Action taken for the welfare of Aboriginals in North Australia and Central Australia
The jurisdiction of the Commonwealth Government in respect of aboriginals extends only to the aboriginals in North Australia and Central Australia. The aboriginals in the various States of the Commonwealth are under the control of the State Governments and the Commonwealth has no jurisdiction in regard to them.
The general policy of the Commonwealth Government in regard to aboriginals in North Australia and Central Australia is set out in the Aboriginals Ordinance 1918-1925. The main provisions of this Ordinance are summarised in the scheduled attached to this statement.
The detailed administration of the Ordinance is vested in the Chief Protector of Aboriginals who is assisted in each Territory by Protectors. The Protectors are usually officers of the Police Force. There is a Chief Protector in North Australia and 32 Protectors; in Central Australia, there is a Chief Protector and 9 Protectors.
As the health of the aboriginal is of vital importance in connection with any scheme for his protection and welfare, the administration of aboriginal affairs in North Australia and Central Australia is co-ordinated with, and directed by, the medical service of each Territory. The Chief Protector of North Australia is the Chief Medical Officer of that Territory, and the Chief Protector of Central Australia is the Government Medical Officer in that Territory.
The Aboriginals Ordinance provides that it shall be the duty of the Chief Protector:-
(a) to apportion, distribute, and apply, as seems most fit under the direction of the Administrator, the moneys at his disposal for the purpose of carrying out this Ordinance;
(b) to distribute blankets, clothing, provisions, and other relief or assistance to the aboriginals;
(c) to provide, as far as practicable, for the supply of food, medical attendance, medicines, and shelter for the sick, aged and inform aboriginals;
(d) to provide, when possible, for the custody, maintenance, and education of the children of aboriginals;
(e) to manage and regulate the use of al reserves for aboriginals; and
(f) to exercise a general supervision and care over all matters affecting the welfare of the aboriginals, and to protect them against immortality, injustice, imposition and fraud.
Medical Attention
Four full-time Government Medical Officers are engaged in the work of attending to the treatment and prevention of diseases amongst aboriginals and half-castes. Although these officers also render medical attention to the European population, the greater part of their time is occupied in attending to the medical requirements of the aboriginals.
An aboriginal hospital and a clinic have been established in Darwin. First aid and treatment stations have been established at all Police Stations which are provided with full stocks of drugs, dressings and instruments for the treatment of common ailments. Issues of medical supplies to all employers of aboriginal labour and to Missions have been made at cost price.
Considerations is now being given to a proposal submitted by the Chief Protector of North Australia that employers should be compelled to –
- notify sickness;
- transport sick to hospital;
- provide medical attention;
- stock first aid requisites.
In malaria endemic areas, steps are taken, by fixing sites of camps and regulating migration, to prevent the spread of the disease. Regular periodical inspection is made of places of employment and camps.
Aboriginals in Employment
All employers of aboriginals must be licensed. Aboriginals in town districts must be employed under agreement and must be paid a minimum wage of 5/- per week, 3/- of which sum is paid to the employee and 2/- to the Protector in trust for the aboriginal. The employer must feed, clothe, and provide tobacco and shelter for, his employees.
In country districts, although provision is made for the payment of wages, such payment is dependent upon the question of whether the employer has to maintain and feed the relatives and friends of the employees. On some of the stations, there are large camps of aboriginals employed. Where it is proved that the station owners feed and maintain all the aboriginals in these camps, the payment of wages to the employees is waived.
The question of the rates of wages to be paid to aboriginals in employment has recently been under consideration. A conference, consisting of the Chief Protector of North Australia, and representatives of the Missions, the Pastoralists and the Labour Unions, was held in Darwin in May last to consider this matter. The recommendations of the conference will be considered by the Minister of Home Affairs at an early date.
The feeding of aboriginal employees is determined on the basis of dietetic principles laid down by the Chief Medical Officer.
