Reshaping governance in Torres Strait: The Torres Strait regional authority and beyond

Getano Lui (Jnr) suggested in his 1993 Boyer Lecture that it was time to ‘build a new framework’ for the Torres Strait and that this might be negotiated in time for the centenary of the Australian Constitution in 2001. This paper examines possibilities for reshaping governance in Torres Strait, particularly the idea of Torres Strait regional government. It does so in the light of the history of settlement and contemporary population characteristics in the Strait and also the history and development of local and regional structures of political representation. It pays particular attention to events leading up to the establishment in July 1994 of the Torres Strait Regional Authority (TRSA) within the Commonwealth Aboriginal and Torres Strait Islander Commission (ASTIC). Under the labels of other authorities, the marine environment, constituency and confederal representation, it also examines some key issues which are likely to arise in attempts to move beyond the present structures towards fuller regional government. Some consequences of one possible and likely approach to the constituency issue are explored and a brief concluding comment is made about the relationship between these developments in Torres Strait and interpretations of Australian federalism.     

The 1836 Lewis Collection and the Torres Strait Turtle-Shell Mask of Kulka

ABSTRACT

The fire that engulfed Sydney's Garden Palace building in 1882 also destroyed much of the ethnological collection of the Australian Museum. Among the objects presumed lost were items from the Lewis Collection, obtained in the Torres Strait in 1836. This collection constituted the museum's entire holdings from the region at that time and the earliest collection of Torres Strait objects held by any institution. This paper aims to bring renewed focus to the Lewis Collection by drawing attention to several largely forgotten items that had been transferred to Denmark prior to the fire, most notably a large turtle-shell mask currently on display at Copenhagen's Nationalmuseet. Expanding on a cryptic observation by Donald Fraser (1978), the argument is presented here that the mask is a surviving object from the Lewis Collection that originated from Aureed Island in central Torres Strait. It is a significant example of a material tradition unique to the region and is imbued with considerable ethnographic and historical importance.     

Making Tuba in the Torres Strait Islands:

There is relatively scant evidence of the Indigenous production and consumption of intoxicating drinks on the Australian mainland prior to the arrival of outsiders. Although Australian Aboriginal peoples had mastered fermentation in some regions, the Indigenous manufacture of much stronger drinks by distillation was unknown on the Australian mainland. However, following contact with Pacific Island and Southeast Asian peoples in the 19th century, Islanders in the Torres Strait adopted techniques for fermenting and distilling what became a quasi-indigenous alcoholic drink known as tuba. This paper discusses the historical process of the diffusion of this substance as a result of labour migration and internationalisation in the Strait, and provides present-day accounts of tuba production from Torres Strait Islanders.     

Ritual Mutilation of Europeans on the Torres Strait Maritime Frontier

Passage through the Torres Strait during the late 18th and early 19th centuries was a dangerous exercise for European mariners. Apart from a maze of largely unmapped reefs, mariners had to negotiate passage through waters inhabited by resident Indigenous communities who had acquired a reputation for brutal attacks and cruel treatment of castaways. This paper explores circumstances behind the murder and mutilation of crew and passengers by Torres Strait Islanders from five ships attempting to transit the Strait – Shaw Hormuzear/Chesterfield (1793), Charles Eaton (1834), Thomas Lord (1846), and Sperwer (1869). Using anthropological recordings from the late 19th century, these mutilations are recast as acts of ritual processing explicable with reference to Torres Strait Islander ontology. The circumstances that coalesced to precipitate these mutilations were complex and rare and ultimately unrepresentative of the majority of frontier interactions between European mariners and Torres Strait Islanders, which were generally friendly and mutually beneficial.     

Towards and Integrated Sustainable Development Management Strategy for Torres Strait

Lying between mainland Australia and Papua New Guinea, Torres Strait is a region of high environmental value faced by a plethora of environmental management issues. Although the environment is protected to some extent by the Torres Strait Treaty, the situation is complicated by the desire of the traditional inhabitants for political and economic autonomy and by the involvement of three levels of government, two sovereign nations and a wide range of sectoral interests in environmental management. The failure to extend the moratorium on mining exploration and exploitation of the seabed may act as a catalyst for the development of an integrated and sustainable approach to environmental management in the region. Nevertheless, there are significant constraints which may prevent this. These include the politicisation of environmental issues, lack of effective environmental management at the local level and pressure for the exploitation of natural resources.     

