FEDERAL COURT OF AUSTRALIA Breadon on behalf of the members of the Inteyere, Twenge, Ipmengkere, Murtikutjara, Aniltika and Nthareye Landholding Groups v Northern Territory of Australia [2018] FCA 890 File number: NTD 47 of 2016 Judge: REEVES J Date of judgment: 20 June 2018 Catchwords: NATIVE TITLE – application for determination of native title under s 87 of the Native Title Act 1993 (Cth) – whether the parties have satisfied the criteria set out in s 87 such that the jurisdiction of the Court is enlivened – whether it is appropriate for the Court to make an order in terms of the agreement reached by the parties Legislation: Native Title Act 1993 (Cth) Pastoral Land Act 1992 (NT) Cases cited: Doctor on behalf of the Bigambul People v State of Queensland [2016] FCA 1447 Lovett on behalf of the Gunditjmara People v State of Victoria [2007] FCA 474 Munn (for and on behalf of the Gunggari People) v Queensland (2001) 115 FCR 109; [2001] FCA 1229 Nangkiriny v State of Western Australia [2004] FCA 1156 Nelson v Northern Territory (2010) 190 FCR 344; [2010] FCA 1343 Prior on behalf of the Juru (Cape Upstart) People v State of Queensland (No 2) [2011] FCA 819 Trevor Close on behalf of the Githabul People v Minister for Lands [2007] FCA 1847 Date of hearing: 20 June 2018 Registry: Northern Territory Division: General Division National Practice Area: Native Title Category: Catchwords Number of paragraphs: 29 Solicitor for the Applicant: Ms S Polden of Central Land Council Solicitor for the First Respondent: Ms E Furlonger of Solicitor for the Northern Territory Solicitor for the Second Respondent: Mr B Torgan of Ward Keller Lawyers ORDERS NTD 47 of 2016 BETWEEN: BRUCE BREADON, BAYDON WILLIAMS, CHRISTOBEL SWAN, FELIX ARMSTRONG, GORDON LUCKY AND KEVIN UNGWANAKA ON BEHALF OF THE MEMBERS OF THE INTEYERE, TWENGE, IPMENGKERE, MURTIKUTJARA, ANILTIKA AND NTHAREYE LANDHOLDING GROUPS Applicant AND: NORTHERN TERRITORY OF AUSTRALIA First Respondent HENBURY HOLDINGS PTY LTD (ACN 169 887 585) Second Respondent JUDGE: REEVES J DATE OF ORDER: 20 JUNE 2018 THE COURT NOTES THAT: A. The Applicant in this proceeding NTD 47/2016 has made a native title determination application (the application) that relates to an area of land and waters which is the subject of a proposed determination of native title (the Determination). B. The Applicant, the Northern Territory of Australia and the Second Respondent (the parties) have reached agreement as to the terms of the Determination which is to be made in relation to the land and waters covered by the application (the Determination Area). The external boundaries of the Determination Area are described in Schedule A and depicted on the map at Schedule B of the Determination. C. Pursuant to ss 87(1)(a)(i) and 87(1)(b) of the Native Title Act 1993 (Cth) (the NTA) the parties hereby file with this Court their agreement in writing. D. Pursuant to ss 87 and 94A of the NTA the terms of the parties' agreement involve the making of consent orders for a determination that native title exists in relation to the Determination Area as provided by the Determination. E. The parties acknowledge that the effect of the making of the Determination is that the members of the native title claim group, in accordance with the traditional laws acknowledged and the traditional customs observed by them, should be recognised as the native title holders for the Determination Area as provided by the Determination. F. The parties have requested that the Court hear and determine this proceeding in accordance with their agreement. BEING SATISFIED that a determination of native title in the terms set out in the Determination in respect of this proceeding would be within the power of the Court and, it appearing to the Court appropriate to do so, pursuant to s 87 of the NTA and by the consent of the parties: THE COURT ORDERS THAT: 1. There be a determination of native title in terms of the Determination set out below. 2. The native title is not to be held on trust. 3. Twenga Aboriginal Corporation (ICN 8400) is: (a) to be the prescribed body corporate for the purposes of s 57(2) of the NTA; (b) to perform the functions outlined in s 57(3) of the NTA after becoming a registered native title body corporate. 4. The parties have liberty to apply to establish the precise location and boundaries of any public works and adjacent land and waters identified or otherwise referred to in Schedule C of the Determination. 5. There be no order as to costs. THE COURT DETERMINES THAT: The Determination Area 1. The Determination Area comprises NT Portions 551, 657, 1054, 3896 and 5169 being the land and waters more particularly described in Schedule A and depicted on the map comprising Schedule B. 2. Native title exists in the Determination Area. 3. Native title does not exist in those parts of the Determination Area described in Schedule C. The native title holders 4. The Determination Area comprises six estate areas associated with the Inteyere, Twenge, Ipmengkere, Murtikutjara, Aniltika and Nthareye landholding groups. 