3.1
Airservices Australia seeks approval from the Committee to proceed with the Brisbane Air Traffic Services Centre and Control Tower Complex Refurbishment.
3.2
The objective of the project is to refurbish the existing Air Traffic Services Centre (ATSC) and Control Tower Complex (CTC) within the Brisbane Air Traffic Services Centre compound. Airservices states that the work will deliver support facilities for the new Civil Military Air Traffic Management System (CMATS) to be used for the initial and ongoing training of operational users, and to provide technical support throughout the life of CMATS.
3.3
The project will also provide space to accommodate the relocation and integration of Defence air traffic control approach services from Darwin and Townsville Air Force bases into the Brisbane ATSC.
3.4
The project is an integral milestone in the OneSKY Program, which is a partnership between Airservices Australian and the Department of Defence to replace the current independent civil and defence air traffic management systems with the new CMATS system.
3.5
The project cost estimate for the proposed works is estimated at $35.7 million (exclusive of GST).
3.6
The project was referred to the Committee on 1 December 2020.
Conduct of the inquiry
3.7
Following referral the inquiry was publicised on the Committee’s website and via media release.
3.8
The Committee received one submission and one confidential submission. A list of submissions can be found at Appendix A.
3.9
On 4 March 2021, the Committee conducted a project briefing, public and in-camera hearing via teleconference. A transcript of the public hearing is available on the Committee’s website.
Need for the works
3.10
The existing Air Traffic Services Centre (ATSC) and Control Tower Complex (CTC) buildings in Brisbane were constructed in 1989 and 1996 respectively.
3.11
In order to support the installation of the new Civil Military Air Traffic Management System (CMATS), Airservices told the Committee that both buildings require refurbishment in order to support operationally dependent functions such as training, system support and administration.
3.12
At the public hearing Airservices elaborated on the importance of CMATS:
Airservices and Defence have partnered to procure and commission a harmonised national air traffic management system to deliver a national service for both civil and military operations. This program is referred to as OneSKY and the actual air traffic management system is called the Civil Military Air Traffic Management System, or CMATS.
[CMATS] is a national, next-generation air traffic management accredited system of systems to replace the current independent civil and defence systems. The building infrastructure component includes delivering purpose-built facilities to house and support CMATS and the associated operations rooms in Brisbane, Melbourne and Perth. Because the existing TAAATS system [The Australian Advance Air Traffic System] has to be maintained and operated until CMATS is operational, a new building with independent systems allows us to ensure a seamless transition while maintaining business resilience and uninterrupted service provision.
3.13
Airservices stated in their submission that the facilities will also provide space to accommodate the relocation and integration of the Defence air traffic control approach services from the Darwin and Townsville Air Force bases into the Brisbane ATSC. Airservices noted that this function will be accommodated in a separate secure zone within the existing CTC that will be used by Defence to support exercises and operations, which require secure voice communications and the Defence Secret Network (DSN).
3.14
Airservices further stated that:
The refurbished facilities, which are where the current TAAATS is housed, will be used for the initial and ongoing training of operational staff and to provide technical support for the life of CMATS. The facilities will also provide space to accommodate the relocation and integration of Defence air traffic control approach services from Darwin and Townsville, and a separate secure zone within the existing control tower complex will be constructed and used by Defence and Airservices staff to manage our national airspace. In addition, a training environment for air traffic controllers as they transition from the old air traffic management system to CMATS and over the life of CMATS will be provided at this facility.
3.15
In order to facilitate a seamless transfer to CMATS, Airservices told the Committee that it plans to maintain the current civil air traffic management system until CMATS is fully operational. In addition, a separate new ATSC building is currently under construction at Brisbane Airport to house and support CMATS and the associated operations rooms.
Options considered
3.16
Airservices assessed the following options when considering whether to demolish or refurbish the ATSC and CTC:
Option 1 – Demolition of existing ATSC and CTC and construction of new facilities - not considered viable due to operational constraints, excessive cost and potential to disrupt operations.
Option 2 – Refurbishment of existing ATSC and CTC facilities– preferred option. This option was considered the best value for money option when the condition of the existing buildings, the spatial planning and operational requirements were factored into the cost assessment.
3.17
With regards to the integration of the Darwin and Townsville Defence operations, Airservices considered the following options:
Option 1 – Integration of Defence spaces within the CTC building – preferred option due to its proximity to the newly built ATSC and the ability to meet the Defence design requirements without impacting current Airservices operations.
Option 2 – Integration of Defence spaces within the older existing ATSC– not considered viable as:
the required works would cause unavoidable disruptions to existing Defence operations
there is insufficient space to house Defence causing security issues
the training facilities required for CMATS would be too difficult to access
Option 3 – Integration of Defence spaces to the OneSKY Equipment Room building – not supported as the OneSKY Equipment Room would need to be interconnected via a level spanned enclosed bridge to link into the existing ATSC, introducing a potential operations risk.
Option 4 - Construction of a new stand-alone building in the compound – not viable due to the lack of available space.
