Township Leasing: Empowering Aboriginal Communities Through Land and Legacy

This article shares the story of how Township Leasing began and Mr Walter Kerinaiua Senior’s vision to empower his people with choices. Through this vision, Mr Kerinaiua started a legacy for his people and all Traditional Owners across the Northern Territory.

At the heart of this legacy is the Township Lease signed by the Mantiyupwi family, and their town of Wurrumiyanga; the lease that continues to lead the way in showing the power of the Township Leasing model.

Township Leasing is a land tenure model that plays a vital role in Aboriginal communities across the Northern Territory.

Rooted in a long journey of recognition and reform, the Township Leasing model enables Traditional Owners to make decisions for the communities, create economic opportunities, and ensure the sustainable use of Aboriginal land for future generations.

Currently, there are 16 communities that have a Township Lease agreement in place, all at different stages of their Township Leasing journey. Some communities are 20 years into their leasing arrangement whereas some communities are still in the pre-planning consultation phase.

With the diversity of each community comes a diversity of needs and priorities and so each community moves at their own pace, being responsive and steady to coordinate within the leasing agreement. This diversity is reflected in the choices available to Traditional Owners under the Township Leasing Model. When considering their options, Traditional Owners can opt to create a community-controlled entity to hold the lease, or to work in partnership with the Executive Director of Township Leasing.

Before exploring these options, it is important to understand how the Township Leasing Model came to fruition. To do that we must begin with the history that made it possible.

The Foundation: Aboriginal Land Rights (Northern Territory) Act 1976

When the Aboriginal Land Rights (Northern Territory) Act 1976 was passed, it marked a historic moment in Australia’s legal and moral landscape. For the first time since white settlement 150 years prior (which occurred in

the NT at Fort Dundas on the Tiwi Islands in 1824), Aboriginal people in the Northern Territory could claim rights to their traditional lands under Australian law.

This landmark Commonwealth legislation recognises the Aboriginal system of land ownership by Traditional Owners and provides a mechanism for them to own, control, and use the resources of their land. Its impact has been profound and lasting.

While the Land Rights Act eventually returned tens of thousands of square kilometres of land to Aboriginal control and this control was legally recognised, there was still a long way to go for Traditional Owners to realise the benefit of land ownership in the same way it was experienced by other Australians..

A New Chapter

In 2006 and 2007, amendments to the Land Rights Act introduced the Township Leasing Model and created a new statutory role: the Executive Director of Township Leasing (Executive Director or EDTL). This signalled a new approach to land management — one built on long-term planning, local decision-making, and structured investment.

These changes introduced choice for Traditional Owners in relation to land administration and township development. Under these original amendments, an Aboriginal Land Trust could grant a long-term lease (typically 80–99 years) over a township to the Executive Director, who then administers subleases to residents, businesses, and service providers. All decisions would be made in close consultation with Traditional Owners.

This legal and administrative framework opened the door to community-led planning, land development, home ownership, and local economic activity in ways not previously possible.

For many Traditional Owners, it was the first time they had a formal, recognised role in deciding how their land would be used — not just for today, but for future generations.

While the story of Township Leasing comprises many people, communities and partners working in collaboration, the vision of the model was brought to life by Mantiyupwi leader, Walter Kerinaiua.

Walter Kerinaiua: The Grandfather of Township Leasing

The story of Township Leasing cannot be told without honouring the late Mr Walter Kerinaiua, known across the Tiwi Islands as the Grandfather of Township Leasing.

A respected Mantiyupwi Traditional Owner from the township of Wurrumiyanga (formerly Nguiu) on Bathurst Island, Mr Kerinaiua had a clear and powerful vision for his community. He believed in a future where Tiwi people were the decision-makers of their own township — not just culturally, but economically and administratively. He saw Township Leasing as a tool for empowerment and a path forward for local development, guided by Tiwi values.

Our great Mantiyupwi Leader, Walter Kerinaiua, used to tell the story of Tradition. In the old days, for thousands of years, if Tiwi people from another land group visited family on your ‘country’ for funerals or hunting and fishing then you had a responsibility to ensure those people were safe. That they were protected while they were on our land. They also had a responsibility to ensure that those visitors respected the cultural lore, the people, and the land, while they were visiting. - excerpt from the Mantiyupwi Local Decision Making Agreement

On 30th August 2007, that vision became reality when the Mantiyupwi people signed the first Township Lease in Australia. The Wurrumiyanga Township Lease on Bathurst Island was a groundbreaking moment — not just legally, but symbolically — representing the start of a new generation of Aboriginal leadership, secure land tenure and land administration..

The consolation process was lengthy with over 70 consultation meetings amongst the Mantiyupwi group discussing the terms of the 99-year lease with the Commonwealth Government of Australia.

Mr Kerinaiua had a vision for his community - a vision that allowed anyone to be able to own their own home. With overcrowded housing and stagnant housing development, a longstanding concern for the Tiwi people, Mr Kerinaiua led the way of Traditional Owner leadership and self-determination.

Since 2007, Wurrumiyanga has led the way in establishing the economic and social benefits achievable under the Township Leasing Model. Locally owned businesses that support the whole community have been prioritised and township residents now have a clear pathway towards home ownership.

In 2014 the Mantiyupwi Motel and Piliyamanyirra Supermarket were established and are still going strong today. In 2020, the Mantiyupwi board led the development and installation of the pontoons that increased the safety of ferry passengers crossing between Bathurst and Melville Islands.

