Dear Dr Press ATSE Submission: 20 Year Australian Antarctic Strategic Plan

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1 Australian Academy of Technological Sciences and Engineering Level 1, 1 Bowen Crescent, Melbourne Vic 3004 GPO Box 4055, Melbourne, Vic 3001, Australia T F W Australian Academy of Technological Sciences and Engineering Limited Incorporated ACT ACN ABN President Dr Alan Finkel AM FTSE Dr Tony Press Head Inquirer 203 Channel Highway KINGSTON TAS 7050 Dear Dr Press ATSE Submission: 28 February 2014 The Australian Academy of Technological Sciences and Engineering (ATSE) 1 welcomes the opportunity to provide advice on key issues for the development of the Australian Government s 20 Year Australian Antarctic Strategic Plan. The Fellowship of ATSE includes engineers and scientists who have been deeply involved in Antarctic policy development, operations and science. ATSE fellows were involved in the preparation of the PMSEIC report in 2005 on Opportunities for Antarctic and Southern Ocean Science. That report underpinned the basis for Government funding for the Australian Antarctic aviation system, which now provides inter-continental and intra-continental services to support our national Antarctic program. The independent expert advice of the Academy is available to assist in further development of the. The contact at ATSE is Dr Lauren Palmer (Senior Research and Policy Officer) on (03) or via at Lauren.Palmer@atse.org.au. Yours faithfully Dr Alan Finkel AM FTSE President 1 ATSE advocates for a future in which technological sciences, engineering and innovation contribute significantly to Australia s social, economic and environmental wellbeing. The Academy is empowered in its mission by some 800 Fellows drawn from industry, academia, research institutes and government, who represent the brightest and the best in technological sciences and engineering in Australia. The Academy provides robust, independent and trusted evidence-based advice on technological issues of national importance. ATSE fosters national and international collaboration and encourages technology transfer for economic, social and environmental benefit.

2 Australian Academy of Technological Sciences and Engineering Level 1, 1 Bowen Crescent, Melbourne Vic 3004 GPO Box 4055, Melbourne, Vic 3001, Australia T F W Australian Academy of Technological Sciences and Engineering Limited Incorporated ACT ACN ABN Submission by the The Australian Academy of Technological Sciences and Engineering (ATSE) to Australian Government February 2014 Contact details: Australian Academy of Technological Sciences and Engineering policyresearch@atse.org.au 2

3 Executive Summary Australia has strong strategic national interests in the Antarctic, including a large territorial claim. The credibility of our claim to the Australian Antarctic Territory (AAT) is underpinned by our presence across the region through scientific activities. These activities also have direct national benefits through improving our understanding of the region and of the potential impacts resulting from increased human activity in the region. Australia has a strong geopolitical interest in ensuring that Antarctica is used for peaceful purposes and that the Antarctic Treaty is up-held. It is also imperative for Australia to be well-informed on the activities of other countries in this important region. Australia depends on the Antarctic for a range of environmental and economic benefits. The Antarctic provides a range of important ecosystem services and is an important area for fisheries management and biodiversity conservation. A key element of our science activity across the region is sustained monitoring and surveying of the Antarctic environment and its natural resources. It is crucial that the Australian Government provides resources and long-term funding for scientific activities in the Antarctic if Australia is to maintain a long-term presence in the region. It is equally important to ensure sufficient supply of trained and/or qualified researchers to meet research needs. ATSE supports the Australian Antarctic Science Strategic Plan and offers some suggestions to strengthen support for strategic scientific priority areas in the Antarctic. Increasing support for Antarctic research is crucial to Australia s ability to respond to emerging challenges in the region, such as biodiversity conservation and a growing interest in the exploration of the Antarctic s living and non-living resources. Improved national coordination could be achieved through: ensuring that funding mechanisms have sufficient scope for Australia s long-term strategic Antarctic research needs (including longterm monitoring activities); and the establishment of a continuing high-level coordination mechanism that includes all agencies with science and policy interests in Antarctica. National and international collaboration would enable Australia to leverage its investment in research in Antarctica. A flexible strategy for occupying the AAT, including collaboration with international partners, should assist in supporting logistically demanding science programs. Tasmania plays an important role as an Antarctic gateway. This is supported by the co-location of a range of research facilities in Tasmania which provide a sound foundation for Australia s national and international contributions to Antarctic research. Government support for these facilities should be at least maintained, or increased. The presence of such facilities could offer further benefits to Australia, including increased local tourism. In addition Australia could explore the effects of tourism in the Antarctic seeking to become a world-leader in best-practice approaches to minimising environmental harm from tourism activities in the region. The Australian Government must ensure that there is adequate resourcing of Australia s activities in the Antarctic to enable Australia to deliver viable research programs. Australia must strengthen its science capability and support in the region. Australia must maintain an effective air and sea transport system between Australia and Antarctica. The replacement of the Aurora Australis is an urgent priority. The following comments are focused on each of the terms of reference for the preparation of the Strategic Plan. ATSE would be pleased to provide further advice to the government on this important matter.

