Antarctic inquiry calls for Australia to buy second vessel, blasts 'bewildering' budget overspend
The Australian Antarctic Division has “lost its way”, a Senate inquiry has heard as it hands down its final report — and makes 16 recommendations to put it back on track. (ABC News: Luke Bowden)
The federal government should consider acquiring a second Antarctic resupply vessel to ensure the significant scientific capabilities of the nation’s trouble-plagued icebreaker are not wasted, a Senate inquiry has recommended.
The inquiry was launched in August last year after leaked internal correspondence revealed the Australian Antarctic Division (AAD) needed to find $25 million in savings.
The budget shortfall raised concerns within the scientific community that research projects and science jobs would be adversely impacted at a time of unprecedented change in the polar region.
The inquiry’s report, released yesterday, has made 16 recommendations designed to ensure science remains the AAD’s top priority.
“Australia has a 42 per cent claim to Antarctic territory — we’re meant to be leaders in Antarctic science,” the inquiry’s chair, Greens senator Peter Whish-Wilson, said in a statement.
“Yet this Senate inquiry shone a light on how our government agency that’s designed to facilitate critical science on the icy continent lost its way.”
Two of the recommendations relate specifically to the $528 million RSV Nuyina, which the report described as a “microcosm of [the] issues” affecting the AAD.
The state-of-the-art vessel has the dual role of resupplying Australia’s Antarctic stations as well as providing a platform for sophisticated scientific research at sea.
But since coming into service in 2021, the Nuyina’s eight completed voyages have not included a dedicated marine science mission, despite a promise of up to 60 research days per year.
The lack of a science-focused voyage was the result of mechanical problems that kept the ship out of action for almost a year.
But the Nuyina has also faced several other significant challenges, including:
- Stability control issues that prohibit the ship from travelling under Hobart’s Tasman Bridge, forcing it to refuel 660 kilometres away at an additional cost of $875,000 per year
- Malfunctioning cranes that meant only half the ship’s cargo could be offloaded during a recent voyage to Mawson station, triggering plans for an airdrop by Defence
- Industrial action against the ship’s private operator Serco, which prompted the AAD to consider hiring a second vessel to retrieve expeditioners from Macquarie Island
The inquiry found that although the Nuyina has allowed for significant scientific work to be completed during resupply voyages, the “one-ship model” is not in Australia’s best interest.
“It was made clear to the committee that relying on the Nuyina for the majority of Australia’s Antarctic engagement is not a sustainable model and it is to the detriment of both science and logistics that both must depend on the one ship,” the report stated.
The committee recommended “as a matter of priority” the federal environment department develop a business case for the acquisition of a second vessel to support Australia’s presence in Antarctica.
“Such a vessel should be deployed primarily for logistics, to allow the RSV Nuyina to be deployed with a greater focus and frequency on science projects.”
Additionally, it recommended the government boost funding to enable the Nuyina to spend between 250 and 300 days per year at sea, rather than the current 200 days.
The report stated the extra days would provide “more flexibility and certainty for dedicated science voyages”, and “would be a ready solution — rather than relying on a second ship which may or may not eventuate in the future.”
Inquiry criticises ‘bewildering’ budget overspend
The inquiry’s final report also made a scathing assessment of the handling of two key budget issues affecting the AAD and the federal environment department.
One of the budget issues related to a $41.4 million overspend caused by extra shipping costs while the Nuyina was out of action.
“This was initially forecast in the region of $20 million, and it was not until July 2023 that the extent of the overspend was identified and flagged with the minister’s office,” the report stated.
“It’s bewildering to imagine how an overspend of over $40 million could not be identified and addressed by relevant officials until after the fact, nor raised with the relevant minister’s office.”
The other issue involved a reduction in funding of almost $30 million between 2022-23 and 2023-24, largely due to the expiration of a temporary increase in funds for additional shipping costs.
“Poor communication [about the reduction] led to confusion and discontent amongst AAD staff, and created funding uncertainty for many scientists who were well progressed with established research projects, or were in the draft stages of new projects.”
The report said budgets within the AAD’s branches were “poorly managed … resulting in some science projects in draft stage not getting approval”.
“These issues suggest significant governance and reputational risks for the division, and by extension, the standing of Australia in its Antarctic Territory,” it said.
“The impacts of funding changes on science in particular cannot be understated, given the need for long-term funding certainty to ensure research projects can be completed.”
Despite the criticisms, the report noted improvements in governance since the inquiry commenced, including “a significant change for the better in the leadership at the AAD”.
However, it still recommended a range of other initiatives, including:
- Publishing annual accountability metrics, such as the proportion of science funding within the AAD’s operational budget
- Immediately readvertising 20 AAD jobs that were originally announced in 2022-23 but not filled
- Launching an independent review of the the AAD’s operations and logistics branch
- Finalising a 10-year strategic plan for Antarctic science goals by the end of the year, and fully funding it by next year’s budget
- Providing ongoing funding for university-led Antarctic science programs
Researchers await response to recommendations
Liberal senator Jonathon Duniam, who helped initiate the inquiry, said it had identified “multiple failings” that needed to be addressed by the Labor government.
“They simply cannot let these problems fester any further, or allow Australia’s international reputation on Antarctic matters to continue to dwindle,” Senator Duniam said.
While he agreed with most of the report’s recommendations, he said he did not support “open-ended new funding” or further formal reviews.
The ABC has sought comment from Environment Minister Tanya Plibersek, who has previously accused the former Liberal government of “irresponsibly managing” Australia’s Antarctic program.
In a statement, the AAD said it welcomed the release of the committee’s report.
“The report highlights some of the excellent progress the division has made in the 2023-24 Antarctic season, along with positive steps forward in leadership and governance.
“The government will consider the committee’s recommendations and respond in due course.”
Professor Nathan Bindoff, the program leader at the Australian Antarctic Program Partnership, said the importance of ongoing research in the region could not be underestimated.
“The Antarctic ice sheet and the interaction of the ocean is a key part of the future projections of climate change,” he said.
The veteran oceanographer said the research community would welcome an additional ship, if it gets approved.
“That would actually free up the Nuyina and allow us to access to tremendous new capabilities that we never had before,” he said.
In the meantime, he said he was “crossing his fingers” that the Nuyina’s first-ever dedicated marine science voyage to the Denman Glacier would proceed as planned early next year.
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