Rethinking the building blocks: management and indigenous epistemologies

Richard Howitt and Sandra Suchet

Department of Human Geography, Macquarie University NSW 2109, AUSTRALIA

Paper for presentation to ‘Processes for Cross-Cultural Engagement’, a Special Session in the Remote Regions/Northern Development Session of the Western Regional Science Association Meeting

26-29 February 2004

Wailea Marriott Resort, Maui

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ABSTRACT: The persistence of indigenous epistemologies rooted in systems that predate the creation of colonial property rights and assertions of frontier conquest and dispossession, unsettles the dominant idea in environmentalist and developmentalist discourses that conservation and industrialisation are unproblematic goals for communities and nations. This paper draws on diverse indigenous knowledges in Australia, as well as Canada and southern Africa, to argue that conceptual building blocks which render management, be it of environments, economies or people, as unquestionably good, need to be reconsidered in light of their hidden cultural specificity and their implicit silencing of alternative narratives of the economic, environmental and cultural dimensions of social life.

 

 

Australian legal, political and social institutions have come late to formal recognition of indigenous rights. In the United States, some Native American Nations retain rights that unequivocally predate, and were not subsumed by, the American Constitution. These rights include significant interests in minerals, water, timber and wildlife resources. In Canada, government efforts to discipline and extinguish common law and treaty rights produced highly significant shifts in public policy, including political restructuring, constitutional reform and new theories of economic and environmental relations between indigenous and settler nations. In New Zealand, taking the principles of the Treaty of Waitangi seriously contributed to the emergence of a new resource management and planning regime in which regional economic and environmental decisions are influenced by Maori values.

 

In Australia, acknowledgment of indigenous Australians' rights stemming from pre-colonial social formations and recognisable by the common law as 'native title', unsettle assumptions that underpin policy settings, community values and perceptions, legal and regulatory infrastructure, and discursive communities that shape development and conservation policy and practice. In doing so, new discursive and political spaces have opened up where different foundations for weaving social, environmental and economic justice into the social fabric are encouraged. This paper explores some of these spaces by considering the idea of management in terms of the assumptions and power relations that are embedded in its dominant concepts and practices.

 

Using Rose’s metaphor of a hall of mirrors, the paper exposes the circular argument which justifies and legitimates the assertion and imposition of Eurocentric knowledges and formation of colonizing power relations in management discourses affecting local and indigenous interests.[1] The flaws in the circular argument are subsequently exposed through consideration of indigenous experiences in Australia as well as those of local and indigenous peoples in Canada, Zimbabwe and Namibia. The deep colonizing impact of the circular arguments of Eurocentric management discourse is also found to contribute to other key ideas in environmentalist and developmentalist discourses: planning, institutional strengthening and capacity building. Finally, the paper offers situated engagement as a way to interact, think and practice in which the dangers of the 'hall of mirrors' are avoided. This approach relies upon engaging in situated places so that thoughts and actions are challenged by, and co-constructed with, contextualised multiple knowledges. The paper concludes that the Australian experience presents an opportunity for rejection of the dominant developmentalist and environmentalist discourses in favour of more open-ended, decolonizing dialogue of equals.

 

Management in Eurocentric epistemologies

Wildlife management is the process of using science to identify appropriate management principles and practices, to develop plans of management and to implement and review these plans.[2]

 

In formulating and implementing more sustainable environmental and developmental programs, conservationists, developmentalists, economists, scientists, bureaucrats, academics and researchers working in Australia, Canada and southern Africa often assume that what is needed is participatory management. To implement this management they call for plans to be developed, community capacities to be built and the relevant institutions strengthened. What exactly is meant by management in such circumstances?

 

The notion of management is intimately woven into the oppositional binary of development and conservation. This binary reflects an assumed separation between society and nature, and between human and non-human animal, plant, rock, tree and so on. It assumes that society and humans are superior to nature and animals and can thus intervene to exercise managerial control; and it assumes there is an inevitable linear movement of progress from an original, wild state to a developed, civilised and domesticated state.

 

Such assumptions about separation, hierarchy and progress justify intervention in, control of and domination over (inferior) nature, animal and ‘wild’ human by (superior) society and ‘Eurocentric’ human. Nature, wildlife and ‘wild humans’ are constructed as resources and valued on Eurocentric terms to be developed and/or conserved to serve scientific, conservationist, developmentalist and capitalistic agendas. Conservation and development, in other words, imposes and privileges Eurocentric epistemologies through authorized systems of resource management, environmental management, wildlife management and community management, often through the illusion of removing control, intervention and management (see plate 1).