5. The persons who hold the common or group rights comprising the native title are the Aboriginal persons who are: (a) members of one or more of the landholding groups referred to in paragraph 4 by virtue of descent (including adoption) through father's father, father's mother, mother's father and mother's mother; (b) accepted as members of one or more of the landholding groups referred to in paragraph 4 by senior members of a landholding group, referred to in subparagraph (a), by virtue of the following non-descent connections to an estate: (i) conception in and/or birthplace affiliation (including of a parent or other close relative) with an estate; (ii) long-term residence in an estate; (iii) possession of secular and traditional spiritual knowledge, authority and responsibility for an estate or surrounding country, in particular, knowledge of sites and their mythology; (iv) authority and responsibility for shared Dreaming tracks and/or places of significance connected with an estate; (v) burial of an ancestor in an estate. Native title rights and interests 6. The native title rights and interests of the native title holders are the non-exclusive native title rights and interests possessed under and exercisable in accordance with the traditional laws acknowledged and traditional customs observed, including the right to conduct activities necessary to give effect to them, being: (a) the right to access and travel over any part of the land and waters; (b) the right to live on the land, and for that purpose, to camp, erect shelters and other structures; (c) the right to hunt, gather and fish on the land and waters; (d) the right to take and use the natural resources of the land and waters; (e) the right to access, take and use natural water on or in the land, except water captured by the holders of Perpetual Pastoral Lease No. 1094; (f) the right to light fires for domestic purposes, but not for the clearance of vegetation; (g) the right to share or exchange natural resources obtained on or from the land and waters, including traditional items made from the natural resources; (h) the right to access and to maintain and protect sites and places on or in the land and waters that are important under traditional laws and customs; (i) the right to conduct and participate in the following activities on the land and waters: (i) cultural activities; (ii) ceremonies; (iii) meetings; (iv) cultural practices relating to birth and death including burial rites; and (v) teaching the physical and spiritual attributes of sites and places on the land and waters that are important under traditional laws and customs; (j) the right to make decisions about the use and enjoyment of the land and waters by Aboriginal people who recognise themselves to be governed by the traditional laws and customs acknowledged by the native title holders provided that the right does not extend to making any decision that purports to control the access of such persons to the Determination Area; (k) the right to be accompanied on the land and waters by persons who, though not native title holders, are: (i) people required by traditional law and custom for the performance of ceremonies or cultural activities on the land and waters; (ii) people who have rights in relation to the land and waters according to the traditional laws and customs acknowledged by the native title holders; (iii) people required by the native title holders to assist in, observe, or record traditional activities on the areas. 7. The native title rights and interests referred to in paragraph 6 do not confer possession, occupation, use and enjoyment of the land and waters on the native title holders to the exclusion of all others. 8. The native title rights and interests are subject to and exercisable in accordance with: (a) the valid laws of the Northern Territory of Australia and the Commonwealth of Australia; (b) the traditional laws and customs of the native title holders for personal or communal needs which are of a domestic or subsistence nature and not for any commercial or business purpose. Other rights and interests 9. The nature and extent of the other interests in the Determination Area are: (a) NT Portion 657 – the interest of Henbury Holdings Pty Ltd (ACN 169 887 585) as trustee for the Henbury Unit Trust under Perpetual Pastoral Lease No. 1094; (b) NT Portion 551 – the interest of the Conservation Land Corporation; (c) NT Portion 1054 – the interest of the Northern Territory; (d) NT Portion 3896 – the interest of the Northern Territory; (e) NT Portion 5169 – valid rights of use for the passage of travelling stock (Hugh River Stock Route); (f) NT Portions 551, 657, 1054, 3896 and 5169 – the interest of the parties to Indigenous Land Use Agreement DI2007/007 (Central Petroleum ILUA) entered on the Register of Indigenous Land Use Agreements on 13 June 2008; (g) the interests of the holders of the following