4 1. The strategic importance of Australia's Antarctic interests Australia s strategic national Antarctic interests Australia has strong strategic interests in the Antarctic, covering both the continent and the surrounding oceans. Australia s large exclusive economic zone (EEZ) extends from Heard/McDonald Island down to the Australian Antarctic Territory (AAT). Under the United Nations Convention on the Law of the Sea (UNCLOS) Australia is obliged to manage this zone in accordance with UNCLOS. It is crucial that Australia maintains an influential presence in the region to support Australia s strategic interests in the Antarctic. Other countries are increasing investment and presence in Antarctica whilst Australia is lagging behind. As a consequence Australia s international credibility is suffering because of our limited ability to match the efforts of these other nations. This is particularly true for onshore developments, where it is now difficult to mount activities beyond Australia s three continental stations. To be a credible player in the Antarctic, Australia needs balanced and credible programs both onshore and offshore. The effectiveness of the Antarctic Treaty, and the well-being of Antarctica, depends on a strong scientific program and presence. Australia has a long history of exploration and science in the Antarctic, and has played a major role in the implementation of the Antarctic Treaty, which aims to ensure that Antarctica is used for peaceful purposes and is not a source of international discord. Australia has a strong geopolitical interest to maintain its historical leadership in Antarctic science, research and policy, both as a distinctive national contribution to global cooperation and as a vehicle for enhancing Australia s national interests in international forums. Australia s weather, climate and marine environment are strongly influenced by the Antarctic. It has long been realised that the cold elevated Antarctic ice sheet exerts a major control on atmospheric processes over Australia but there is still much to be learned about how the high latitude circulation impacts on Australian meteorology on all time scales. The ecosystems of the Southern Ocean are important to Australia and other countries for fisheries, biodiversity and the provision of a range of important ecosystem services. It is also important to ensure Australia has a strong science basis to inform international practices and uphold its international stance on issues such as whaling research. Australia s security, more generally, has strong strategic links to Antarctica. For example, Geoscience Australia is constructing and operating Comprehensive Nuclear-Test-Ban Treaty (CTBT) stations at Mawson and Casey. These are strategically located stations of great importance globally with respect to the CTBT network. Whole-of-Government coordination of Australia s Antarctic interests and Government institutional arrangements for their delivery Recognising the need for broad national cooperation, Australia established the Australian National Antarctic Research Expedition (ANARE) process over sixty years ago to ensure whole-of- Government coordination of our national Antarctic interests. The ANARE model of coordination with the Australian Antarctic Division (AAD) serving as both the logistics provider and the overall coordination mechanism for participating government agencies and non-government organisations remains appropriate. ATSE notes that the remit of the Antarctic Science Advisory Committee (ASAC) is to assist the responsible Minister in the development of science strategy, evaluation of science quality, advice 4