 

Plate 1: Wildlife at a waterhole - Etosha National Park, Namibia

Tourist illusions of a natural, wild, uninhabited and authentic experience are reinforced around a waterhole in southern Africa. Written out of this brochure-perfect vision are histories and realities of habitation, interaction, dispossession and alienation. Similarly rendered invisible are management interventions and controls such as the construction of water points, fences, roads and tourist facilities; the protection of animals from human interactions, movements and consumption; and 'wildlife' population counts, removals and introductions.

 

Irigaray argues that notions of control, domination and intervention are integral to the history constructed by Western masculinist thought:

… a history of enduring violence, of appropriation, of domination, and not of contribution to what is. Man has created, invented, and given to nature not so much because he was more than her, but because he wished to tame her … He likes to tame the infuriated sea, the wild animals, the unbridled passions … The being sea, the being earth, living beings are named by him only after having been yoked by him, only after he has interrupted all proximity and reciprocity with them, as well as attentiveness to them.[3]

 

The conceptual and practical foundations for this domination and control, this management, are internally related to historical colonizing processes. For example, the development and conservation of resources has been asserted and imposed through management mechanisms such as sovereignty, ownership, laws, institutions and scientific research. This historical assertion and imposition continues today. Concepts and practices of separation, superiority, intervention, control and management are reimposed and reinforced through a range of co-management, joint management and community-based management programs focussing on the conservation and development of resources throughout the world.

 

Management is not only problematic, but is virtually an invisible foundational concept in developmentalist and conservationist projects. Its absence from 'The Development Dictionary' suggests that this particular technology for disciplining populations is invisible even in many critical discourses.[4] Even efforts to liberate the objects of injustice and oppression are often harnessed by management thinking and practices to regressive structures of discipline. For example, indigenous self-determination is reconstituted by the Aboriginal affairs industry as 'community management'. In doing so, processes of dispossession, theft and genocide that produced those 'communities', as well as assertions of sovereignty and identity, and aspirations of being-in-place on one's own terms, are all rendered invisible.

 

In mission settlements and government reserves around Australia, indigenous people's lives, resources and futures were, and continue to be, managed to conform to all manner of Eurocentric management presumptions. Historically, the best that white Australia had to offer Aboriginal and Torres Strait Islander peoples was a well-intentioned and dehumanizing paternalism to help the traumatised victims of history manage better their post-frontier realities. The tools of management - education, training, organisation, SWOT (strengths, weaknesses, opportunities, threats) analyses, infrastructure plans, needs assessments and so on - continue to be offered on terms that seem generous to many outsiders who are not disciplined and devalued by them. Special programs aim to equip Aborigines and Torres Strait Islanders with what they are seen to lack, and bureaucracies developed to manage them. The cultural alienation this imposition produces is seen as a temporary aberration. With a barely disguised imposition of a linear progressivist view of success, failures are reconstituted as hopeless cases, or efforts to go too far too fast.

 

A ‘hall of mirrors’: Eurocentric epistemologies as colonizing knowledges

Not only do assumptions about separation, hierarchy and progress underpin concepts and practices of management, but the dominant discourses of management also assume their own universal legitimacy. This constructs a circular argument which legitimates and justifies colonizing relationships. D Rose’s metaphor of the Eurocentric self, positioned within a hall of mirrors, justifying and legitimating one’s own reflections, illustrates this argument.[5] In the case of wildlife management, the dominant management discourse assumes that management is a universal concept and practice, and that it is justifiable to assert and impose it.[6] This silences, ignores, devalues and undermines multiple knowledges. With these knowledges blocked out and made invisible, the assumption that management is a universal concept and practice is legitimated. Thus, even when wildlife management is conceived of with the best of intentions and implemented as effectively as possible, the fundamental and generally hidden assumptions reinforce colonizing power relationships.

