Mulandudji Kalmaana: land use, development and social impact on Cape York Peninsula

Abstract

This thesis examines project development in northern Queensland. It is particularly concerned with the capacity of development approval processes to recognise and accommodate an Aboriginal perspective. Like many parts of northern Australia, Cape York Peninsula can be considered an Aboriginal domain. It is an area in which Aboriginal people form the dominant ethnic category, and in which Aboriginal perspectives on land and land use remain largely in-tact despite the relentless imposition of European cultural values. In recent years, Cape York Peninsula has been the focus of numerous development proposals. These proposals have thrown into sharp focus the way in which decision-making tools such as environmental impact assessment cope with the unique cultural perspectives of Aboriginal people. After reviewing the literature on development in Aboriginal domains, theories of the state, impact assessment and land use planning, two recent case studies of development in Cape York Peninsula are examined. The case studies, a mining venture and a tourist development, proposed for areas of obvious and intense Aboriginal interest, were the subject of considerable controversy and conflict at the local level. In each instance there was significant local Aboriginal opposition to the nature and siting of the proposals. These case studies are considered with a view to determine the degree to which Aboriginal perspectives are considered in planning and decision-making processes. In each case study the processes of planning, impact assessment and decision-making are considered. The appraisal of these development approval processes is undertaken to determine the degree of recognition and accommodation of Aboriginal perspectives. These considerations are situated in a theoretical analysis of the state, planning and impact assessment. This analysis suggests a marked disparity between planning and impact assessment theory and its practice. In addition, recent theoretical developments in impact assessment reach similar conclusions to contemporary planning theory, although after a considerable time lag. A review of the literature dealing with development and Aboriginal society shows that Aborigines have been substantially affected by resource development in the past. The examination of development approval mechanisms in this study reveals that Aboriginal interests are poorly considered in the process. Consultation with local groups appears to have been poor, and opportunities to participate in planning processes appear extremely limited, reflecting poor recognition and possibly overt denial of Aboriginal interests in impact assessment and planning processes. The thesis demonstrates that current procedures fail for two reasons: (i) they are inadequate in accurately recognising and accommodating the unique socio-cultural interests of Aborigines, and (ii) they are routinely overwhelmed by political activity beyond the statutory procedures defined for project development. Hence there is need for substantial reform of administrative and legislative arrangements which govern project development if Aborigines are to avoid being marginalised by rapid development in places like Cape York Peninsula Bargaining theory is suggested as a useful framework for the reform of the development approval process in north Queensland. The title, Mulandudji Kalmaana ("storms/lightening come") is a term used by the Kaanju people of north eastern Cape York Peninsula to describe the intimidating storms that presages the onset of the turbulent monsoon season. The use of this term in the title is intended to invoke the sense of concern with which many Aboriginal people view development. Like Mulandudji, development can be the harbinger of both significant benefits and substantial costs to Aboriginal communities. This thesis deals with project development in Aboriginal domains and it is therefore appropriate that the potential for development to produce contradictory outcomes be conveyed in the title. Show more