Women's Gift‐Fish and Sociality in the Torres Strait,Australia

This paper argues that women's everyday practice of sharing fish at Warraber Island (Torres Strait) can be understood as a form of moral transaction. Gift‐fish are shown to be ‘socially entangled’, a fundamental mode of expressing kin relatedness as well as providing an indication of the current state of such relations. Fish distribution is portrayed locally as both an instance of generosity and of obligation, demonstrating a person's desire to engage in socially valued behaviour or correct their past failings. Importantly, I suggest that fish‐giving (and receiving) has a distinctly generational character, carrying different emphases across one's life‐span. The paper reflects on the tensions involved in strategic efforts by women to reconcile their limited capacity to meet expectations from a wide range of kin and neighbours, while affirming idealised visions of communally shared moral values.     

Recent Change in Aboriginal and Torres Strait Islander Population and Housing Geographies

The intercensal period (2006–2011) was a time of significant policy and population change in Indigenous affairs. The aim of this paper is to document the changing distribution of Aboriginal and Torres Strait Islander population and housing geographies over that period. We use the Indigenous Region structure developed by the Australian Bureau of Statistics to show that Indigenous Australians grew at a rate that significantly outstrips the non‐Indigenous population with an increasing concentration of the Indigenous population on the urban eastern seaboard and particularly among older people. We present results that show that for certain measures, the housing situation of the Indigenous population in 2011 had improved relative to the Indigenous population in 2006. A smaller proportion of Indigenous households were estimated to live in an overcrowded dwelling compared with Indigenous households in 2006. There were also significant increases in the per cent of Indigenous households that owned or were purchasing their own home. Other results might be seen as less positive with community housing (a tenure type identified as having benefits in both qualitative and quantitative analysis) declining in importance. In net terms though, Indigenous households continue to experience a high degree of housing need. Compared with other households, they were 3.7 times as likely to live in an overcrowded dwelling.     

Torres Strait and Dawdhay: Dimensions of Self and Otherness on Yam Island1

When Papua New Guinea attained independence two decades ago an absolute distinction was created between Papua New Guinea and the Torres Strait: Papuans were firmly placed in Papua New Guinea territory and Torres Strait Islanders in Australian territory. In constituting themselves as Torres Strait Islanders and more specifically as Australians, Yam Island people's contemporary expressions of their connection to, yet distance from, lowland Papua New Guinea can be best described as ambivalent, pulsing between identification and incorporation, distance and disavowal. I argue that this ambivalence is not an artefact of the establishment of the border per se, but rather it was through the establishment of the border that a new layer was added to Self and Other constructions by Yam Island people in terms of how they see themselves and their Papuan neighbours. The sometimes fraught nature of this relationship can be understood in light of the continuing socio‐political impacts of these international border lines on people who have recently combined a somewhat legalistic and political definition of themselves, and of Papuans, with perennial extra‐legal definitions. I suggest it is in isolating and exploring domains of interaction that we can see the fluidity and dynamism of Self and Other definitions in operation, and in so doing better appreciate their essential imbrication.     

Wangga: The Linguistic and Typological Evidence for the Sources of the Outrigger Canoes of Torres Strait and Cape York Peninsula

How an isolate distribution of the Austronesian outrigger canoe complex came into the possession of Pama‐Nyungan speakers of Cape York Peninsula and Torres Strait has long been obscured by the diverse typology and lexicons of these canoes. Here I pinpoint links between the typological variation and the distribution and ages of associated Austronesian loan words. These links implicate several Austronesian contact sequences, one in Torres Strait and another in southeast Cape York Peninsula, and point to speakers of Papuan Tip Oceanic languages as the main source. Some of these loan words reflect archaic forms of Papuan Tip words and are thus indicative of early contact dates. I suggest that the introduction of these canoes most likely involved past episodes of sustained trade engagement and/or small‐scale colonization by speakers of Austronesian languages.     

Explaining Shellfish Variability in Middens on the Meriam Islands,Torres Strait,Australia

Archaeologists have traditionally assumed that proportional variability in the types of shellfish remains found in middens can directly inform arguments about prehistoric coastal and island diets. We explore this assumption by comparing an analysis of three shellmidden sites on the Meriam Islands (eastern Torres Strait, Australia) with data on contemporary Meriam shellfishing strategies. We present tests of hypotheses drawn from behavioral ecology about factors that influence prey choice and differential field processing and transport, and compare these results to variability displayed in the shell assemblages. We find that while prey choice is predictable ethnographically, it is not reflected in the midden remains. Variability in the middens only begins to make sense with reference to the tradeoffs that foragers face in attempts to maximize the rate at which they can deliver resources to a central locale. This result should be of interest to all researchers concerned with reconstructing and explaining variability in prehistoric subsistence practices, especially in coastal or island settings.     