5 on the infrastructure and capability required to support the science program, and alignment with national and international science programs. 2 However, ATSE suggests that there could be better high-level coordination across all agencies with Antarctic interests. Currently, coordination between agencies suffers because some mandates to work in the Antarctic may no longer exist or are poorly described and understood. There is a need for a continuing high-level coordination mechanism that includes all agencies contributing to Antarctic science and policy. Funding required for implementing the 20 Year Strategic Plan for Australia s Antarctic engagement Ensure funding mechanisms have sufficient scope for Australia s strategic Antarctic research needs Funding for key Antarctic mission agencies (such as Geoscience Australia and the Bureau of Meteorology) should be through their appropriations, but with inter-agency priority-setting and coordination through an identified Antarctic program budget. The AAD should continue to be funded through its own appropriations for logistics (shipping, air transport, station operations etc.) and some specific science activities. ATSE notes that the AAD and ASAC support research that upholds Australia s position in the Antarctic Treaty system and management of the AAT. For example, ASAC has prepared the Australian Antarctic Science Strategic Plan to to provide a framework for Australian Antarctic research for a decade ahead, whilst AAD manages an Australian Antarctic Science Grant Program that is focused on support for research in Antarctica related to the Strategic Plan in eligible organisations. However, core monitoring and surveying activities have not been highlighted in recent years due to an emphasis on research excellence defined by external reviewers and ASAC. Core monitoring and data collection will continue to be extremely important in gaining vital information about Antarctica. It is therefore critical that Australia collect fundamental data through ongoing monitoring and surveying of Antarctica. Rescue missions, such as that of the Akademik Shokalskiy by the Aurora Australis in early January 2014, point to the need for the AAD to have sufficient resources to allow for unanticipated rescue missions. Coordinate research activities, nationally and internationally Where research proposals involve the use of Antarctic infrastructure, coordination with AAD and other mission agencies is essential. In particular, it will be important for agencies to have sufficient resources to support Australian participation in international research and monitoring programs in Antarctica. Current levels of funding are inadequate to support such activities. There will be a continuing need for investment in the next generation of Antarctic scientists to sustain Antarctic research into the future. The Government should ensure that there is a certain level of funding for researchers either via granting bodies such as the ARC, or into agencies such as the AAD, or a sustained Antarctic Institute. International collaboration can leverage national research activities. For example, agreements with 2 5

6 other nations to provide support on an exchange basis could complement national collaboration efforts, encourage greater sharing and efficient use of resources to encourage collaboration and participation in Australian programs. ATSE supports increasing efforts of the AAD to coordinate its program with other nations that have bases in the AAT. Furthermore, ATSE suggests that seeking to increase and fund international collaboration for science and research in the Antarctic should be a key priority for the Australian Government. 2. Expanding the role of Tasmania as the gateway for Antarctic expeditions and scientific research Options to build on and further stimulate economic, social, research and policy benefits deriving from Tasmania s status as an Antarctic gateway Co-location of research facilities The current Government agencies and non-government organisations in Tasmania provide a sound foundation for Australia's national and international contributions to Antarctica. The activities of AAD are complemented by research at CSIRO (through CSIRO Marine and Atmospheric Research), University of Tasmania (through the Institute for Marine and Antarctic Studies and the International Antarctic Institute), the Convention for the Conservation of Antarctic Marine Living Resources (CCAMLR) secretariat and the Antarctic Climate and Ecosystem (ACE) CRC. The Tasmania and Antarctica Regional Office of the Bureau of Meteorology in Hobart provides specialised forecasting services for the Antarctic region. The Integrated Marine Observing System is a major aspect of the national marine infrastructure, and its location in Hobart ensures effective coordination across the marine observing systems for the Southern Ocean. The co-location of these organisations has national and international benefits, as well as direct benefits to Hobart including economic, social, scientific and political benefits, such as employment opportunities and strengthening and securing Hobart as an international Antarctic gateway. It will be essential to at least maintain this level of commitment into the future. The efforts of all these entities may be enhanced though an ongoing and reviewable formal mechanism for coordinating their work. Tourism opportunities & management of risk Tourism in the Antarctic provides opportunities and risks that warrant consideration by the Government. Tourist operators have freedom to operate in the region. There are risks to the environment, disruption to research activities, and safety of tourism expeditions. Effective monitoring programs are crucial to monitor and understand cumulative environmental impacts from tourism activities. There could be significant tourism opportunities for Australia, especially using Tasmania as a gateway for Antarctic tourism operations. Increasing tourism opportunities must be done subject to closely controlled conditions. If this can be done safely without harm to the environment, Australia could influence other countries and establish a standard for tourism operations in the Antarctic. ATSE recommends that the Australian Government should review the Antarctic Treaty provisions for tourism and ensure tourism in the region is properly managed to realise potential benefits. Building efficient, effective and internationally integrated partnerships including among Hobart-based Antarctic research institutions The CRC program provides an important mechanism for bringing disparate groups together and facilitating collaboration to generate practical outcomes in Australia. For example, the ACE CRC 6

