2.1
The Department of Defence (Defence) seeks approval from the Committee to proceed with the proposed project, Robertson Barracks Base Improvements Project, at Robertson Barracks, Darwin, Northern Territory.
2.2
Defence advised that the purpose of the project is to upgrade and expand facilities to address capacity issues and end-of-life facilities; ensuring that Robertson Barracks can continue to enable ‘force posture and projection for the Australian Defence Force and its allies in the north’.
2.3
Defence outlined that the project would provide for anticipated future expansions of the base, as well as any unknown requirements to allow for future-proofing. Air Commodore Tilley explained to the Committee that the project ‘will cover that period of a decade, without knowing what we don’t know’.
2.4
The estimated cost of the project is $389.1 million (excluding GST).
2.5
The project was referred to the Committee on 27 September 2022.
Conduct of the inquiry
2.6
Following referral, the inquiry was publicised on the Committee’s website and via media release.
2.7
The Committee received three submissions and one confidential submission. A list of submissions can be found at Appendix A.
2.8
On 20 September 2022 the Committee conducted a site inspection and private briefing at Robertson Barracks, Northern Territory which was followed by a public and in-camera hearing at Parliament House, Canberra on 3 November 2022. A transcript of the public hearing is available on the Committee’s website.
Need for the works
2.9
Defence noted that the White Paper on Developing Northern Australia ‘outlined the Australian Government’s commitment to a strengthened Defence’s presence in northern Australia’. The subsequent 2016 Defence White Paper, the 2020 Defence Strategic Update and the United States Force Posture Initiatives ‘confirmed the importance of enabling force posture and projection of the Australian Defence Force in northern Australia’.
2.10
Robertson Barracks, located 15km east of Darwin, supports approximately 5000 personnel, comprising military and civilian staff. The Barracks is home to the Army’s 1st Brigade and supports aviation operations.
2.11
During the six-month dry season, the base supports a rotation of approximately two thousand US Marines in relation to the United States Force Posture Initiatives.
2.12
There is a need for the Base to receive upgrades and an expansion, as current facilities are becoming limited and unsustainable, additionally the bases living-in accommodation is at capacity. This problem is compounded by lack of living-in accommodation in the Darwin region.
2.13
Defence also advised that it seeks to address the base’s messes as they are currently split across four locations which impacts their operation.
2.14
In 2011 the Committee considered major electrical services upgrades for the base which were designed to serve the base for 15 years. The scope of electrical service remediation which forms part of this project will be consistent with the upgrades conducted as part of the 2011 project.
Options considered
2.15
Defence stated that in preparation for the commencement of the works ‘comprehensive master planning, site investigations, stakeholder consultation, a whole-of-life cost analysis and design development to establish the capital facilities and infrastructure works’ was undertaken.
2.16
The process identified the essential requirements of the project including:
additional living-in accommodation, as validated through the analysis of living-in accommodation supply and demand at the base and in the Darwin region
new combined messing facilities, providing additional capacity, realising operational cost efficiencies, and relieving pressure on existing facilities that are coming to the end of their useful life
engineering services upgrades to base-wide water infrastructure and high voltage electrical work.
2.17
Based on these requirements Defence considered four options:
Option 1 (do nothing) was discounted as the base would not be maintained at current Australian Standards, meet Defence requirements or the guidelines required for Australia to meet its commitments under the Force Posture Agreement.
Option 2 (reduced living-in accommodation) was discounted as it would not provide the required living-in accommodation to meet the requirements of the base.
Option 3 (minimum capability requirement) was considered to offer a value for money solution that would provide living-in accommodation, messing facilities, and engineering service upgrades to meet the needs of Defence.
Option 4 (expanded engineering services scope) was assessed as not representing value for money and was therefore discounted. In addition to option 3, this option would have provided a site-wide dedicated potable water reticulation main and an outdoor gymnasium. These additions were considered unnecessary, and the separation of fire water and potable water infrastructure was considered a high financial and scheduling risk.
2.18
Lieutenant Colonel Timothy Napper, further explained that:
Option 4 focused heavily on the completion of, essentially, those in-ground services. The analysis showed that there was actually not significant value for money in doing that, and there was considerable risk that we would not be able to resolve until the end of the construction phase. What that means is that we will carry quite a high amount of funding right to the end, not knowing if we could actually complete the works on schedule, and we wouldn't actually know whether or not we would be exposed to a significant rework.
2.19
Defence expressed that ‘option 3 is the preferred option as it represents the best value for money for the Commonwealth’. It also explained that the option would significantly reduce the risk to base sustainment in comparison to options 1 and 2, and that it would meet essential user requirements.
Scope of the works
2.20
Defence outlined that the scope of works for option 3 would include eight scope elements, which it categorised into three packages:
1
living in accommodation and association works which will include covered walkways, and the replacement of the Hughes playing field
2
increased messing, including a new combined Sergeants and other Ranks Mess and capacity upgrades to the existing Officers Mess
3
water and electrical service upgrades.
2.21
A digital depiction of what the living-in accommodation and mess including the Sergeants’ Lounge will look like is depicted in attachment one and two of submission 1.