Destitutes and Infirm
Destitute and infirm aboriginals are, wherever possible, collected into camps and are clothed, fed and supplied with blankets by the Government. The ration scale is laid down by the Chief Medical Officer. These camps are periodically inspected by the Medical Officers and by the Protectors.
Nomadic tribes
The Government interferes as little as possible with the nomadic tribes. The main object has been to ensure that these people have sufficient land to enable them to pursue their natural life and to provide their own sustenance.
In this connection, it is pointed out that of the total area of North Australia and Central Australia, more than half, viz. 251,520 square miles, is unalienated and is available for the nomadic tribes.
The Government recently decided to declare Arnhem Land a reserve for aboriginals. When this area is reserved, there will be a total area of 60,000 square miles reserved for aboriginals. This area is in addition to the 251, 520 square miles unalienated, and an area of 1,928 square miles held under lease to missions.
It might be argued that the area alienated under leasehold etc. comprises the best land of the Territories with the best water supplies. This is probably a fact, but the Crown Lands Ordinance provides that pastoral leases (which are the leases principally affecting aboriginals and which account for the greater part of the leased land) shall contain a reservation giving to all aboriginals and their descendants “full and free right of ingress, egress and regress into, upon and over the leased land and every part therefor and in and to the springs and natural surface waters thereon, and to make and erect thereon such wurlies and other dwellings as those aboriginal inhabitants have before the commencement of the lease been accustomed to make and erect, and to take and use for food birds and animals ferae naturae in such manner as they would have been entitled to do if the lease had not been made.”
Prohibited Areas
The Ordinance gives power to declare prohibited areas. The object of this provision is to prevent aboriginals from entering localities where by association with other races they may be degraded or learn vicious practices.
Aboriginals in employment are forbidden to enter towns at night except-
- to approved entertainments;
- to picture shows subjected to a censorship directed towards preventing their viewing films likely to lower respect for the white races (particularly white women), or to adversely affect their mortality.
Aboriginal Women
Every endeavour has been made, both by legislation and by administrative action, to protect the aboriginal women. Unmarried European men are not permitted to employ female aboriginals.
No licence to employ female aboriginals may be granted to persons of Asiatic or negro races.
Any person other than an aboriginal who –
- habitually consorts with a female aboriginal or half-caste; or
- keeps a female aboriginal or half-caste as his mistress; or
- unlawfully has carnal knowledge of a female aboriginal or half-caste,
is guilty of an offence; penalty £100 or three months’ imprisonment or both.
In his report on the aboriginals of North Australia and Central Australia, Mr. J.W. Bleakley, Chief Protector of Aboriginals of the State of Queensland, who was specially commissioned by the Commonwealth Government to enquire into the general conditions and status of aboriginals in the Commonwealth Territories, recommended certain directions in which the law for the protection of aboriginal women could be extended and improved.
The Government proposes to adopt a number of Mr. Bleakley’s recommendations, particularly those dealing with soliciting and procuring.
The Government agrees entirely with Mr. Bleakley’s suggestions as to the desirableness of encouraging the migration of white women into the Territories and the employment of married men in the interior, particularly in positions connected with the employment of aboriginals.
Before, however, a married man can be asked to take his wife with him into the interior of Australia, suitable accommodation must be provided and also proper medical attention within reasonable distance.
The majority of the quarters for Government officials in the interior are suitable only for single men, but a definite plan has been adopted for the gradual conversion of these quarters into married quarters as funds are available.
The provision of proper medical attention for the inhabitants of the interior is also receiving consideration. A commencement has been made by the appointment of a Government Medical Officer at Katherine in North Australia, and one in Central Australia. The question of co-operating with the Queensland Government for the appointment of a medical officer in the eastern portion of the Barkly Tableland is now receiving attention.
Half-castes
There are two homes for half-castes, one in Darwin and one in Central Australia (at present temporarily situated in Jay Creek near Alice Springs).