 

Shattering mirrors with situated glimpses

Clearly, for diverse local and indigenous epistemologies disciplined and devalued by the dominant discourse, the challenge is to ‘shatter the mirrors’, or challenge the power relations formed by this circular argument. One approach is to draw upon situated knowledges which do not subscribe to the same beliefs as Eurocentric knowledges and to use them to unsettle the assumption of universality. It has been shown that management is clearly about active human control and intervention. However, people interact with complex ‘worlds’ very differently and intervention can be seen as an anathema rather than a solution:

... we might note that for many people non-intervention is frequently a virtue. The positive valuation of non-intervention rests on several assumptions:

·      that the results of actions cannot be accurately predicted, therefore there are times when it may be better to do less than more;

·      that information from complex systems is never complete, therefore the process of determining exactly what sorts of interventions would be best is one that requires much time and many observations;

·      in a more pragmatic vein, that the system which is producing our current problems is not the system we ought reasonably to reply on to get us out of it.

These point a long way to explaining why, in Australia, European land use strategies are perceived by Aboriginal people to be founded in arrogance.[7]

 

A survey of Aboriginal perceptions of land management in Central Australia similarly highlights knowledges that are not based on beliefs in intervention and overt control:

Many people expressed a sense of loss that the [locally extinct ‘native’] animals were no longer around but there was also a pervading sense of passive acceptance about what had happened. Rather than question why the animals had gone and then attempt to act to bring them back, Aboriginal people accept what they perceive as a change in circumstances which is beyond their control.[8]

 

In Canada, what scientists define as 'population declines', are understood very differently by the Inuit:

Elders say that any kind of animal moves away for a while but, according to the government, animals are in decline. To the Inuit, they have moved, but not declined ..…[9]

 

Notzke describes the sense of discomfort the term management conjures up for many indigenous people in Canada. She argues that this is due to the lack of an equivalent term in aboriginal languages and the sense of superiority over and apartness from nature that management implies.[10] The response is similar in southern Africa. For the VaChikunda of the Zambezi Valley in Zimbabwe, control is not necessarily grounded in human actions but in the decisions and actions of the spirits and spirit mediums: 'the issue of who controls the animals is ambiguous, since the spirit has not claimed de jure control but has exhibited de facto control in the minds of many people'.[11]

 

Indigenous ways of knowing and doing can be fundamentally different to dominant Eurocentric knowledges and practices. For example, many Aboriginal people in central Australia find conservation management practices which value certain species above others, and will remove certain species, such as ‘feral animals’, to promote the perceived health of others, such as ‘native animals’, a foreign concept that they cannot relate too.[12] Stevenson argues that in Canada:

… many Inuit do not believe that “wildlife” can be “harvested”, “managed” or “conserved” as “stocks” or “populations”. Many of these concepts have no basis in Inuit reality.[13]

 

Assumptions about the universal desire to understand, intervene in, control and manage wildlife resources so they can be conserved or developed according to human priorities, as well as stereotypes about indigenous peoples living in harmony with nature or being inferior wild humans, cannot be sustained when glimpses into specific situations offer alternative knowledges. Traditional owners from Napranum on Australia's Cape York Peninsula patiently yet insistently teach their own ways of relating to and with country. Anger and frustration is often expressed at a lack of recognition and respect by people and cultures who arrogantly judge on decontextualised values and priorities: 'Use your commonsense, but usually there’s different commonsense'.[14]

 

Economic relations in Australian indigenous societies have always defied the conventional categories of economic management. Where social (people-to-people) relations, are ontologically embedded in ecological-economic (people-to-environment) relations, categories such as 'economic base' and 'ideological superstructure' are unhelpful. And where the foundational concepts of 'Dreaming' can best be characterised as 'everywhere' and 'everywhen', categories such as 'growth' and 'private profit' are difficult to grasp and operationalise.[15] Gibson-Graham challenges the extent to which capitalist epistemology is embedded within the categories used to describe and analyse economic relations and economic processes.[16] For indigenous peoples, the failure to incorporate even such basic elements as subsistence production into national economic statistics, or to see 'caring for country' and maintenance of indigenous cultural capital as 'productive activity' reinforces their economic and social marginalisation. The political declaration of profit, growth and development as privileged measures of economic success entrenches environmental exploitation and cultural alienation as the fundamental basis for indigenous participation in what is widely-admired as western pluralist democracy - what Cramér refers to as the 'cleptocracy - extractive exploitation'.[17]

 

For many indigenous peoples, diverse elements of their society, economy and ecology continue to shape everyday life. Yet the invisibility of management as an ideological and practical tool that constrains and disciplines both the realities and imaginaries of being-in-place makes it difficult to challenge. An alternative vision can be built, however, if one considers the difference between 'co-management' arrangements for national parks or other areas, and what arrangements for organizing land use, resource use and social relations might be developed by sovereign indigenous nations within wider processes of national governance.[18] Cooperation between indigenous landowners and scientists or other experts would not be precluded by indigenous sovereignty - but the terms of engagement are likely to be extremely different to the paternalistic arrangements that typify many co-management arrangements.

