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© Dr Andrew J Cannon
MODERNISING LAND USE
REGULATION: BEYOND AN
ADVERSARIAL MINDSET
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OUTLINE
• Historic winner takes all mindset to land
access
• Out dated regulatory frameworks for rights of
access to land and obligations to manage it
• Court dispute determination based on rights
enforcement is ill adapted to managing
competing interests
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THE
ADVERSARY
MINDSET
• In politics – question time
• In the media – conflict = accuracy
• In the courts – adversary dueling
counsel
• In multiple land uses – disputes
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LAND TITLES ARE ABOUT
POWER
• Henry the Conqueror granted an Estate in
Fee Simple to the Barons and their heirs
• The gift of ownership was the foundation of
centralised power
• The King established courts that
recognised this ownership
• Fee Simple meant ownership of everything,
even the serfs, but not the royal minerals
gold and silver- Case of Mines 1568 (1568) 75 ER 472
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TERRA AUSTRALIS
50,000+ years
TERRA NULLIUS
226 years
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Whereas it has been represented to me that divers
of His Majesty’s subjects have taken possession
of vacant lands of the Crown under the pretence
of a treaty, bargain or contract for the purchase
thereof with the Aboriginal natives … I the
Governor … do hereby proclaim that every such
treaty, bargain or contract is void and of no effect.
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SQUATTING AND
SELECTION
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TORRENS TITLE
REGISTRATION
• Torrens Title registration- The Real
Property Act 1886
• Absolute and indefeasible title: the
foundation of economic development
• Until 1880s mineral rights were
granted with the freehold
• Then mineral rights withheld and
granted under a separate system
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SEPARATE MINING TITLES
• Separate title system developed for
exploration and mining rights
• All pre 1889 mineral rights were resumed
by the Crown under the Mining Act 1971– A person dispossessed could claim a private mine
within three years.
– Private mines are not registered under the RPA
• Separate title system developed for oil
and gas
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SEABED JOINT REGIME
• Fraser government in 1977 came to joint regime-
legislation under 51(xxxviii)- Power of Imperial
Parliament
• Coastal Waters (State Powers) Act 1980
– States have jurisdiction over 3 mile limit
– Petroleum (Submerged Lands) Act 1967 (Cth)
passed as both State and CW legislation-
control and royalties for contiguous zones
shared to edge of continental shelf
– Other minerals Minerals (Submerged Lands)
Act 1981 (Cth)
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ENVIRONMENT REGULATION
Adelaide Dolphin Sanctuary Act 2005 (SA); Arkaroola
Protection Act 2012 (SA); Development Act 1993 (SA);
Environment Protection Act 1993 (SA); Marine Parks
Act 1997 (SA); National Parks and Wildlife Act 1972
(SA); Native Vegetation Act 1991 (SA); Natural
Resources Management Act 2004 (SA); Pastoral Land
Management and Conservation Act 1989(SA); Radiation
Protection and Control Act 1982(SA); River Murray Act
2003 (SA); Wilderness Protection Act 1992 (SA);
Heritage Places Act 1993 (SA)
And then the Commonwealth Environment Protection and
Biodiversity Conservation Act 1999 (Cth)
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OTHER RESOURCE TITLES
• Water rights
– Murray Darling Basin Plan
– State plans managing water allocation and
use
– Tradeable so another registration system
• Environmental rights and obligations
– State systems- eg SA Natural resource
Management plans affecting all uses
– Commonwealth overlay for major projects
– They apply to mining operations
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NATIVE TITLE
• Mabo, Wik, Yorta Yorta
• Native title tribunal
• SA has 3 regimes:
– Pastoral, oil and petroleum: Commonwealth
native title regime
– Mining: Part 9B Mining Act 1971 (SA) and Pt 7
Opal Mining Act (SA) 1991 recognised by the
Commonwealth
– Indigenous land use agreements (ILUAs)
• Aboriginal Heritage Act 1988 (SA) – s 23 offence to
disturb a site
• Aboriginal and Torres Strait Islander Heritage
Protection Act 1984 (Cth)
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WINDMILLS
• Approvals managed under fast track
planning laws
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AUSTRALIAN LAND LAW
UNTIL 1991Land was owned by:
• An Estate in Fee Simple (freehold title)
– Subsidiary interests of leaseholds, trusts,
mortgages etc at discretion of the owner
• Crown leasehold- pastoral leases
– Subsidiary interests of leaseholds, trusts,
mortgages etc subject to Crown consent
• Torrens title system provided certainty
• Certainty underpins economic activity
• Mining and oil and gas rights granted under
separate title systems
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AUSTRALIAN LAND LAW 2014• Freehold and leasehold registered
• Mining titles under separate system
• Separate titles for oil, gas and geothermal
• Separate regime for coastal waters
• Pre-existing native title identified under CW native title
regime, state regime, ILUA …
• Aboriginal heritage protection: Aboriginal and Torres
Strait Islander Heritage Protection Act 1984 (Cth) + State
regimes
• Water- Murray Darling basin plan and State regulation
• Environment – State and CW regulation
• Windmills and planning regulation
= uncertainty
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We need a better registration system to provide
certainty around these coincident interests
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THE COURT SYSTEM
• Enforcing order- criminal law; and rights – debt,
contract, damages for injury etc not balancing
competing interests
• Adversary process that drives people apart
• Non expert, non participating decision maker
• Static: i.e. decision at one time, not dynamic
• Parties lose control
• Public
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MEDIATION IS BETTER
• Interest not rights based
• Private
• Ongoing relationships
• Trust
• Continuity and transparency
• Reframe language
• But do need a WATNA
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ENFORCEMENT
• Enforcement has been moved from lower courts
(Wardens Courts and specialist tribunals) to
government departments
• Parties are increasingly seeking recourse to
review of decisions in the Supreme Court
• In SA decisions such as Ocsalt v Minister [2012]
SASC 166, Mintech v Russell-Taylor [2012]
SASCFC 67: The Supreme Court has endorsed
huge delays and gross breaches of conditions
• Rigorous enforcement of the obligations in
tenements is at risk
• Administrative review cases in higher courts can
be expensive, slow and unpredictable
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SPECIALIST TRIBUNAL
• No costs
• Non adversarial
• Expert and can inform itself
• Minimal pleadings and pretrial
processes
• Use of mediation techniques
• Early trial dates
• Lawyering for solutions not victory
• Or specialist arbitration processes
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THE EIGHTH WATERHOLE
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MINDARIE SANDS
PROJECT
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SUMMARY
• Titles reflect power and control
• The concept of freehold title having unbridled
rights is long gone
• Coincident land, native title and mining title
rights, windmills, and water rights and
protections need to be reconciled
• All resource users need certainty to finance
their operations and to look after the land for
future generations
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CONCLUSIONS
• Update registration systems to
provide certainty
• Move beyond an adversary mindset
• Relationship management not third
party dispute determination
• Specialist tribunals or arbitration
where all else fails