3.18
Airservices stated in their submission that:
Managing these changes as a single project will drive an overall efficiency by coordinating all changes associated with the introduction of CMATS through the one sequence of events (minimising the need for multiple transitions).
3.19
When asked at the public hearing what reasons were behind the decision to move Defence air traffic control from Darwin and Townsville to Brisbane, Airservices stated:
The decision to move Darwin and Townsville based controllers into the Brisbane facility was taken some three years ago, prior to entry into contract for the OneSKY program. It was driven by a number of factors. Certainly, from the perspective of overall affordability of new technology and so forth for both us and the military… we back at that point in time during the negotiation were looking for ways to ensure that we could deliver this new system in a way that was affordable both to the military and to Airservices. One of the decisions that was taken at that time was to move the provision of the Darwin and Townsville approach services into Brisbane in order to harness some of that efficiency.
Scope of the works
3.20
The proposed scope of the Brisbane Control Tower Complex (CTC) includes the following:
providing a secure operational facility for the integration of Darwin and Townsville Defence Air Traffic Approach Services
creating a joint Defence and civil airspace management office (the National Airspace Management Office)
upgrading building services and accessibility to meet contemporary building code compliance.
design and fit out of office space for residual non-operational Airservices staff areas (who are currently accommodated in a leased building) within the existing ATSC and CTC.
3.21
The proposed scope of the Brisbane Air Traffic Services Centre (ATSC) includes the following:
refurbishing the Technical Operations Centre
refurbishing the Operational Simulator and Training Systems
upgrading building services and accessibility to meet contemporary building code compliance
design and fit out of office space for residual non-operational Airservices staff areas
3.22
Airservices noted that the works also include several upgrades and the replacement of physical security measures including CCTV system, alarms and access controls.
3.23
Under the proposal, the current Darwin and Townsville Defence approach services will be integrated into the Airservices Brisbane CTC, with routine Defence services operated from within the civil CMATS ATSC operations room. Secure Defence operations will be provided from a separate secure operational zone within the existing CTC areas.
3.24
Airservices told the Committee that all construction activities would be conducted within the existing, secured Airservices compounds within the Brisbane Airport precinct.
Consultation
3.25
Airservices stated in their submission that it had consulted extensively with the Brisbane Airport Corporation, Defence personnel and Airservices operational staff, as well as with engineering, project safety and work health and safety specialists.
3.26
Airservices noted that the main impact to Airservices staff during construction would be noise levels. To manage this, Airservices will ensure that works plans are subject to approval from management and safety specialists, and mitigation strategies would be put in place for any works that are deemed noisy or disruptive, such as scheduling work outside maximum use hours.
3.27
The proposed works are not expected to cause any disturbances to the local community or the travelling public as construction activities are to be conducted within the existing Airservices compound at Brisbane Airport.
3.28
At the public hearing, Airservices told the Committee that there were no expected staff losses as a result of the Townsville and Darwin approach services being relocated to Brisbane.
Cost of the works
3.29
The project cost estimate for the proposed works has an estimated cost of $35.7 million (exclusive of GST) and is inclusive of all construction and consultant costs, internal labour, equipment, travel and a risk and contingency provision.
Revenue
3.30
Airservices funds its operating expenses and investment in capital works from revenue received from the provision of Air Traffic Control (ATC) and Aviation Rescue Fire Fighting Services.
3.31
Airservices operates commercially on a fee-for-service basis and generally receives no appropriations from the Government. However, in 2020 following the impact of the COVID-19 pandemic on the aviation industry, Airservices recieved Commonwealth assistance in order to maintain operations.
3.32
During the peak of the COVID-19 pandemic in Australia, Airservices told the Committee that it experienced a revenue drop of ‘more than 80 per cent.’
3.33
Airservices told the Committee that:
Regardless of traffic levels, we're obliged to provide a 24/7, 365-days-a-year service—that's both air traffic management and aviation rescue and firefighting—across all of Australian airspace as freight traffic and general aviation services continue to operate during the pandemic.
3.34
Airservices stated that ‘the project is a key enabler for the OneSKY Program’, which has already had positive operational and financial impacts on the aviation industry and the community.
Committee comment
3.35
The Committee did not identify any issues of concern with the proposal and is satisfied that the project has merit in terms of need, scope and cost.
3.36
Having regard to its role and responsibilities contained in the Public Works Committee Act 1969, the Committee is of the view that this project signifies value for money for the Commonwealth and constitutes a project which is fit for purpose, having regard to the established need.
3.37
The Committee recommends that the House of Representatives resolve, pursuant to section 18(7) of the Public Works Committee Act 1969, that it is expedient to carry out the following proposed works: Airservices Australia, Brisbane Air Traffic Services Centre and Control Tower Complex Refurbishment.
3.38
Proponent entities must notify the Committee of any changes to the project scope, time, cost, function or design. The Committee also requires that a post-implementation report be provided within three months of project completion. A report template can be found on the Committee’s website.