mining titles granted pursuant to the Mineral Titles Act 2010 (NT) (or its predecessor) and the Petroleum Act 1984 (NT): No. Expiry date Holder EL 27974 19/10/2018 Tellus Holdings Pty Ltd EL 31508 5/11/2023 BMEX Limited EL 31509 5/11/2023 BMEX Limited EP 82 29/01/2021 Helium Australia Pty Ltd/Santos QNT Pty Ltd EP 112 20/06/2021 Frontier Oil & Gas Pty Ltd/Santos QNT Pty Ltd (h) the rights and interests of Telstra Corporation Limited (ACN 051 775 556): (i) as the owner or operator of telecommunications facilities within the Determination Area; (ii) created pursuant to the Post and Telegraph Act 1901 (Cth) (repealed), the Telecommunications Act 1975 (Cth) (repealed), the Australian Telecommunications Corporation Acts 1989 (Cth) (repealed), the Telecommunications Act 1991 (Cth) (repealed) and under Schedule 3 to the Telecommunications Act 1997 (Cth), including rights: A. to inspect land; B. to install and operate telecommunication facilities; and C. to alter, remove, replace, maintain, repair and ensure the proper functioning of its telecommunication facilities; and (iii) for its employees, agents or contractors to access its telecommunication facilities in and in the vicinity of the Determination Area in the performance of their duties; and (iv) under any lease, licence, access agreement or easement relating to its telecommunications facilities within the Determination Area. (i) NT Portion 657 – the rights of Aboriginal persons (whether or not native title holders) pursuant to the reservation in favour of Aboriginal people contained in pastoral leases identified in ss 38(2) – (6) of the Pastoral Land Act 1992 (NT); (j) the rights of Aboriginal persons (whether or not native title holders) by virtue of the Northern Territory Aboriginal Sacred Sites Act 1989 (NT); (k) rights of access by an employee, servant, agent or instrumentality of the Northern Territory, Commonwealth or other statutory authority as required in the performance of his or her statutory duties; (l) the interests of persons to whom valid or validated rights and interests have been: (i) granted by the Crown pursuant to statute or otherwise in the exercise of its executive power; or (ii) conferred by statute. Relationship between rights and interests 10. To the extent that the continued existence, enjoyment or exercise of the native title rights and interests referred to in paragraph 6 in relation to NT Portions 657, 1054, 3896 and 5169 is inconsistent with the existence, enjoyment or exercise of the other rights and interests referred to in paragraph 9, the other rights and interests and the doing of any activity required or permitted to be done by or under the other interests, prevail over, but do not extinguish, the native title rights and interests. 11. In relation to NT Portion 551 the relationship between the native title rights and interests referred to in paragraph 6 and the interest of the Conservation Land Corporation as the holder of a fee simple estate in the land is that the non-extinguishment principle applies. The grant of the fee simple estate to the Corporation: (a) is wholly inconsistent with the continued existence, enjoyment or exercise of the native title rights and interests; (b) the native title continues to exist, but has no effect in relation to the grant; (c) if the grant or its effects are wholly removed or otherwise wholly cease to operate the native title rights and interests again have full effect; (d) if the grant or its effects are removed to an extent or otherwise cease to operate only to an extent the native title rights and interests again have effect to that extent. Other matters 12. There are no native title rights and interests in: (a) minerals (as defined in s 2 of the Minerals (Acquisition) Act 1953 (NT)); (b) petroleum (as defined in s 5 of the Petroleum Act 1984 (NT)); (c) prescribed substances (as defined in s 5 of the Atomic Energy Act 1953 (Cth) and s 3 of the Atomic Energy (Control of Materials) Act 1946 (Cth) (repealed)). 13. In this Determination the term: (a) "natural resources" means: (i) animals ferae naturae, birds, fish and plants, including timber, wax, resin and gum; and (ii) surface soils, clays, stone, rocks and ochre, but does not include minerals, petroleum and prescribed substances; (b) "natural waters" includes springs and rockholes. 14. Unless the contrary intention appears, a word or expression used in the NTA has the same meaning in this Determination as it has in the NTA. Schedule A 1. The Determination Area comprises the following areas of land and waters: (a) NT Portion 657 comprising an area of 5,168 square kilometres held under Perpetual Pastoral Lease No. 1094 by Henbury Holdings Pty Ltd (ACN 169 887 585) as trustee for the Henbury Unit Trust; (b) NT Portion 551 comprising an area of 4 square kilometres 4 hectares 6,000 square metres is held for an estate in fee simple by the Conservation Land Corporation; (c) NT Portion 1054 comprising an area of 1 square kilometre 29 hectares 4,994 square metres is Reserve No. 1247 (Ilamurta Springs Conservation Reserve); (d) NT Portion 3896 comprising an area of 2 hectares 2,500 square metres is Crown land; (e) NT Portion 5169 comprising an area of 52 square kilometres is Crown land being parts (3) of the Hugh River Stock Route. 