the CCNT Land Conservation section. Tangentyere receives funding from the NLP for its Landcare Education program and has produced educational material and a video promoting landcare issues and the benefits of better environmental management of community areas. Tangentyere's activities promote community self reliance in initiating landcare works from planning community development and rehabilitation to maintaining vegetation and managing community land use pressure. The practical focus of much of Tangentyere's land management work is to provide an immediate and ongoing remedy for some of the environmental problems faced by communities.

Julalikari Council

Julalikari Council is involved with the provision of services to town camps and local Aboriginal communities in the Tennant Creek region. The council provides tree planting and basic environmental management services such as landscaping for town camps. NLP funding is used to maintain a nursery and for a range of landcare projects. Julalikari Council has accessed funds through the National Youth Grant Scheme from the Department of Employment Education and Training to employ a Landcare coordinator. This position has worked closely with the outstation resource organisation Julalikari Buramana to initiate LEAP and Jobskills programs for landcare and environmental management around outlying communities and living areas. Julalikari has been contracted by a local mining company to provide rehabilitation works following mining activity. Equipment for this work will be drawn from the building maintenance program within the council. Ongoing funding for the landcare coordinator is currently in doubt.

Outstation Resource Centres Outstation

resource centres are organisations which have been set up to service the needs of outstations and to assist with their development. They have an immediate role in the provision of land management resources and assisting with land use projects. These centres are usually in close proximity to communities and are exposed to the needs of local people on a daily basis. Examples of the land management programs which can be initiated through outstation resource centres include maintaining infrastructure such as bores and fences, building shelters and planting trees to improve the outstation environment and organising feral animal harvesting or control programs. For example, Tjuwanpa Resource Centre at Hermannsburg has been involved in feral horse control adjacent to the Finke National Park and has also facilitated Aboriginal employment in conjunction with the CCNT for weed control in the Finke River. Community Councils Community Councils are community based bodies which take on the role of local government. They are formed under either Commonwealth or Territory legislation. Community Councils play an important role in land management as they can influence land use activities and are generally aware of community aspirations and priorities. They range in size and level of organisation but a common primary role for Community Councils is initiating land management and development activities through seeking funding to pursue and support the particular needs of community members. Community Councils often employ administrators, accountants and range of service personnel

Summary of land management Programs and Services Commonwealth programs and services

The land management programs and services provided by the Commonwealth reflect concerns over land management issues at a national scale. An obvious focus of this concern is for land management and rehabilitation work on agricultural or pastoral land. Aboriginal access to funding from many of these programs is limited by the relative lack of availability of information about programs in appropriate language and media.

Low literacy levels in remote Aboriginal communities clearly limit awareness of programs and the opportunities for access. The process of developing applications for funding is resource intensive and many Aboriginal groups are unable to take this first step. Project management can also place demands on community resources which are already stretched in pursuit of a minimum standard of health, housing and other basic services. Program requirements such as the need for applicant contributions can also limit Aboriginal access.

Two Commonwealth programs which have been specifically developed for Aboriginal people, the Aboriginal Rural Resources Initiative and the Contract Employment Program for Aboriginals in Natural and Cultural Resources Management, have been used effectively and are meeting a significant need in the Aboriginal community. Unfortunately both of these programs are facing cuts in their funding in the coming financial year. These cuts are likely to lead to the termination of the ARRI program and to funding for CEPANCRM being halved.

There is great potential for the integration of labour market programs under the Department of Employment Education and Training (DEET) with landcare and land management funding. Employment rates in most communities are extremely low while there are many land use and management activities which need to be implemented. These include the development of economic ventures integrating mainstream activities with local activities such as bush tucker harvesting in multiple land use situations. There is much work required for the rehabilitation of degraded lands and ongoing management to avoid further degradation including Aboriginal activities for caring for country such as fire management. Northern Territory Government programs Currently the most significant land management support available to Aboriginal people from the NT Government comes through the CCNT.

Several projects involve the CCNT through its role in administering the NT portion of NLP funding. The CCNT also accesses funds from Commonwealth programs such as the Endangered Species Program to facilitate conservation management in areas such as the Tanami desert. There is considerable Aboriginal contact and involvement in on ground work carried out by the CCNT. Much of this contact occurs during conservation management activities and the work of programs such as the Bushfires Council. At higher levels of the CCNT, Aboriginal involvement is poor. There has been little progress for Aboriginal people in advancing their concerns over conservation issues and their interests in existing protected areas at the policy level of CCNT. The DPIF are primarily concerned with providing support to pastoral and agricultural land users. Communication difficulties have arisen in the past and DPIF have been reluctant to foster further involvement in Aboriginal land. Recent DPIF future directions information indicates that Aboriginal concerns will remain incidental to the focus on primary producers. There is a considerable need among Aboriginal landowners for the sorts of technical services and advice provided by the DPIF. However, these services and information have to be provided in ways which are relevant and appropriate for Aboriginal landowners.

It is necessary for these services to be coordinated and where possible provided by organisations which are responsible to Aboriginal people. Aboriginal organisations It is clear that the Aboriginal Land Fund and Indigenous Land Corporation have the potential to significantly alter Aboriginal land management.

A key factor will be the extent to which the Land Corporation supports Aboriginal organisations on a regional basis in developing the capacity to coordinate and provide a range of services and resources for land management. ATSIC programs have a significant impact on Aboriginal land management because of their commercial focus and the relative lack of importance which has been given to environmental issues. There is some suggestion that this focus may change following the development of the ATSIC Environment Policy.

However, to date there has been no evidence of a commitment to following this policy through in existing and/or newly developed programs. In practice there has recently been a reduction in staff and resources dealing with environment issues. The implementation of many ATSIC programs is focused away from environment issues toward commercial criteria. The ATSIC community and regional planning process is carried out in such a way that environmental issues are often overlooked. ATSIC funding for maintenance and development across the full range of infrastructure is skewed towards economic and commercial criteria above consideration for land management implications. The CDEP program has considerable scope for application to environment and land management issues of concern to Aboriginal people. It has been used to support works which improve the community environment. Projects which can be supported under this program are only limited by the aspirations and concerns of community members.

The CDEP needs to be coordinated with the range of programs which provide land management and landcare support. Information exchange programs are needed to raise community awareness of environmental and land management issues which can be tackled using the CDEP. The land management activities of the NT Land Councils have been limited to providing advice and support to landowners and facilitating access to service and resources.

Increasingly the Land Councils have taken on the role of providing services which are not available in government departments and mainstream programs. The structure and activities of the Land Councils places them in an important position to identify the requirements of their constituents in relation to land management. In recognition of this role the Land Councils should be seen as an important link for coordinating and directing government resources aimed at addressing Aboriginal land management issues. Town camp councils and outstation resource centres are oriented towards meeting day to day needs in small communities and providing practical resolutions for the immediate problems associated with community land use.

They are generally aware of the requirements of communities and community members. Their role in carrying out on ground work makes them perhaps the most important link in achieving land management outcomes. The extent to which they are able to meet community needs for land management work depends on the level of funding and resources they are able to access and their level of commitment to environmental issues.