 

The ontological primacy of the human domain at the top of the hierarchical chain of being is surreptitiously embedded in the 'management systems' that are put in place to implement 'management plans'. The idea of people as kin to other species, as co-equal occupants of places, as embedded in rather than outside and above ecological relations are not just marginalised in the process by actually overruled and reconstituted. Good management gets constructed as the unquestionable goal of development and environmental planning. Yet, in radically ex-centric Aboriginal epistemological structures, where human affairs are contextualised in sentient landscapes, management as a deliberate intervention into human-environmental relations towards specific goals is almost literally unthinkable. Clearly, to displace the managerial dominance of the self-referencing western self, we need to render visible and challengeable the hidden privilege of Eurocentric knowledge in other common concepts.

 

Rethinking related building blocks

It is important to scrutinise every concept and practice in environmentalist and developmentalist systems for similar assumptions and implications. Much development and environmental policy aimed at nurturing practical improvements in outcomes for indigenous Australians emphasises strategies such as planning, institutional strengthening and capacity building as fundamental. Not questioning such concepts leaves the epistemological dominance of western liberalism (Cramér's cleptocracy) not just unchallenged, but virtually invisible. In co-constructing conceptual building blocks that indigenous peoples might use in shaping alternative futures, serious and careful interrogation of the terms of engagement that set the parameters of action and debate is imperative. Strategically, in seeking to decolonise the realities and imaginaries in which indigenous peoples are implicated, conceptual building blocks used in critique and reconstruction need to mean something to people on the ground. Such concepts need to be re-thought. They need to be reconceptualised, indigenised and continually interrogated for deeply-embedded colonizing effects.

 

Planning

Community, regional and environmental planning exercises are entrenched in many government, non-government agency and community association procedures. On all 'sides' of the political spectrum, planning is accepted as a fundamental strategic tool for achieving goals. Escobar argues that 'no other concept has been so insidious [nor] … gone so unchallenged'.[19] Some literature exists on the role planning plays in disciplining space and controlling people to rationalist visions of the future,[20] and some efforts have been made to connect planning theory to theoretical debates about marginality, identity and difference.[21] However, this critique is oriented more towards how to include those that planning has conventionally excluded. Our assertion, however, is that the imperative is to challenge the epistemological foundations of planning and how this constitutes as irrational and illegitimate non-Eurocentric ways of thinking and being-in-place.

 

Planning is predicated ontologically on a linear, progressivist view of time and a bounded, static notion of space. A future is envisioned, one which is open to deliberate human intervention prioritizing becoming, moving towards, achieving and goal setting. Change and dynamism are disciplined to a static, singular view of what is worthwhile, valued and desirable - firmly situating planning within the hall of mirrors and constantly mistaking 'its reflection for the world'.[22] Christie and Perrett offer an insight into the ontological constraints facing an application of 'planning' in other social systems. In exploring Yolngu approaches to resource negotiations they argue that through the Dreaming it is time's circle rather than time's arrow that provides the fundamental metaphor of change over time.[23] In responding to this challenge to linear thinking 'categories and meanings have to be redefined'.[24]

 

For indigenous people in Australia, prospects to challenge systems of planning and accountability that redefined their relationship with state institutions in the 1980s and 1990s have been opened up a little by legal acknowledgment of persistent rights. One view of the negotiation and amendment of the Native Title Act 1993 is that it aimed to make the unruly pluralism of ill-defined rights and responsibilities derived from diverse systems of customary law amenable to the discipline of planning. For Aboriginal and Torres Strait Islander negotiators, the aim was to open what Pearson calls a 'recognition space'.[25] This recognition space opens possibilities of allowing unruly pluralism to take root in wider Australian society and retains space for indigenous ways of being-in-place to provide foundations for economic, social and environmental justice. This does not abdicate responsibility to a depersonalised planning system, but embeds it in the lives of those who are implicated in the economic, social and environmental relationships involved.