2. The following areas within the external boundaries of the Determination Area are not included in the Determination Area: (a) NT Portion 1226 comprising an area of 5 square kilometres 95 hectares within NT Portion 657 held for an estate in fee simple by the Australian Rail Track Corporation; (b) NT Portion 3812 comprising an area of 20 square kilometres 24 hectares located within NT Portion 657 held for an estate in fee simple by the Rrurtenge Aboriginal Land Trust; (c) NT Portion 3813 comprising an area of 28 square kilometres 86 hectares located within NT Portion 657 held for an estate in fee simple by the Pantyinteme Aboriginal Land Trust; (d) NT Portion 3814 comprising an area of 23 square kilometres 63 hectares located within NT Portion 657 held for an estate in fee simple by the Akanta Aboriginal Land Trust; (e) NT Portion 4392 comprising an area of 2 square kilometres 76 hectares 3,000 square metres located within NT Portion 657 held for an estate in fee simple by Ilpurla Aboriginal Corporation; (f) The following roads constructed by or on behalf of the Northern Territory as public roads: (i) a road 200 metres wide (Stuart Highway) from the boundary with Orange Creek Station (NT Portion 652) to the boundary of Palmer Valley Station (NT Portion 1991); (ii) a road 100 metres wide (Ernest Giles Road) from the Stuart Highway to the boundary with the Urrampinyi Iltjiltjarri Aboriginal Land Trust (NT Portion 5484); (iii) a road 100 metres wide (Tempe Downs Road) from the Ernest Giles Road to the boundary with the Urrampinyi Iltjiltjarri Aboriginal Land Trust (NT Portion 5484); (iv) a road 100 metres wide (Tempe Downs Road) from the boundary of Henbury Station (NT Portion 657) to the boundary of the Urrampinyi Iltjiltjarri Aboriginal Land Trust (NT Portion 5484); (v) a road 100 metres wide (Ilamurta Springs Access Road) from the Ernest Giles Road to Ilamurta Springs Conservation Reserve (NT Portion 1054); (vi) a road 100 metres wide from the Ilamurta Springs Access Road (Boggy Hole Access Road) to the Finke Gorge National Park (NT Portion 6623); (vii) a road 100 metres wide from the Henbury Station Homestead to the Stuart Highway; (viii) a road 100 metres wide from the Ernest Giles Road to the Henbury Meteorite Conservation Park (NT Portion 551). Schedule B – Determination Area Schedule C – Areas where native title does not exist Native title rights and interests have been wholly extinguished in the following areas of land and waters. Public works Those parts of the Determination Area covered by public works as defined in s 253 of NTA that were constructed or established before 23 December 1996 or commenced to be constructed or established on or before that date (including land and waters within the meaning of s 251D of the NTA), including: (a) public roads, namely, rural public roads (50 metres either side of the centre line), rural arterial roads and national highways and associated road infrastructure; (b) community, pastoral access and other roads (including access roads and tracks to public works referred to in this clause) which are not otherwise public roads; (c) gravel and fill pits established to maintain the roads referred to in (a) and (b) above; (d) government bores and associated works; (e) river and rain gauges; (f) transmission water pipes (adjacent area 5 metres either side of the centreline); (g) distribution water pipes measuring 150mm diameter or less (adjacent area of 1.5 metres either side of the centreline) and greater than 150mm diameter (adjacent area 5 metres either side of the centreline); (h) sewer pipes measuring 150mm diameter or less (adjacent area 1.5 metres either side of the centreline) and greater than 150mm diameter (adjacent area 5 metres either side of the centreline); (i) bores, sewer pump stations and overhead power lines. Note: Entry of orders is dealt with in Rule 39.32 of the Federal Court Rules 2011. REASONS FOR JUDGMENT REEVES J: INTRODUCTION 1 All too often in recent years, when Judges of this Court, including myself, have been called on to make a determination of native title under the Native Title Act 1993 (Cth) (the NTA), it has been necessary to express grave concerns about the amount of time taken to bring the proceedings in question to finalisation and the tragic fact that, in the meantime, senior members of the claim groups have often died without witnessing the recognition of native title with respect to their traditional lands: see, for example, my decision in Doctor on behalf of the Bigambul People v State of Queensland [2016] FCA 1447 at [7] and the decision of Rares J in Prior on behalf of the Juru (Cape Upstart) People v State of Queensland (No 2) [2011] FCA 819 at [32]. Periods of 15 years or more are, regrettably, far from uncommon. It is therefore very pleasing to be involved in this native title determination where, as the short history set out below demonstrates, the time taken to bring the proceeding to finalisation is less than two years. In the context of native title proceedings in the Court, this is a remarkably short period of time and it is a great credit to all those involved, including the parties, their legal and other advisers and the Court staff. 