7 provides a forum for the development of strong partnerships among the Hobart-based Antarctic research institutes, as well as many other national and international research groups. However, the CRC program is not designed to provide a sustained strategic focus on public-good science and research required to support Australia's position on Antarctica. There is a national need to provide sustained support for the collaborative research environment established by the ACE CRC beyond the usual lifetime of CRCs. It is crucial that the Australian Government provides sustained funding for science activities in Antarctica, if Australia is to maintain a long-term presence in Antarctica. Opportunities to increase the total research effort through international collaboration should be explored. 3. Ensuring robust and reliable access to the Australian Antarctic Territory Options to meet Australia's requirements to access the Australian Antarctic Territory and other parts of Antarctica With a continuing increase in tourism and science-related activities in Antarctica, it will be important for Australia to take a lead in strengthening coordination amongst Antarctic Treaty countries on transport logistics and exchange agreements. This process will lead to economic benefits and enhanced relationships between countries, as well as enhancing Australia's global influence. The replacement of the Aurora Australis, with a vessel with improved ice and deep ocean capability, is a critical priority for reliable access and research in the Australian Antarctic Territory. Given the long lead time for replacing research vessels, ensuring there are appropriate measures in place for a replacement vessel for the Aurora Australis should be an urgent priority issue for the Australian Government to consider now. Government will need to ensure that there is both capital and operating funds for the vessel, as well as contingencies for other activities such as rescue missions. ATSE recommends Australia maintains an effective air and sea transport system between Australia and Antarctica. The addition of regular inter-continental air services between Hobart and Casey has improved the movement of people and high-priority cargo between Australia and Antarctica. The overall Antarctic aviation system should be reviewed and resourced to improve access to all the Antarctic stations and to develop a deep-field and airborne research capability. Consideration also needs to be given to the flow-on effects of increased transport capacity on the demand for station accommodation. 4. Extending Australia s reach across the Australian Antarctic Territory Practical and strategic considerations underpinning Australia's physical presence in Antarctica, including Australia s sovereign interests With more countries taking an interest in Antarctica for a range of reasons, it is imperative for Australia to reaffirm its commitment to the region in order to ensure the continuation of our current activities and to continue the international benefits of our leadership role in Antarctic science and policy forums. This process will require AAD to maintain a network of staffed stations and an intercontinental and intra-continental transport system. 7

