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NSW Teachers Federation Council Meeting

Mick Gooda
Aboriginal and Torres Strait Islander Social Justice Commissioner
Australian Human Rights Commission

Surry Hills

Saturday 20 November 2010


With respect and gratitude I acknowledge that we sit on the lands of the Gadigal peoples of the Eora Nation, and I thank the Traditional Owners for allowing us to do so.

My people are the Ghangulu from the Dawson Valley in Central Queensland.

On behalf of my Elders I also salute your Elders, both past and present, for their continued struggle for their country and their culture here in the place where our colonisation began.

I also acknowledge the NSW Teachers Federation and thank you for inviting me to address your Council Meeting.

Firstly, let me congratulate the NSW Teachers Federation on your efforts to ensure that Aboriginal and Torres Strait Islander people have access to education and also your commitment to a 25 year Action Plan for education in NSW.

Before I get to talking about my thoughts about education, let me tell you a bit about my role.

The Office of the Social Justice Commissioner is a statutory position that is appointed by the Attorney General.

This role was established in response to the recommendations of the Royal Commission into Aboriginal Deaths in Custody and also has specific functions outlined in the Native Title Act 1993 (Cth).

Briefly, I’m required to provide to the Australian Parliament an annual Social Justice Report and I also provide a report on Native Title. I’m also required to:

In a real sense, I’m handed these general directions and it’s up to me to sort out my priorities in terms of how I do what the legislation requires of me.

I assumed this position in February 2010 and I recently announced my priorities for my five year term which ends in January 2015.

As Social Justice Commissioner I have only six staff, so I quickly realised that it would be unrealistic to pick even one of the myriad of challenges facing Aboriginal and Torres Strait Islander peoples - housing, health, education etc - and expect to fix it by 2015.

I believe that fixing these issues will require the intergenerational commitment of the whole nation.

We will need to shift our focus to those issues that are foundational to an agenda of hope.

An agenda that tackles the root causes of Indigenous health and social inequality.

An agenda which at its core, aims to unleash the potential of Indigenous Australians.

An agenda that maximises the capabilities of each and every Indigenous Australian.

Where Indigenous rights and interests are at the centre of Australian nationhood and embedded in the institutional fabric of the country.

Human rights are not just abstract concepts that exist in documents such as treaties, conventions and declarations alone.

And we are advised to remember this: human rights only become meaningful when they are able to be exercised.

Bishop Desmond Tutu once said ‘I am not interested in picking up crumbs of compassion thrown from the table of someone who considers himself my master. I want the full menu of rights’.[1] 

So I would argue that human rights provide governments’ with a set of minimum legal standards which if applied equally to all people establish a framework for a society to foster dignity and equality of all citizens.

The human right to education is enshrined in international human rights law, specifically the International Convention on Economic, Social, and Cultural Rights (ICESCR) and the Convention on the Rights of the Child.

Education must be available, accessible, acceptable and adaptable.[2]

Australia is a signatory to these legally binding conventions, and as such has obligations to implement them at the domestic or country level.

Article 13 of the ICESCR gives us guidance about the right to education. It states that parties to the Convention recognise the right of everyone to education and that:

And

We also have available to us in Australia one of the most important documents that sets out our human rights as Indigenous peoples – and it is the United Nations Declaration on the Rights of Indigenous Peoples.[4]

The Declaration is one of the most significant milestones in the protection of indigenous human rights. It catalogues in one place the human rights outlined in other binding international instruments as they apply to indigenous peoples. In that sense it is sourced from binding international law like the Convention on the Elimination of All Forms of Racial Discrimination. The Declaration should inform how these obligations apply to Indigenous peoples.[5]

The Declaration on the Rights of Indigenous Peoples has this to say about our right to education:

Indigenous individuals, particularly children, have the right to all levels and forms of education of the State without discrimination.[6]

States shall, in conjunction with Indigenous peoples, take effective measures, in order for Indigenous individuals, particularly children, including those living outside their communities, to have access, when possible, to an education in their own culture and provided in their own language.[7]

It also says that:

Indigenous peoples have the right to the dignity and diversity of their cultures, traditions, histories and aspirations which shall be appropriately reflected in education and public information.[8]
So as you can see, the international human rights framework provides a strong practical basis for achieving the highest possible attainable standard of Education.

Let me now turn to the domestic implementation of our right to education.

Public education is currently delivered through predominantly State Government policy and this policy can be changed without even the scrutiny of parliament.

This is why organisations such as the NSW Teachers Federation are absolutely critical to ensuring the standard of education being delivered is of the highest quality, and that you continue to lobby Governments for the rights of students, particularly those most vulnerable in our communities.

While the Australian Government have recently finalised their National Aboriginal and Torres Strait Islander Education Policy (AEP), access to culturally appropriate education is often lost in the context of ‘mainstreaming’.