Plans had been prepared for the erection of new homes at Darwin and in Central Australia, but the matter was held up pending consideration being given to Mr. Bleakley’s suggestions regarding the future policy to be adopted in connection with half-castes.
In effect, Mr. Bleakley recommended that the crossbreeds with a preponderance of European blood should be transferred to European institutions, and that those with a preponderance of aboriginal blood should be transferred to the Missions.
The Government has given very careful consideration to this recommendation, but has not adopted it, as it feels that the responsibility for the training and welfare of half-castes is one which should be retained by the Government and should not be transferred to other authorities.
The new home for half-castes in Darwin cannot be proceeded with at present as funds are not available. The home at Jay Creek, Central Australia, is of a purely temporary nature. The greatest difficulty has been experienced in securing a site for the erection of the new home. The most suitable site is that at Temple Bar, but boring operations for water have not to date resulted in securing the quantify considered necessary. As an alternative to this site, the Telegraph Station, about two miles from Alice Springs may be converted into a home for half-castes. This site will be quite suitable and alterations to the existing buildings can be readily carried out.
The Chief Protector of Aboriginals is the legal guardian of every aboriginal and every half-caste child until the child reaches the age of 18 years. Every Protector is, within his district, the local guardian of such half-caste children.
As a matter of practice, the Chief Protector assumes control of the estates of half-castes recurrently appearing in the Debts Court. All debts are paid off by the Chief Protector, who also ensures that a certain amount is retained in each account for saving.
The Aboriginals Ordinance provides that no marriage of a female aboriginal (or half-caste) shall be celebrated without the permission, in writing of a Protector authorised by the Government Resident to grant permission in such cases. In practice, no permission is granted for a white or a half-caste to marry an aboriginal woman. Half-caste males and, where possible, Europeans, are encouraged to marry half-caste girls. Half-caste girls are encouraged to marry whites approved by the Chief Protector.
Both parties to every marriage are medically examined for venereal disease, tuberculosis, leprosy and other diseases before permission is granted.
In the case of a white or a half-caste marrying a half-caste girl, the husband is required to contribute, for at least 12 months, to the medical benefit fund of the Territory, so that the wife may have the best available medical attention in maternity and other conditions, and to ensure continued medical supervision of the offspring.
Half-caste girls are brought into the homes as soon as possible after reaching an age when they can be separated from their native mothers. They are reared and educated under constant medical supervision. After completion of schooling, the girls are taught domestic work, sewing and the making of clothes for themselves and shirts and trousers for men.
When proficient, these girls are released for employment in approved homes under strict conditions regarding general treatment, preservation of morality and general training as citizens. In some cases, permission is granted for the girls to be engaged in employment under agreement with approved persons residing outside the Territory. In such cases, arrangements are made with the State aboriginal authorities for periodical inspection. A portion of the wages earned by the girls is paid into Savings Bank Accounts and is not permitted to be withdrawn except by authority of the Chief Protector.
The Chief Protector of Aboriginals of North Australia states that his experience of this system indicates that the view commonly held that the half-caste girl is naturally immoral is unjustified. None of the girls released under the system has so far failed to conduct herself properly.
The training given to the male half-castes is of utilitarian nature, and such as will make him useful in occupations which he can follow in the Territory. It is realised that it is of no avail to teach these boys and train them in callings which do not enter into ordinary life of the community in North Australia and Central Australia.
Regulations governing the conditions of employment of half-castes in town districts are in force. Regulations to govern conditions of employment in country districts have been prepared and will be promulgated at an early date.
Records
A permanent record of every aboriginal and half-caste with whom the Chief Protector of Aboriginals has definite concern is kept. This record consists of –
- Identification data – European and aboriginal names, tribe, European (if any) and aboriginal names of lubra and offspring, with any cross reference to parents.
- Medical history, viz.:-
i. result of routine periodical examination. (Aboriginals are medically examined before signed on under agreement in town districts).
ii. details of illness, malaria, deformities, etc.
iii. details of hospitalisation and treatment.