2 On 6 September 2016, Mr Bruce Breadon and a number of other persons, acting as the authorised applicant (the Applicant), filed a native title determination application over various areas of land and waters in Central Australia. 3 On 20 April 2017, the Applicant provided the first respondent, the Northern Territory of Australia, with its short form anthropological report and sites, estates and dreaming tracks map prepared by Dr John Morton relating to the claim area identified in the application. The Northern Territory reviewed that material and, within a relatively short period, the parties reached agreement on all of the anthropological issues raised by the application. 4 On 23 November 2017, the Northern Territory provided the Applicant with a tenure analysis showing those parts of the claim area where it claimed native title had been extinguished. Again, within a relatively short period of time, the parties were able to reach an agreement with respect to those parts of the claim area in which native title existed, and those parts in which it had been supressed or no longer existed. Earlier this year the parties informed the Court that they had agreed on the terms of a set of proposed consent orders under s 87 of the NTA. On 12 June 2017, the parties provided executed consent orders to the Court, and the Applicant and the Northern Territory have filed a statement of agreed facts, joint submissions and the anthropological reports of Dr Morton. Based on those materials, the parties have now requested the Court to make this consent determination of native title. THE CLAIM AREA 5 The claim area identified in the application comprises some 5,197 square kilometres of land situated approximately 90 kilometres southwest of Alice Springs. The claim area is covered by a perpetual pastoral lease, Henbury Pastoral Lease (part NT Portion 657: PPL No. 1094), and four other portions of land. 6 The perpetual pastoral lease was granted under the Pastoral Land Act 1992 (NT) and had a commencement date of 1 June 1993. While that is approximately 30 years ago, that period is recent history in the context of the native title claimants' relationship with the claim area. However, as is the practice of the Court in dealing with native title claims over pastoral leases in the Northern Territory, this matter has been assigned the short title of "Henbury": the name of the pastoral lease. THE NATIVE TITLE CLAIM GROUP AND THE APPLICANT 7 As the reports of Dr Morton record, the claimants are Southern Arrernte or Pertame, the name of their dialect. The western section of the claim area is also associated with Matuntara Luritja speakers, as well as to a small extent with people who principally identify as Western Arrernte. There are six estates or landholding groups on the claim area which extend beyond the boundaries of the claim area. These are the Inteyere, Twenge, Ipmengkere, Murtikutjara, Aniltika and Nthareye estates. 8 The estate groups are part of a larger regional society, the laws and customs of which have their foundation in Altyerr/Tnengkarre (Arrernte) or Tjukurpa (Luritja) (Dreaming). The Dreaming refers to an original time of creation as well as the ongoing presence of the powers that brought the world into being. The powers typically remain in the landscape at sacred sites identified with mythic events and ritual performances, both of which may be called "Dreamings". The myths generally involve travel by totemic ancestors, the personages who originally embodied the creative powers and who are mostly associated with animals, plants or other phenomena. Each estate is identified with sites associated with a predominant Dreaming or Dreamings. 9 In the main, land ownership in the claim area is determined by filiation and descent. The relevant lines are through a person's parents and grandparents. Although the claimants' traditional law and custom recognises succession, there have been no instances of succession in relation to the claim area. 10 The Applicant is constituted by the following persons who are members of the named landholding groups: (a) Bruce Breadon (Ipmengkere, Murtikutjara); (b) Baydon Williams (Aniltika); (c) Christobel Swan (Twenge); (d) Felix Armstrong (Inteyere, Murtikutjara); (e) Gordon Lucky (Inteyere); and (f) Kevin Ungwanaka (Ipmengkere). THE OTHER PARTIES 11 Aside from the Applicant, the other parties to this proceeding are the Northern Territory of Australia and Henbury Holdings Pty Ltd. THE CONDITIONS IN SECTION 87 OF THE NTA 12 Section 87 of the NTA empowers the Court to make an order consistent with the terms of a written agreement between the parties to a native title proceeding without holding a hearing in that proceeding. Before the Court can exercise that power, the procedural conditions specified in s 87(1) must be satisfied. In Nelson v Northern Territory (2010) 190 FCR 344; [2010] FCA 1343 (Nelson), I set out five procedural criteria that the parties must meet in order to have the Court make a consent determination of native title under s 87: see at [3]–[7]. It is convenient to briefly outline each of those criteria and to consider whether they have been met in this matter. 