The focus on the maintenance and promotion of culture and identity are compromised in the delivery of a one-size fits all approach to curriculum. We know from experience that a one-size fits all approach will not achieve the same results in different environments so it is essential that our education system is tailored to meet the diversity of needs of our students.

We need to develop innovative approaches that more effectively meet the needs of our Aboriginal and Torres Strait Islander students, their families and our communities.

Again, the Declaration guides us. In the second preambular paragraph, the General Assembly of the United Nations affirmed:

.... that indigenous peoples are equal to all other peoples, while recognizing the right of all peoples to be different, to consider themselves different, and to be respected as such.[9]

First of all this is a right that all people have. And while it might seem innocuous at first glance, it actually imposes obligations on nation states and their governments to design and implement systems, such as education, that cope with difference. This means it is not up to the individuals and communities who are different to navigate their way through the education system.

It should not be up to us to change who we are to fit into their system. The system should be designed to accommodate us.
Some of the key factors that the Australian Human Rights Commission has identified as essential components of an equitable system of education for Indigenous peoples include:

These pre-conditions go a long way to providing for a good learning environment. Developing processes to achieve these ends is the beginning of the way forward.

While all of these preconditions are essential to fulfilling the right to education, one that is also a key focus of the work you do is building the capability of people to realise their potential and building this capability means building our human capital.

Our teachers are the deliverers of our education system. If we have teachers who are not equipped to work in an environment that deals with such a diverse range of experience; to build on the strengths of their students including their culture and identity; and to encourage and facilitate excellence; then we will see more of the same.

Sub-standard literacy and numeracy achievement, poor retention rates, limited opportunities for us to enter the workforce and limited opportunities for us to improve our overall quality of life.
In urban areas in particular, Indigenous-controlled education is rare – almost non-existent. While there are some urban schools with concentrations of Indigenous students and Indigenous teachers, the mainstream formal education curricula and culture prevail. School curricula are set by state education bodies and formal educational milestones are those set by state-endorsed curriculum programs.

For example, I understand that a key priority for Aboriginal people in NSW is language revitalisation. While Indigenous languages studies have recently been introduced into most state curricula, as yet, the vast majority of schools have not offered Indigenous language programs and (perhaps) assume that there is limited demand and limited expertise to deliver these programs.

It is the prevailing view of governments that formal education should teach young people to operate in the mainstream. This means that Indigenous education becomes an add-on to formal education processes rather than a key feature.

Key to a conducive learning environment and increasing the profile of Indigenous education is ensuring that new staffing policies support the development of local Indigenous teachers and support staff in all schools that have Aboriginal and Torres Strait Islander students. We must also be able to attract experienced teachers to difficult to staff schools.

So, creating a holistic education framework requires a commitment from those at all levels of government, and all areas across the sector.

A human rights based approach to achieving the right to education provides clear guidance and minimum standards, and these must be incorporated into our national legal and policy frameworks to ensure that the standard of education is of the highest quality and accountability mechanisms are built into the system.

Fundamental to this is the engagement of Aboriginal and Torres Strait Islander people in the design and implementation of education so that it does accommodate the diversity of need and difference across the sector.

Finally, at the local level, we need to ensure that our education workforce, our teachers, are fully equipped with the understanding and knowledge of what their client base, us, require to receive the highest quality service and product.

The NSW Teachers Federation are to be congratulated on pursuing a 25 year approach to Aboriginal Education in NSW with a vision to securing a way forward.

You may be aware that early on in my term I publicly called for the Australian Government to formally recognise Aboriginal and Torres Strait Islander peoples and our rights in our Constitution.

I see in the Decisions from your Annual Conference[10], that the NSW Teachers Federation has identified constitutional recognition as a key priority in advancing education for Aboriginal and Torres Strait Islander Australians and I totally agree with you.

The Constitution is the founding document of our nation and is the pre-eminent source of law in our country.

However, in drafting the constitution, Aboriginal and Torres Strait Islander people were noticeably absent. We were not afforded the right to participate in discussions concerning the future of our nation. Nor were we afforded the right to participate in the referendum that secured that future and would eventually govern our position and place within the nation.

The only mention in the text of the Constitution was to exclude Aboriginal and Torres Strait Islander peoples. The Constitution was silent in making adequate provision for us, let alone in protecting our inherent rights as the first peoples of this country.

Public commentary[11] has frequently argued that recognition in the Australian Constitution would be symbolic only and would have no meaningful impact on Aboriginal and Torres Strait Islander peoples lives.

It is my view that symbolic and practical actions are not mutually exclusive. Actions that have real and lasting affect on a community have both symbolic and practical elements. The power of symbols is that they can inspire action. This in turn can result in positive practical effects that lead to an improved quality of life for Aboriginal and Torres Strait Islander peoples.