 

Institutional strengthening

Institutional strengthening is seen as a key issue for empowering local communities and assisting with their participation in developmental and environmental processes. However, institutions are not neutral entities, and notions of strengthening bring with them questions of whose institutions are recognised on what grounds, why do they need strengthening and how are they to be strengthened?

 

Systems with unruly institutional arrangements are difficult to manage. The recognition space created by the common law's acknowledgment of native title does not extend to indigenous institutions unless they can be transformed to conform to the legal requirements of 'good governance' (eg accountability, transparency, efficiency etc). In developing institutional arrangements to advance recognition of indigenous rights, the dominant developmentalist and environmentalist discourses strengthen institutions that they recognise. They seek to reproduce within indigenous institutions those relationships and processes that characterise their own institutional forms. To return to the image of a hall of mirrors, much institutional strengthening is 'monologue masquerading as conversation; masturbation posing as productive interaction'.[26]

 

Eurocentric institutions are fundamental mechanisms through which Eurocentric powers and epistemologies are asserted, imposed and legitimated:

Today Nature Conservation [the state agency given responsibility for wildlife in pre-independence Namibia] owns the wildlife ... in the old days the head of every household knew this place was ours and that he could hunt meat.[27]

 

Institutions and organisations are deeply rooted in specific Eurocentric ways of formalising and rationalising decision-making and implementation processes. As their defined role is to govern and manage, both people and resources, intervention, control and rationality are fundamental beliefs embedded in the notion of an institution. Institutions and organisations become further embedded in Eurocentric epistemologies as their particular responsibilities are categorically separated and valued on Eurocentric terms of reference ­ for example, economic agencies, environmental agencies and so on. By assuming that institutions and institutional systems are neutral entities, interest groups can set about to form and strengthen these institutions without challenging the stereotypes and assumptions on which they are based. This includes unproblematically accepting concepts which have only recently been included as pre-requisites for Eurocentric institutions, such as democracy, representation and gender equality.

 

It is important to remember that this is only one way of looking at things. For example, democracy is a specific Eurocentric conceptualisation of governance and other groups have multiple conceptualisations of their relationships with ‘worlds’:

When someone says, “you Bushmen have no government,” we’ll say that our old, old people, long ago had a government, and it was a glowing coal from the fire where we last lived, which we used to light the fire at the new place where we were going. So I say, “Don’t hold us back, we want to move forward, we have our own talk”.[28]

 

Local structures and systems may be recognisable as institutions in Eurocentric frameworks or they may need clear and careful ‘translation’ so that people from international, national and private agencies can recognise and understand what they are, and are not, how they work and what their motives are. Outside interest groups need to respect existing structures and systems without judging them on inappropriate terms.

Have to start looking at how things will work for us and not how they will work for the rest of Australia. And not try to adapt into a way that will be alien to us, and always has been alien to us.[29]

 

It is important to make clear that this critique of the epistemological constraints imposed by Eurocentric terms and categories will not be adequately addressed by overthrowing one set of universals for another and romancing the local by trying to return to some naive, unobtainable, romantic vision of what things ‘once were’. Marginalised, traumatised, dispossessed and often dysfunctional indigenous societies are no more a source of universal truth than the flawed, dehumanised and dysfunctional systems whose smoke-and-mirrors approach to being-in-place has entrenched economic, social and environmental injustice as characterizing contemporary social relations. In rethinking the building blocks in ways that might entrench economic, social and environmental justice in the social fabric, we are unlikely to find concepts, categories and exemplars of what might be. Where even imaginaries have been deeply colonised by dominant discourses of liberalism and development, it is not just the relationships of power that need to be reshaped, but also the concepts, language and images used to describe, analyse and address the processes. Building blocks that come in the form of words, ideas and propositions need to be re-thought, as well as applying new analytical tools to the material relationships and processes. This presents multi-dimensional challenges as much to indigenous groups as to mainstream or progressive development agencies.