These records are used by the Chief Protector of Aboriginals –
(a) to limit migration of aboriginal carriers of disease and to detain them during treatment in areas where they will be innocuous;
(b) to remove persons suffering from various diseases to areas likely to improve their condition or prevent relapse;
(c) to retain under observation aboriginals suffering from recurrent diseases requiring periodic courses of treatment;
(d) to retain under observation aboriginals who have been exposed to disease with long incubation period – e.g. leprosy.
(e) to determine nature of employment for which the aboriginal is suited.
3. Offences record: A record of police convictions is kept and used by the Chief Protector of Aboriginals –
i. in conjunction with identification record as a check upon prosecution, submitting previous convictions in support of application for maximum penalty;
ii. for the information of Protectors defending any subsequent actions;
iii. as indication of desirability of removing to a reserve or another district in order that the aboriginal may not continue subject to particular temptation and circumstances to which he consistently succumbs – e.g. opium addiction, alcoholism, procuring or prostitution.
4. Employment record: A record of occupations, terms of engagement, identity of employer etc. is kept. This record is used in conjunction with the other records in determining future suitable employment and rate of wages.
Missions
The Commonwealth Government has given every assistance to Missionary Societies to establish themselves in the Territories of North Australia and Central Australia. There are six stations in North Australia and one in Central Australia. The denominations controlling the stations in North Australia are the Roman Catholic Church, the Methodist Church and the Church of England. The Lutheran Church controls the Mission in Central Australia.
The Government expends £2,150 per annum in subsidies to Missions.
Report by J.W. Bleakley
In order to have the benefit of an independent opinion upon the Government’s policy in respect of the administration of aboriginal affairs, and to secure information as to the general conditions and status of the aboriginals and half-castes of North Australia and Central Australia, the Commonwealth Government arranged with the Government of Queensland for the Chief Protector of Aboriginals of that State, Mr. J.W. Bleakley to proceed to the Territories and to furnish a report.
The most earnest consideration has been given by the Government to the recommendations made by Mr. Bleakley. A considerable number of his recommendations have been adopted. Many of them merely confirmed the existing policy. Several recommendations involving additional expenditure on the creation of new positions cannot be adopted at present owing to the fact that funds are not available to meet the additional expense.
The question of expense has not, however, been permitted to influence the Government in arriving at decisions in respect of the recommendations of vital concern to the aboriginal.
The Government has not seen its way to adopt two important recommendations made by Mr. Bleakley viz.-
- that the responsibility for the care, welfare and training of half-castes should be transferred to the Missions and other, similar institutions; and
- that the payment of wages of aboriginals should be in kind and not in cash.
With regard to half-castes, it is considered that the responsibility for the care and training of these unfortunate children rests with the Government itself and that such responsibility should not be transferred to other authorities.
So far as the payment of wages in kind is concerned, the Government’s policy, not only in North Australia and Central Australia, but also in Papua and New Guinea has been to pay wages in cash. This policy is supported by a number of the foremost authorities on native administration in other parts of the world.
Moreover, a large majority of the aboriginals and half-castes of North Australia and Central Australia who offer themselves for employment, have become accustomed to the use of money, and it is feared that if they are now deprived of cash, they will have recourse to illegal methods of obtaining it. It is highly probably that one of these methods will be the prostitution of their women folk.
It may also be possible to introduce payment in kind in remote inland areas where the opportunities for spending money are limited. This aspect of the matter is receiving consideration.
General
The Commonwealth Government contends that its policy for the welfare of the aboriginals of North Australia and Central Australia is sound and that its administration is effective. The Chief Protectors and the Protectors are alive to their responsibilities and are faithfully carrying out the Government’s policy.
The Chief Protector of North Australia is at present underdoing a course of practical anthropology at the Sydney University to supplement the extensive knowledge he already possesses of the aboriginal and his customs.