A little over a year after the loss in the referendum to create a Voice to parliament, fresh debate has emerged about the government’s efforts to embed First Nations perspectives, experiences and interests into Australia’s foreign policy.
While the formal position of an Ambassador for First Nations People is a recent initiative, efforts to incorporate the interests of First Nations into Australia’s overseas engagement are not new. They build on years of work driven primarily by First Nations staff members within the Department of Foreign Affairs and Trade and across successive governments of both political persuasions. This includes the development of the first Indigenous Peoples Strategy (2015-19), and its successor, the Indigenous Diplomacy Agenda (2021). DFAT’s five successive Reconciliation Action Plans can also be considered part of the organisation’s overall effort.
A First Nations approach can make a powerful contribution to Australia’s foreign policy, but there is a need for the Australian government to make more effort to communicate the aims behind this initiative. A stronger community understanding of the benefits will help secure greater bipartisan support.
The UN Food and Agriculture Organisation estimates a population of Indigenous Peoples of more than 476 million around the world, with the majority (more than 75 per cent) living in Asia and the Pacific. In addition to human rights considerations for Indigenous Peoples' participation and representation, embedding Indigenous Peoples' values and approaches into foreign policy carries strategic benefits.
First Nations businesses involved in trading typically contribute more to the national economy than non-trading First Nations businesses.
Principles of mutual respect, reciprocity, and stewardship of country resonate on a deep level across most of the world’s Indigenous Peoples. In the increasingly contested geopolitical landscape that is the Pacific region, this type of First Nations relational approach to diplomacy supports Australia’s engagement. The shared affinity Pacific Islanders hold for Australia’s First Nations indicates that elevating First Nations People and approaches as part of Australia’s relationship with Pacific Island countries provides a unique advantage – embedding First Nations perspectives in Australia’s engagement with the region demonstrates respect for Indigenous Peoples' rights and knowledge systems, and deepens the authenticity of our interactions. Foreign Minister Penny Wong described the approach as “one of the ways we are rebuilding our relationship with the Pacific family”.
There also exist groupings built on Indigenous Peoples’ ties, which could serve to support other relations. By way of example, New Zealand initiated the Indigenous Peoples Economic and Trade Cooperation Arrangement (IPETCA) involving Australia, Canada and Taiwan (under the name “Chinese Taipei”) as founding participants, which works to “strengthen the economic empowerment of Indigenous Peoples”.
Australia’s international trade can likewise benefit from greater incorporation of First Nations interests in foreign policy, while also offering the chance for significant socio-economic transformation of First Nations Peoples at home. For example, a report on international First Nations businesses found that in 2022-23, First Nations exporters generated more than $670 million in revenue. Furthermore, First Nations businesses involved in trading typically contribute more to the national economy than non-trading First Nations businesses.
Fundamentally, a strong First Nations business sector has benefits for the Australian economy – in 2022, the First Nations business sector contributed more than $16 billion to the Australian economy and employed more than 116,000 people. First Nations businesses are also more likely to employ a First Nations Australian than non-First Nations businesses, so the potential for improved First Nations financial security and autonomy by directly supporting their expansion into the international market would be significant.
The move to establish a dedicated office – which is in fact in the process of developing a high-level strategy on a First Nations approach to foreign policy – was a welcome initiative. First Nations participation and leading on international engagement should be considered for its substantive contribution, not relegated to ceremony. It would make sense for the strategy itself to focus on trade, human rights, and the Pacific region. This is consistent with work already undertaken by DFAT including in particular on First Nations Trade.
Wherever the strategy lands, the Australian government has its work cut out in securing support across the political divide and broader Australian community. Without substantial effort made on this front, we run the risk of the progress made being derailed.