 

Jacobs and Mulvihill coin the term 'viable interdependence' as a way of focusing on the task.[30] They provide an account of the need to problematise not just the institutions that derive from colonial circumstances, but also to recognise that decolonisation is an ongoing process that demands ongoing institutional change.[31] Institutional infrastructures that were once part of a solution can become entrenched and insulated surprisingly quickly, to emerge as part of the problem of achieving further steps along paths of change. Similarly, it is easy to mistake the employment of indigenous people within institutional structures as the transformation of such structures into indigenous institutions, ignoring any absence of indigenous epistemological foundations.[32] Strengthening oppressive institutions, whether colonial or indigenous, is unlikely to provide a strong foundation for entrenching justice within environmental, social and economic relations.

 

Capacity building

The strategic partner of institutional strengthening in development and environment discourses is capacity building. Capacity building is another concept drawn upon often without any in-depth consideration of what it means. It is predominantly associated with building up the capacity of local people and communities to meet criteria of successful management imposed by Eurocentric developmentalism and/or environmentalism. Therefore it is seen as something that those with ‘the’ capacity (the teachers, educators, trainers ­ those equipped with Eurocentric knowledges and skills) do to those without ‘the’ capacity (the students ­ local and indigenous people who are perceived as uneducated, ignorant and illiterate on Eurocentric terms). Again, the embeddedness of profoundly powerful epistemological assumptions is difficult to escape. It is often people's capacity to plan, to manage, to participate in development and conservation opportunities, to conform to the linear trajectory of rationalist development and conservation narratives that is being built. And like so much developmentalist and environmentalist construction, this building is predicated on the demolition (or rejection) of the value of existing capacities. That unruly pluralism of cultural diversity is disciplined to conform to tightly controlled agendas of production, education, performance and good governance and thus local and indigenous knowledges and skills that fall outside of these parameters are ignored, devalued, silenced, denigrated and undermined.

 

In achieving ownership of land or resources, in succeeding in setting up community-based enterprises, or managing community development employment programs, indigenous communities are often set up to fail. Resources are withheld, delayed, or offered under strict and inappropriate guidelines and conditions. Responsibilities are imposed without concomitant rights being recognised. Accountability is reconstituted in financial rather than political terms, and the intended beneficiaries of capacity building exercises are alienated from them. Again, the terms of engagement are set externally to conform to the dominant verities of development and environment discourse.

 

By engaging with specific experiences and situations the notion of capacity is unsettled and multiple capacities, knowledges and skills become visible, touchable, smellable etc. The implementation of capacity building then shifts so that local and indigenous groups are also seen as sources of capacities. Similarly, power relations shift as Eurocentric ‘capacity builders’ become accountable to the local in terms of recognizing their own deficiencies (and their own need to have their capacity built), the impacts of their work (often colonizing in effect) as well as the strength of their work in delivering new capacities and skills in changing circumstances. If coming from Eurocentric epistemological bases, capacity builders need to be aware of their own biases, especially in regard to taken-for-granted concepts such as conservation, management, wildlife, development, democracy, representation, gender and education.

 

Metaphors of change

In Australia, recognition of native title, other metaphors of 'reconciliation' and 'coexistence' and ideas of 'indigenous sovereignty' offer fertile ground for rethinking developmental and environmental strategies. In particular, admission that indigenous peoples are genuine stakeholders in these arenas - their transformation from marginalised victims of colonialism to active agents in the economic, political, social and environmental landscapes - demands that the unquestioned privileging of the developmentalist and environmentalist projects be challenged at many levels in efforts to rethink process, policy and practice. This admission will not only see the emergence of negotiated settlements over specific sites, resources and projects, but will also see far-reaching challenges to institutional, legal, social and constitutional arrangements that have been predicated on assumptions of terra nullius. The discursive space created by these challenges opens up many concepts and strategies that might have previously seemed settled. Ideas that were once fundamental to strategies for local or regional empowerment need to be reconsidered. Ideas that might have once been rejected as anathema to local empowerment, might be amenable to appropriation, rethinking and new applications.

 

Recognition of indigenous rights opens up opportunities for decolonisation of indigenous spaces.[33] Rose points out that most efforts at 'decolonisation' are problematic, having embedded within them tendencies toward what she terms 'deep colonization'.[34] The tension between these possibilities may well be an ever-present, irresolvable reality,[35] but many strategists (both conservative and progressive) seek to establish certainty by reducing the dialectical complexities of new, open-ended discourses to unambiguous and singular closures. If the metaphors of reconciliation and coexistence are to offer a basis for building more equitable, just and sustainable relations in remote and rural communities around Australia, consideration of how indigenous and Western epistemologies might differ, and what might be involved in co-constructing new relations on the ground, is imperative.