13 The first criterion is that the notice period under s 66 of the NTA must have ended: s 87(1). The Henbury Pastoral Lease application was notified by the Native Title Registrar on 25 January 2017. The period specified in that notice expired on 24 April 2017. I am therefore satisfied that this first criterion has been met. 14 The second criterion is that the agreement that has been reached must relate to the whole of the proceeding, or to a part of the proceeding, or to a matter arising out of the proceeding: s 87(1)(a). The executed consent orders filed with the Court show that the agreement relates to the whole of this proceeding. This second criterion has therefore been met. 15 The third criterion is that the agreement that has been reached must be reduced to writing, signed by, or on behalf of, the parties and filed with the Court: s 87(1)(b). As I have already mentioned above, executed consent orders have been filed with the Court. This criterion has also been satisfied. 16 Fourthly, the Court must be satisfied that an order in, or consistent with, the terms of the executed consent orders would be within the power of the Court: s 87(1)(c). In Nelson, I observed (at [4]): … An order will be within the power of the Court if it is consistent with s 94A of the [NTA], the rights and interests included in the proposed determination are recognisable by the common law of Australia and there is no other determination in existence over the area the subject of the proposed determination … 17 Section 94A of the NTA requires the Court, in making a determination of native title, to set out the details of the matters mentioned in s 225 of the NTA. Section 225 defines a "determination of native title" as follows: A determination of native title is a determination whether or not native title exists in relation to a particular area (the determination area) of land and waters and, if it does exist, a determination of: (a) who the persons, or each group of persons, holding the common or group rights comprising the native title are; and (b) the nature and extent of the native title rights and interests in relation to the determination area; and (c) the nature and extent of any other interests in relation to the determination area; and (d) the relationship between the rights and interests in paragraphs (b) and (c) (taking into account the effect of this Act); and (e) to the extent that the land or waters in the determination area are not covered by a non-exclusive agricultural lease or a non-exclusive pastoral lease – whether the native title rights and interests confer possession, occupation, use and enjoyment of that land or waters on the native title holders to the exclusion of all others. 18 I have examined the consent orders executed by the parties and I am satisfied that each of the matters referred to in ss 225(a) – (e) above is appropriately articulated in those orders and the rights and interests so described are recognisable by the common law of Australia. 19 Based on the records of the National Native Title Register kept under Pt 8 of the NTA, I am satisfied that there is no determination of native title in existence over the claim area. 20 I am therefore satisfied that a determination of native title in the terms sought by the parties would be within the power of the Court as required by s 87(1)(c). 21 Finally, before the Court makes a native title determination consistent with the terms of the parties' agreement, it must be satisfied that it is appropriate to do so: s 87(1A) of the NTA. In Nelson, I noted (at [7]) that these words: … have been held to confer on the Court a discretion which, subject to the Court being satisfied about the pre-conditions mentioned above, is unfettered. However, like all discretions conferred on the Court, it must be exercised judicially and in exercising it, the Court must have regard to the objects of the [NTA], one of the most important being the resolution of disputes by negotiation and agreement, rather than litigation: Munn v Queensland (2001) 115 FCR 109 at [26] and [28] … 22 After canvassing the authorities relevant to this question in Nelson, I identified (at [14]) the following principles: (a) the central issue is whether there exists a free and informed agreement between the parties; (b) in determining