Lining the Path: A Seascape Perspective of Two Torres Strait Missions,Northeast Australia

This paper compares the socio-spatial characteristics of two missions dating from different periods in Torres Strait, northeastern Australia. It builds upon previous archaeological research which correlates settlement-subsistence systems with the seascape cosmologies of marine specialists. Against the backdrop of profound changes in colonial governance and religious commitment (from mission to church) from the late nineteenth to mid twentieth centuries, we map the changing structure of two Torres Strait missions, and reflect upon these changes relative to lived sea-space. We use this approach in the belief that “local” histories provide meaningful context to broader colonial narratives.     

The ritual dugong bone mounds of Koey Ngurtai,Torres Strait,Australia: Investigating their construction

The islands of Western Torres Strait, between Papua New Guinea and Australia, saw the emergence of ritual dugong bone mounds approximately 400 years ago. These mounds were used as a means to commune with, and as an aid for the hunting of, dugongs. This paper explores the bone contents of three dugong bone mounds on the small, uninhabited island of Koey Ngurtai as a means to determine their construction and in doing so to explore the historical emergence of ritual bone mounds associated with dugong hunting magic—and thereby to historicise ethnographically known cultural practices—in Torres Strait. Copyright © 2009 John Wiley & Sons, Ltd.     

Making tuba in the Torres Strait Islands: the cultural diffusion and geographic mobility of an alcoholic drink

There is relatively scant evidence of the Indigenous production and consumption of intoxicating drinks on the Australian mainland prior to the arrival of outsiders. Although Australian Aboriginal peoples had mastered fermentation in some regions, the Indigenous manufacture of much stronger drinks by distillation was unknown on the Australian mainland. However, following contact with Pacific Island and Southeast Asian peoples in the 19th century, Islanders in the Torres Strait adopted techniques for fermenting and distilling what became a quasi-indigenous alcoholic drink known as tuba. This paper discusses the historical process of the diffusion of this substance as a result of labour migration and internationalisation in the Strait, and provides present-day accounts of tuba production from Torres Strait Islanders.     

Enmity and Amity: Reconsidering Stone-headed Club (gabagaba) Procurement and Trade in Torres Strait

Historical records for Torres Strait, including those from Haddon's 1898 Cambridge Anthropological Expedition, identify the Papuan mainland as the main trade source for stone-headed clubs (gabagaba). This view has persisted despite the contradictory facts that the Papuan lowlands are essentially devoid of stone and Torres Strait abounds in stone suitable for club manufacture. Not surprisingly, preliminary raw material findings for ethnographic and archaeological gabagaba in museums indicate that local Torres Strait manufacture was more significant than previously thought. Some of the early confusion over gabagaba sources probably reflects diffusionist assumptions that ‘superior’ cultural items, such as stone-headed clubs, must have moved from so-called ‘advanced’ Papuans to ‘less-developed’ Torres Strait Islanders. However, more significant is the lack of understanding of the multiple and complex roles of gabagaba in inter-group social relations which saw clubs moving between Islanders and Papuans through looting, trade and ceremonial exchange. Apart from their well-documented use as lethal weapons during head-hunting raids, I argue that gabagaba also had an important ceremonial role in exchanges between hostile groups aimed at cementing social alliances. Following post-contact disruptions to trading networks and inter-group hostilities, the social/ceremonial roles of gabagaba were emphasised while gabagaba production became less specialised.     

Land and Sea Tenure at Erub,Torres Strait: Property,Sovereignty and the Adjudication of Cultural Continuity

Approaching property as social practice, and native title as a confluence of indigenous, ethnographic, and legal discourses, we address two themes: firstly, the ethnocentrism of the state's division of ‘property’ from ‘jurisdiction,’; applied to deny indigenous societies' practice of the latter; and secondly, the contradictions inherent in judicial evaluation of continuity and discontinuity in indigenous law and custom. We explore the relationship of ‘home place’ to tenure at Erub, where island, reef and ocean comprise a cultural and experiential continuum. Rights across a full spectrum of material/symbolic resources involve a dynamic tension between principles of exclusion and incorporative reciprocity. The issue of how to balance more particular against more collective rights is at play with each nesting of more local into more inclusive socio-territorial identities: from households and lineages, through island communities, sub-regional island groups, and Torres Strait regionally, to the encapsulating state and evolving international orders. At Erub, an island community long regarded as a vanguard of creolization for Torres Strait, newcomers have by-and-large been assimilated to indigenous systems of land- and sea-holding and authority. The connection between people and territory is a complex practice of social identities and interests responding to political opportunity, according to cultural forms that manifest substantial and traceable continuities to indigenous arrangements, as innovation has proceeded. The continuities appear sufficient to satisfy criteria for native title recognition as articulated in the Mabo decision, but the criteria themselves are too narrowly based to accommodate the processual dynamics of evolving culture and tradition. A reordering of territorial jurisdiction, predicated on the principle of Islander consent to development activities in their homelands/seas, would provide more authentic conditions for cultural autonomy.