 

Situated engagement: transforming the mirrors

The intense localism of much of the political domain in indigenous affairs represents another challenge to the far-reaching rethinking of conceptual and political building blocks of just and sustainable societies. There is a scale politics to be considered. Remote indigenous areas are no more isolated from globalizing relations than rustbelt and sunbelt economic regions typically seen as characterizing the postmodern global economy. Taking local indigenous epistemologies seriously does not require denial of wider scale political processes. Indeed, the key challenges to remote and rural community leaders involve coming to terms with complex material and ideological conditions as a basis for self-determination. There is no point trying to build a socialist republic in isolated indigenous reservations when the areas involved are deeply embedded within global relations in mining, tourism and conservation industries. But neither can we pretend that the Dreaming is 'just cultural' and without relevance and meaning in economic, political and environmental aspects of life.

 

In exploring new models of regional governance, indigenous groups and their supporters (including those non-indigenous people whose rights co-exist with indigenous rights such as native title) must construct approaches that are capable not only of challenging the dominant terms of engagement that are derived from the operations of institutions, processes and relations that were predicated upon terra nullius, but also of encompassing epistemic diversity. There is no epistemic community that bridges indigenous, capitalist, and socialist epistemologies. Naïve or simplistic accommodation of diversity in ways that deny the embeddedness of power and privilege in social, economic and environmental relations at all scales will reproduce the problems in new forms rather than open new possibilities.

 

In re-membering these reconceptualised building blocks into more just, equitable and sustainable communities, the issue of multiple axes of identity, sovereignty and rights must be addressed. If we consider the metaphor of reconciliation, the effort we engage in is not an accountancy-style reconciliation, of bringing two sides together and balancing the accounts. Imagining, building, and refining landscapes in which multiple sovereignties, epistemological diversity, and shifting identities coexist without descent into human rights abuse and environmental or social vandalism is the hard work of reconciliation. It is not the imposition of another externally imposed (or even internally generated) 'correct line' or 'shining path' to liberation. It is not the devaluation of people of any description, but the hard work of working with those who are the stakeholders, in the contexts that shape being-in-place. This requires consideration of multiple scales as well as multiple stakeholders, and organizing, analyzing and refining engagement rather than strategic isolationism. This is about a contextualisation that is simultaneously cultural, environmental, economic, political and philosophical.

 

This multi-scale, multi-dimensional openness is what underpins the viable interdependence that Jacobs and Mulvihill refer to.[36] In a similar vein Rose advocates situated availability[37] and Suchet discusses situated engagement.[38] Situated engagement is described as a means of approaching interactions in which engagement between people has to occur in situated places. This means that any understandings and interactions are based on contextualised and locally relevant knowledges and terms of reference. In engaging in situated places, the mirrors of the hall are transformed into windows. In looking through, opening and reaching through the windows, it is possible to recognise and engage with multiple knowledges. This recognition does not mean disposing of Eurocentric knowledges, but acknowledging their positionality. This means that concepts and practices become reliant on situated circumstances for their relevance and meaning. As universal assumptions are revealed as flawed and dangerous, engaging with and between knowledges can open up possibilities that are unimaginable from within the hall of mirrors.

 

Conclusion: dancing at the edge of the world

Developmentalist and environmentalist projects have long sought to discipline indigenous peoples' domains within the compass of mainstream relations. The temptation is to rise to the challenge of securing sustainable outcomes by harnessing the tools of developmentalism and environmentalism to indigenous goals. In framing a conclusion to this paper, a heading such as 'moving towards social, environmental and economic justice' is just as tantalising. However, this would subtly reinforce the almost invisible epistemology of developmentalism and environmentalism. It would orientate thinking towards a linear narrative - with a unidirectional, progressive, controlled movement towards a coherent strategic target presumed desirable. This is exactly the kind of arrogant assumption which this paper seeks to challenge and unsettle. Le Guin similarly attempts to unsettle such assumptions in her fine collection of essays on writing science fiction.[39] Under her title 'dancing at the edge of the world', she sets about unsettling the smug assumption that in managing the political, geographical, religious and artistic imagination, we can simply make the world as we wish it to be. In the idea of dancing, one can see the embeddeness of one set of relationships and processes (the dance) in others (the music, the culture, the community); in her localisation at 'the edge of the world' one can begin to see that every edge is simultaneously a centre; and in her whole image, one can begin to escape the tyranny of the linear narratives of developmentalism, to glimpse the patterns of time's circle as embedded in these relationships and processes, alongside time's arrow. Lorraine, interpreting Irigaray, also explores the transformative power of in situ encounters through metaphors of dancing and living mirrors:

A living mirror cannot reflect back to the subject without adding something of its own to that image. In the process, such mirroring inevitably becomes a dance in which both subject are transformed.[40]

 

In such images, there are opportunities to rethink the building blocks that are conventionally used to shape and reshape landscapes so that their social fabric may be woven in ways that acknowledge and include those elements that Eurocentric epistemologies denies exists.

 

Acknowledgments:

This paper revises a number of presentations since 1999. We would like to acknowledge our considerable debt to those who participated in discussion of various versions of these ideas and particularly to Deborah Bird Rose, Jane Jacobs, Leah Gibbs, Libby Ellis, Sue Jackson, Katherine Gibson, Bob Fagan, Jan Turner and Marcia Langton for our ongoing conversations about these ideas.

 

Endnotes:



[1] D. Rose, 'Indigenous ecologies and an ethic of connection', in N. Low, N ed., Global ethics and environment (London, Routledge, 1999), pp. 175-87.

[2] Australasian Wildlife Management Society, Australasian wildlife management society. http://www.awms.org/ (accessed 3 April 2001).

[3] L. Irigaray, Two be two (London, The Athlone Press, 2000), p. 73.

[4] W. Sachs, ed., The development dictionary: a guide to knowledge as power (London, Zed Books, 1992).

[5] D. Rose, 'Indigenous ecologies', p. 177.

[6] See also S. Suchet, ''Totally Wild'? Wildlife management, indigenous knowledges and colonising discourses', Australian Geographer, forthcoming.

[7] D. Rose, 'Reflections on ecologies for the twenty-first century', in N.M. Williams and G. Baines, eds., Traditional ecological knowledges: wisdom for sustainable development, (Canberra, Centre for Resource and Environmental Studies, Australian National University, 1993), pp. 115-6.

[8] B. Rose, Land management issues: attitudes and perceptions amongst Aboriginal people of central Australia, (Alice Springs, Central Land Council, Alice Springs, 1995), p. 95.

[9] Peter Alogut cited in M.M.R. Freeman, "They knew how much to take": respect and reciprocity in Arctic sustainable use strategies, paper presented to the 1999 International symposium on society and resource management, Brisbane, Australia, July 7 - 10, 1999.

[10] C. Notzke, Aboriginal People and Natural Resources in Canada (North York, Captus University Publications, 1994), p. 2.

[11] R. Hasler, 'Cultural perceptions and conflicting rights to wildlife in the Zambezi Valley', in M.M.R. Freeman and U.P. Kreuter, eds., Elephants and whales: resources for whom? (Sydney, Gordon and Breach Publishers, 1994), p. 85-97.

[12] B. Rose, 'Land management', p. 108-9.

[13] M. Stevenson, In search of Inuit ecological knowledge: a protocol for its collection, interpretation and use, a discussion paper, on behalf of the Hunters and Trappers Associations of the Qikiqtaaluk Region of Nunavut, draft paper prepared for the Department of Renewable Resources, GNWT (Canada, Qikiqtaaluk Wildlife Board and Parks, 1996).

[14] Traditional Aboriginal landowner cited in S. Suchet, Situated engagement: a critique of wildlife management and post-colonial discourse, (PhD Thesis, Sydney, Macquarie University, 1999), p. 238.

[15] W.E.H. Stanner, The 1968 Boyer lecture: after the Dreaming, (Sydney, The Australian Broadcasting Commission, 1969).

[16] J.K. Gibson-Graham, The end of capitalism (as we knew it): a feminist critique of political economy, (Cambridge, Blackwell, 1996).

[17] T. Cramér, 'Saami rights cleansing in Scandanavia', Indigenous Affairs 1994/4 (1994), p. 52-55.

[18] For examples of co-management arrangements see C. Notzke, 'A new perspective in aboriginal natural resource management: co-management', Geoforum 26(2) (1995), p. 187-209.

[19] A. Escobar, 'Planning', in W. Sachs, 'Development dictionary', p. 132.