8 Options for Australia's future presence in Antarctica, including through: research facilities and intracontinental transport, including aviation and traverse capabilities The staffed stations and the transport systems of the Australian Antarctic program need to be funded through the AAD appropriation and managed by AAD on behalf of all participants in the program. The required research facilities need to be aligned with the breadth of Australia's current and future research priorities, as well as coordinated with the facilities of other countries. It is important for Australia to lead and coordinate international projects, as well as undertake national science and research activities, to maintain a strong presence in Antarctica into the future. International collaboration in research in Antarctica is essential to optimise national and global outcomes. Flexible research bases or collaboration with international partners may assist in supporting logistically demanding research programs. It is crucial that Australia undertakes sustained observations and research across the Australian Antarctic Territory to maintain its claim in the region. It is important to have a physical presence in the region and to also to remain well informed of the research and exploration activities of other countries across the region. Australia's interests and presence in the subantarctic Macquarie Island and Heard Island are important national assets, from a scientific and strategic viewpoint. It is essential for Australia to maintain and expand its activities on Macquarie Island, which is internationally recognised as an ideal location for vital observations to support global weather and climate research and services, and understand the earth s magnetic field and the Island s unique geology one of the factors for its listing as a World Heritage area. Heard Island also has unique geology and ecosystems, and re-establishing a year-round scientific presence there should be considered. Over the last decade, the oceanographic component of Australia's overall Antarctic and Southern Ocean program has been very effective in enhancing our capability to predict ocean structure and currents, through integrated monitoring and research activities. The uniqueness of the atmospheric environment of the Southern Ocean is now being recognised internationally, and it will be important for Australia to contribute appropriately to the international research activities that will be focused on this environment over the next decade. 5. Committing to undertaking nationally and globally significant science Future high priority research for Australia in Antarctica and the Southern Ocean and its delivery through the Australian Antarctic Science Strategic Plan ATSE supports the Australian Antarctic Science Strategic Plan. ATSE offers some suggestions to improve government support for strategic scientific priority areas in Antarctica. Ice, oceans and clouds The national research agenda for Antarctica and the Southern Ocean should remain well aligned with the international research agenda, which includes the dynamics of sea ice, ocean ice-sheet interaction and the stability of ice shelves and the longer term contributions to sea level, understanding sea ice (i.e. how its volume/thickness is changing and why), paleoclimate, as well as the links between global atmospheric and oceanographic circulations and the ecology of 8

9 Antarctica and the Southern Ocean. Over the next decade there will be increased international focus on the clouds and associated atmospheric boundary layer of the Southern Ocean and Antarctica (which play an important role in the global energy and water budgets), and Australia should contribute appropriately to these research activities. In assessing priorities for Antarctic science, we need to understand that the required science extends beyond strategic research. A powerful rationale for Australia's continuing role in the region is the support of operational weather and climate monitoring and prediction. These activities are essential to the integrity and quality of routine weather forecasting and warning services in Antarctica, across Australia and globally. They are also essential for monitoring and predicting long-term climate variability and change. Antarctic Continent The geology of the Antarctic continent is poorly understood. Today there is a major international effort gaining pace to explore the base of the Antarctic Ice Sheet, looking at topography and composition of the bedrock, not only to better understand the geology of the continent, but also to determine how it affects ice sheet behaviour and the flow of water through lakes and subglacial streams. Tools being used include using airborne geophysics and drilling. Much of this is taking place within the Australian Antarctic Territory but Australia is only playing a minor supporting role because of limited resources. Paleoclimate record from ice-cores and sediment cores will play an increasingly important role in understanding natural variability and processes of climate. However, Australia has only limited ability to curate and process ice and sediment cores, so adequate resourcing of postcollection science is an issue needing further consideration. Australian Antarctic Stations also host geophysical monitoring stations that feed international geomagnetic field models and ionospheric prediction services. Geodetic stations feed global GPS solutions. There are Comprehensive Nuclear Test Ban Treaty monitoring stations at Mawson and under construction at Davis. Operating these facilities is an international treaty obligation to which Australia is committed by international agreements. Astronomy Favourable conditions in the Antarctic region make it an excellent site for astronomical research. The Antarctic has more stable, colder and drier air than anywhere else in the world. The ASAC Science Strategy states that sites within the AAT may soon become the focus of major international investment in astronomical infrastructure and that there is therefore an opportunity for Australian astronomers to continue to play a leading role in the characterisation and understanding of these sites and continue to engage with the international community to ensure that the advantages of Antarctica as a platform for scientific observations can be fully realised. Fisheries The exploitation of Southern Ocean marine ecosystems, including through fisheries, raises a number of conservation concerns. ATSE supports the Australian Antarctic Science Strategic Plan theme goal to conduct the scientific research necessary for understanding the impact of global change on Southern Ocean ecosystems, the effective conservation of Antarctic and Southern Ocean wildlife and the sustainable, ecosystem-based management of Southern Ocean fisheries and the subsequent stream goals. It is critical that Australia undertakes such research activities to better understand and protect these important marine ecosystems. Continued funding to support international and interdisciplinary research and long-term monitoring will be important for the future health and conservation of the Southern Ocean. 9