As infrastructure and local development has grown since the signing of the lease in Wurrumiyanga, the Mantiyupwi Traditional Owners have not only led their own community but have demonstrated to other Traditional Owner communities how Township Leasing can be implemented in their own communities.

Today, the Mantiyupwi Township Lease continues to set the example of what can be achieved through the Township Leasing Model.

It is a tried, tested, and proven arrangement that Mr Kerinaiua foresaw many years beforehand.

“I want to empower my people by providing choices, choices that we in the bush have never had before.” Mr Walter Kerinaiua

Creating a Model That Works for Every Community.

The Township Leasing Model provides choices for Traditional Owners. In 2015, a further amendment to the ALRA introduced the ability for community-controlled organisations to hold the Township Lease, in place of the Executive Director. These are known as community entities. By providing choice in relation to how the Township Lease functions, Traditional Owners can consider which structure works best for their situation.

Where Traditional Owners choose to enter into a lease in partnership with the Executive Director, the lease includes provisions for a transition to community control if Traditional Owners choose. This places a positive obligation on the Executive Director and OTL to build the capability of our Traditional Owner partners.

Where the Executive Director of Township Leasing holds the head lease on behalf of the Commonwealth OTL provides support to administer subleases and partner with the Traditional Owners to make decisions on how the land will be used.

The Township Lease is a voluntary agreement between Traditional Owners and the Australian Government with a formal structure that enables all development within the Township to be considered and decided on by community consultation.

Each community that signs a Township Lease will have a different vision for their people and their town. Some may focus more on jobs, others more on services. For some communities, business development is a priority whereas home ownership may be top of the list in other areas. Schools and clinics may need to be updated in some townships, whereas a new community centre can service the needs more effectively elsewhere.

Township Leasing creates a structured, long-term land administration platform, enabling real economic participation for Aboriginal communities. It allows for communities to decide on their priorities and requires them to lead the decision-making process.

This Model has paved the way for economic growth and sustainability through Aboriginal leaders finally being able to make decisions for their own land.

‘Tiwi people are for the first time in a position to own their own home, realising the 'great Australian dream' that the rest of Australia takes for granted’ Mr Walter Kerinaiua Senior, Mantiyupwi Traditional Owner

Over the years, the model’s impact can be witnessed across the townships that have the Model in place. Over the years, the leases have supported:

Construction and maintenance of housing
Investment in community infrastructure
Delivery of public services like clinics and early learning centres
Creation of local jobs and businesses
Empowerment of Traditional Owners to lead land-use planning

In 2022, the Township Leasing Model reached a new milestone when the long-term lease on Groote Eylandt and Bickerton Island transitioned from the Executive Director holding the lease, to a community-controlled entity — a demonstration of how leasing can evolve into full self-management.

A Legacy of Choice and Self-Determination

‘I will continue my father’s work.’ Wesley Kerinaiua Jnr, Mantiyupwi Trustee TLC (Walter Kerinaiua Snr’s son)

At its heart, Township Leasing is not just about land — it is about self-determination and choice.

It is about recognising Traditional Ownership and supporting communities to shape their future through choice and culturally informed decision-making. The model upholds cultural integrity while facilitating housing, employment, and economic development.

Mr Walter Kerinaiua’s vision continues to guide the work of the Office of Township Leasing. As more communities express interest in the model, the emphasis remains on empowered partnerships.

The Office of Township Leasing works in partnership with communities. We provide options and choices for Traditional Owners, so they have all the tools to make informed choices on how they manage their land.

OTL’s role is to deeply listen to Traditional Owners and their communities and help them succeed on their own terms and measures.

Since the formation of the Township Leasing Model, we have learned that strong, thriving communities are built when Traditional Owners are supported to lead.

This has been a process of learning that we must credit to Mr Walter Kerinaiua Senior. His resilience, determination, and foresight to see a new way of land administration not only led the way for his own people but for Traditional Owners across the Northern Territory.

Walter Kerinaiua’s legacy is shown in the Township Leasing model and through his collaboration and partnership between Traditional Owners and Government in Northern Territory.

The Office of Township Leasing’s approach take’s its lead from Mr Kerinaiua’s. This means that cultural integrity is at the heart of consultation and community engagement. The process of Township Leasing for each community is in equal partnership, a sharing of knowledge so that communities can thrive in ways that are right and specific to their situation, beliefs, and people.

This is the legacy of Walter Kerinaiua, the grandfather of Township Leasing, and we are grateful for his vision that has led us this far.

The Story Continues

The journey of Township Leasing has not been without faults or mistakes. Like any model, it needs to evolve and be reshaped to ensure that it meets the changing needs of the diverse and unique communities it serves.

It is an ongoing partnership that is brought to life by the many individuals who seek to provide opportunities for their communities.

We learn each day and the community's capability grows.

There is no denying that Township Leasing is one of the most significant innovations in Aboriginal land management in modern Australia.

It is a practical and powerful framework that enables Aboriginal people to use their land not only as a source of cultural identity, but as a foundation for social and economic progress.

From the first lease signed at Wurrumiyanga in 2007, to the increasing number of communities exploring their own futures through leasing today, the story of Township Leasing is still being written — one built on respect, partnership, and cultural integrity.