Larissa Behrendt clearly identifies the practical affect of symbols. She says:

Symbolic recognition that could alter the way Australians see their history will also affect their views on the kind of society they would like to become. It would alter the symbols and sentiments Australians use to express their identity and ideals. It would change the context in which debates about Indigenous issues and rights take place. It would alter the way the relationship between Indigenous and non-Indigenous Australia is conceptualised. These shifts will begin to permeate them. In this way, the long term effects of symbolic recognition could be quite substantial.[12]

I believe that recognition has the potential to:

And

I firmly believe the time is right, here and now for the Australian people to formalise at least the recognition of the special and unique place of Aboriginal and Torres Strait Islander people in our nation, in our Constitution.

During the federal election campaign, Labor, the Coalition and the Greens, committed to a referendum to facilitate such recognition.

There’s also been a great level of support from the Independents since the election, and with the Prime Minister’s announcement last week, in all likelihood, there’ll be a referendum within the next three years.

The prospect of this referendum recognising Aboriginal and Torres Strait Islander people in the Australian Constitution will provide us all with a great opportunity to reframe and reset our relationship as a nation.

It’s been said to me that such an initiative – a referendum to change the Constitution - will suck up a lot of oxygen and resources and perhaps even goodwill. These resources and goodwill could be put to be better use closing the gap between Indigenous and non-indigenous Australia.

Maybe that’s true.

Certainly, we can’t underestimate the immensity of such a challenge. Because of the double majority needed - an overall majority yes vote, and a yes vote from majority of people in a majority of the States - only eight out of 44 referenda have been passed in Australia’s history.

We also know that bipartisan support at the political level will be absolutely essential and we know just how easy it is to get politicians to agree, especially if either side reckons there’s a possible wedge in there somewhere.

But to those who doubt the importance of what amounts to a form of words, I say this.

This process will give this generation of Australians the opportunity to say ‘yes’ - an opportunity to demonstrate goodwill and innate decency, just like 92% of Australians did in 1967.

In real terms this means we need between 12-13 million voters on our side.

Yes, there will be debates, speeches, opinion pieces in the press, people prowling the parliamentary corridors, Constitutional lawyers at 10 paces, yea and nay sayers, documentaries, panel discussions, arguments at dinner parties, barbecues and in front bars – all of these things.

And it’s precisely all of these things that will build awareness, focus minds and hearts and help move us all forward as a nation.

By finally and formally settling and affirming the place of Aboriginal and Torres Strait Islander peoples in our nation, all of us grow in stature.

With education being fundamental to our agenda of hope, I agree with and commend you at the Teachers Federation, that amending our nations Constitution to officially and legally acknowledge and respect the rights of Aboriginal and Torres Strait Islander people, will go some way towards creating a national and political environment were the purpose and function of formal education can be achieved.[13]

Once these foundations are secured, implementing the right to education will require a consistent approach at the National and State and Territory level.

During the next three years, I commit myself to working closely with our political leaders and, more importantly, the people of Australia to achieve a successful referendum in 2013.

I look forward to working with you at the Teachers Federation and to unleashing the potential of Indigenous Australians. I look forward to achieving an Agenda of Hope.

Thank you.


[1] D Tutu, If there is only one message of wisdom you could leave behind for humanity what would it be? , at: http://www.tutufoundation-usa.org/exhibitions.html (viewed 1 November 2010).
[2] Committee on Economic, Social and Cultural Rights, General Comment No.13 – the Right to Education, UN Doc E/C.12/1999/10 (1999), para 6-7.
[3] International Convention on Economic, Social and Cultural Rights, Article 13.1.
[4] United Nations Declaration on the Rights of Indigenous Peoples, GA Resolution 61/295, UN Doc: A/61/L.67 (2007).
[5] See Committee on the Elimination of Racial Discrimination, Concluding Observations on the United States of America, UN Doc CERD/C/USA/CO/6 (2008), para 29. At http://www1.umn.edu/humanrts/CERDConcludingComments2008.pdf (viewed 20 January 2010).
[6] United Nations Declaration on the Rights of Indigenous Peoples, Article 14.2.
[7] United Nations Declaration on the Rights of Indigenous Peoples, Article 14.3.
[8] United Nations Declaration on the Rights of Indigenous Peoples, Article 15.1.
[9] United Nations Declaration on the Rights of Indigenous Peoples, Preamble.
[10] New South Wales Teachers Federation, Annual Conference Decisions, Aboriginal Education – 25 Year Approach: The Way Forward, 2010 Action Plan Kit, July 2010.

[11] M Gooda, ‘Indigenous inclusion is good for our Constitution’, Sydney Morning Herald, 9 July 2010, p13. At http://www.smh.com.au/opinion/society-and-culture/indigenous-inclusion-is-good-for-our-constitution-20100708-10275.html (viewed 22 July 2010).
[12] L Behrendt, Achieving Social Justice: Indigenous Rights and Australia’s Future (2003), pp 144-145.
[13] New South Wales Teachers Federation, Annual Conference Decisions, Aboriginal Education – 25 Year Approach: The Way Forward, 2010 Action Plan Kit, July 2010.