Canberra's traditional owners may never be known, according to an ACT government-commissioned report.
The internal document suggests there's no overwhelming evidence to make a definitive call.
But some say the report was part of a deal to stave off a legal challenge against the government.
Three separate groups have laid claim to Canberra as traditional custodians.
The city lies on the boundary of where they have historically converged.
The Ngunnawal, the Ngambri and the Ngarigu all have several significant sites within the area.