Federation Council Adopts New Indigenous Flag and Ceremony Protocols, Drawing Mixed Responses
In November, the Federation Council, located in Corowa, New South Wales, voted to implement new protocols concerning Aboriginal and Torres Strait Islander flags and Welcome to Country ceremonies. This decision has elicited varied reactions, particularly from Indigenous community members.
Council Decisions
The council's resolution, part of a draft document titled "Aboriginal and Torres Strait Islander protocols," passed with five votes to four and included:
- Removing the Aboriginal and Torres Strait Islander flags from inside council chambers.
- Exclusively flying the Australian flag on all flagpoles within the shire, with the exception of Naidoc and Reconciliation weeks, during which the Aboriginal and Torres Strait Islander flags would be flown on available flagpoles.
- Requiring council approval via an adopted resolution for Welcome to Country ceremonies at council events, instead relying on an acknowledgment of country that does not require a traditional owner.
Council Rationale
Corowa Mayor Cheryl Cook stated that the changes were motivated by a desire for "standardised civic protocol."
The Australian flag serves as "the primary symbol of unity for all residents, regardless of background," aiming to represent the shire as a "single, cohesive community under one sovereign emblem."
Regarding Welcome to Country ceremonies, Mayor Cook cited the need for "transparency and fiscal responsibility" in the allocation of ratepayer funds, balancing ceremonial costs with broader infrastructure and service obligations.
Indigenous Community Concerns
Bangerang elder Kevin Atkinson expressed a fundamental concern regarding mutual respect.
"If the council expects respect for their history, they must reciprocate."
Joanne Atkinson, a Bangerang and Wiradjuri woman, suggested the decision was a "ripple effect" of the failed referendum to create a constitutionally enshrined Indigenous voice to parliament, where the Farrer electorate (including Corowa) recorded a 75% 'no' vote.
"Recognizing other communities should not diminish the recognition or respect for Indigenous peoples."
Ethan Williams, a Wiradjuri man and chairperson for the Southern West Yiradyuri Clans Land, Water and Sky Country Aboriginal Corporation, wrote to Mayor Cook expressing "deep concern and opposition." He affirmed the First Nations peoples' "inherent and ongoing rights and obligation to care for country and to ensure our culture, languages and stories remain strong for future generations," including speaking up when decisions affect how they are seen and included.
Internal and Public Opposition
Councillor David Harrison, who voted against the proposal, raised concerns about the town's reputation, noting a previous neo-Nazi march through the town center.
"We need to draw a line here and say that this is not what our community is about."
Local residents surveyed indicated a greater concern with aging infrastructure than with flag protocols. One local, Danielle, emphasized the importance of representation.
"Everybody has a right to be represented… the Aboriginal [flag] in particular deserves a place up there with the Australian flag."
Historical Context
Corowa is historically significant as the "birthplace of federation." The Bangerang country, straddling the Murray River, includes parts of north-east Victoria and the southern Riverina. The region is also the birthplace of significant Aboriginal political figures, with the Cummeragunja Aboriginal mission nearby. Lake Moodemere, a historically significant site for Bangerang people, was shut down almost 100 years ago, leading to the relocation of Indigenous populations.
Next Steps
The draft Aboriginal and Torres Strait Islander protocols document underwent a public exhibition period, which concluded on December 24, 2025. The Federation Council is scheduled to consider public submissions and vote on the protocols again in March 2026.