whether such an agreement exists, the following factors will be significant: (i) the process followed by the State respondent party, particularly how it goes about assessing the underlying evidence as to the existence of native title; (ii) whether the parties have independent and competent legal representation: Munn (for and on behalf of the Gunggari People) v Queensland (2001) 115 FCR 109; [2001] FCA 1229 (Munn) at [29] and Lovett on behalf of the Gunditjmara People v State of Victoria [2007] FCA 474 (Lovett) at [39]–[40]; (iii) whether the terms of the proposed consent orders are unambiguous and clear: Munn at [32]; and (iv) whether the agreement has been preceded by a mediation process: Nangkiriny v State of Western Australia [2004] FCA 1156 at [6]; Trevor Close on behalf of the Githabul People v Minister for Lands [2007] FCA 1847 at [6] and Lovett at [41]–[42]. 23 In their joint submissions, the Applicant and the Northern Territory submitted that it was appropriate that the Court make a determination in the terms of the parties' agreement because: (a) the parties were legally represented throughout; (b) the Northern Territory, as the first respondent, had obtained searches of land tenure and mining and other relevant interests to determine the extent of "other interests" within the proposed determination area and provided copies of those searches to all parties; (c) the parties have agreed the nature and extent of interests in relation to the Determination Area and those interests are those described in paragraph 9(a) – 9(h) of the proposed consent orders (s 225(c)); (d) there are no other proceedings before the Court relating to native title determination applications that cover any part of the claim area which would otherwise require orders to be made under s 67(1) of the NTA (ss 87(1) and (2)); (e) the Northern Territory, as the first respondent, has played an active role in the negotiation of the consent determination. In doing so, the Northern Territory, acting on behalf of the community generally, having had regard to the requirements of the NTA and having conducted a thorough assessment process, is satisfied that the proposed determination is justified in all the circumstances. 24 Having regard to these joint submissions and my review of the materials filed with the Court, including, in particular, the short form anthropological reports of Dr Morton, I am satisfied that it is appropriate to make the proposed consent orders. 25 As to the principle set out in [22(b)(iii)] above, I have examined the consent orders executed by the parties and I consider that they are unambiguous and clear in their terms. THE PRESCRIBED BODY CORPORATE 26 Order 2 of the proposed consent orders is to the effect that the native title in question is not to be held on trust. Accordingly, there is no need for me to make a nomination under s 56 of the NTA. However, in these circumstances, s 57(2) of the NTA requires certain steps to be taken to determine which prescribed body corporate is to perform the functions prescribed by s 57(3). 27 On this aspect, the consent orders executed by the parties seek a determination that the Twenga Aboriginal Corporation is to be the prescribed body corporate for the purposes of s 57(2) and to perform the functions prescribed by s 57(3) of the NTA. That agreement is supported by an affidavit of Ms Susan Polden, a lawyer employed by the Central Land Council and the Applicant's representative in this matter, in which she deposes that, at a meeting of the native title claim group held on 28 April 2016, the Twenga Aboriginal Corporation (ICN 8400) was nominated by the claim group to be their prescribed body corporate and that the members of the Twenga Aboriginal Corporation consented to it being so nominated. 28 Accordingly, as required by s 57(2)(b), I determine that the Twenga Aboriginal Corporation is to be the prescribed body corporate to perform the functions prescribed by s 57(3) of the NTA. CONCLUSION 29 One of the central objects of the NTA is to resolve native title claims by negotiation and agreement. The negotiations and agreement that have led to this consent determination clearly serve to advance that central object. All the more so where, as I mentioned at the outset of these reasons, this consent determination has been achieved in a relatively short period of time. It is also worth adding that this consent determination of native title does not create native title in the claim area. Instead, it marks the recognition by the Australian legal system of the native title holding group's long held and pre-existing native title in this land. That is to say, that native title has existed in this land, according to the traditional laws and customs of the claim group, since long before it was given the name Henbury. I certify that the preceding twenty-nine (29) numbered paragraphs are a true copy of the Reasons for Judgment herein of the Honourable Justice Reeves. Associate: Dated: 20 June 2018