10 Australia s role in driving and participating in international collaborations on science of global significance Australia should continue to provide leadership in planning and supporting the Southern Ocean and Antarctic components of international meteorological and oceanographic monitoring and research programs such as the World Weather Watch, the Global Climate Observing System (GCOS), the Southern Ocean Observing System (SOOS), the World Climate Research Programme (WCRP) and Future Earth (FE). Such roles ensure international benchmarking of national research, greatly increase the resources focused on research challenges, and strengthen Australia's influence in global forums. Support for much of the Antarctic Treaty system relies on sound understanding of the environment and ecosystems of Antarctica and the Southern Ocean. Our research priorities, especially of AAD and the Antarctic CRC, should be focused on the needs for our involvement in associated organisations of the Treaty such as the Scientific Committee on Oceanic Research (SCOR) and the Commission for the Conservation of Antarctic Marine Living Resources (CCAMLR). 6. Committing to exercising influence in the region through the Antarctic Treaty system Future priorities for Australia s engagement in Antarctic affairs, including the Antarctic Treaty system and related international forums The Antarctic Treaty system has so far proved to be effective in ensuring that Antarctica is used for peaceful purposes and that it is not a source of international discord. ATSE believes that Australia's leadership in the system has been important in the achievement of its aims. As the aims of the Treaty continue to be aligned with Australia's national interests, it is essential for Australia to continue to play a leadership role in the system. Leadership in the Treaty system is underpinned by Australia's active involvement in the Treaty processes, especially in the Antarctic Treaty Consultative Meeting (ATCM), CCAMLR and the associated organisations of SCOR and the Council of Managers of National Antarctic Programs (COMNAP). Maintaining a strong research basis is also important to inform Australia s involvement in the Convention on Biological Diversity (CBD), particularly with respect to the conservation of marine life and reaching Aichi targets set by the CBD for the creation of marine protected areas. Options for building Australia s international influence in Antarctic affairs, including through increased policy engagement in the Antarctic Treaty system and relationships with key partners Australia's international influence in Antarctic affairs is greatly dependent upon our involvement in the Antarctic Treaty system, and so continuing support for the Treaty processes is essential. This support is largely through the AAD in cooperation with other Departments, especially the Australian Government Department of Foreign Affairs and Trade on Antarctic policy matters. A particular challenge over the next decade will be to develop governance mechanisms that balance the protection of the Antarctic environment with increasing access to Antarctica. For example, there is likely to be growing interest in exploration of Antarctica for the exploitation of living (including fisheries, marine bio-prospecting) and non-living (including minerals) resources. 10

11 Research to enable thorough understanding of Antarctic ecosystems is imperative to understand the potential and actual impacts of such activities, as well as to remain well-informed on the activities of other countries. Australia's international influence in Antarctica is also strengthened by our involvement in other governmental and non-governmental forums with interests in the region. The breadth and depth of our involvement in Treaty and non-treaty systems has established Australia as the provider of a major gateway to the region; in particular, the strength of our science (research and monitoring) based on a robust station network assures our international credibility and influence needed to serve our national interests into the future. 11