2.22
Defence outlined the general scope elements of the project including:
Structures: the proposed facilities will use reinforced concrete framed structures with reinforced concrete upper-level floor slabs and a steel roof appropriate to the environment. External facades will use a combination of precast panels, including lightweight framing or glazing with lightweight framing.
Mechanical services: the proposed mechanical services have been designed according to the function and specific requirements of each building. They will meet specific user needs, including relevant ventilation, thermal comfort, and air quality requirements.
Hydraulic services: the project will upgrade the base’s fire water and potable water systems, with the replacement of critical infrastructure items and upgrades to areas of the existing water mains. Sewerage and storm water services will be extended to each new facility and potable water will be connected to the existing supply via sub-metering to each new building.
Electrical services: lighting power and lightning protection will be provided. Sub-metering will be included to each re-used and new building. The meters will be monitored through a new building management system which will support the site’s active energy management program.
Fire protection: general upgrades to the fire systems within existing facilities will be implemented where required.
Security measures: security measures will be implemented to ensure that the new facilities conform to base’s security requirements.
Acoustics: acoustic separation has been included in construction elements.
Materials and furnishings: external walls will use a mixture of overclad concrete panels and metal cladding with curtain wall glazing. A metal louvre sun screening system will be installed to improve the environmental performance of the buildings. Further, pre-finished steel roofing and rainwater fittings will be installed where required.
Landscaping works: will complement and enhance the site, with a focus on functional, low maintenance, water sensitive approach, with use of Indigenous plants.
2.23
At the public hearing Defence discussed that the new facilities have been designed for disability access on ground level, including a room with a shower for disability access.
2.24
Defence advised that if the project experiences trade savings during tendering, or the risk provision is retired during project delivery, additional works may be delivered with the savings, including:
additional engineering services.
2.25
Design activities for the proposed project are expected to be completed by early 2023 and the construction is estimated to commence in mid-2023. The estimated completion date is mid-2026.
2.26
A submission received from a member of the public raised concerns regarding the works, particularly regarding the design and habitability of the new living-in accommodation. Specifically, the author was concerned that the new buildings would receive ‘little effective natural ventilation’, and that air-conditioning would be required for most of the year. In addition, the author was also concerned that the proposed buildings did not have adequate shading.
2.27
Defence addressed these concerns at the public hearing stating that ‘the buildings have been designed with a configuration that enhances airflow around them and within the envelope’. Defence further explained that the shape of the buildings will bring prevailing winds within and around walkways to create a natural cooling effect will be protected from the sun, as they will be north-south facing, meaning the thinner side of the building will be subject to the sun, providing additional protection. Further, the buildings will have a ‘high-performance façade’ which will provide insulation. Shade will be provided with specially designed louvres, which will ‘stop solar heat gain’, while ensuring that rooms still receive natural light. It was noted that the building designs also intended that air-conditioning and ceiling fans be a key element of the cooling of the buildings.
2.28
During consultation with users and locals it was raised that there currently is a tendency for occupants to leave doors open, however, it is the preference of Defence that personnel leave doors closed to let air-conditioning cycle and minimise energy usage. This determination is in line with how the buildings have been designed against section J.
Community and stakeholder consultation
2.29
Defence recognises the importance of providing residents and other interested stakeholders with the opportunity to provide input or raise concerns regarding proposed project works. Accordingly, a community consultation and communication strategy was developed for this project.
2.30
Various stakeholder and community consultation activities were delivered in accordance with the project’s consultation and communications strategy. These included:
advertisement via newspaper, the NT news and letterbox drops
establishment of an email address to receive submissions and questions regarding the project
a community consultation session in Darwin held on 11 October
key stakeholders, including Federal, State and Local Members and local industry business associations were invited to receive a briefing regarding the project.
2.31
Defence provided a summary of topics and key issues that were raised during the consultation in Annex G of Submission 1.3. Defence advised the Committee ‘that there were no concerns raised regarding the proposed works at the project briefings or the community consultation session’.
Cost of the works
2.32
Option 3 of the proposed works has an estimated cost of $389.1 million (excluding GST). This includes ‘management and design fees, construction costs, information and communications technology, furniture, fittings, equipment, contingencies and a provision for escalation’.
2.33
Defence noted that the proposed works will have ongoing operating and sustainment costs. This is due to maintenance, cleaning and utilities expenses which will be required to ensure the operation and maintenance of the proposed new facilities and infrastructure.
2.34
Defence provided further details on project costings in its confidential submission and during an in-camera hearing.
Revenue
2.35
There will be no revenue generated by this project.
Public value
2.36
Defence considers that the public value of the project will include:
Economic impacts: project expenditure will support the Australian economy, in particular construction and professional services sectors in the Northern Territory.
Employment opportunities: A range of consultants, contractors and construction works will be employed, and it is expected that the project will generate opportunities for up-skilling and job training. Further, it is estimated that 1,050 personnel could be provided with employment opportunities across the living-in accommodation and mess sites.
Local industry and Indigenous business involvement opportunities: It is anticipated that local business will have opportunities to supply construction materials and labour, with opportunities promoted for small and medium local enterprises through construction trade packages. There will also be opportunities for Indigenous business involvement in accordance with the Indigenous Procurement policy.
2.37
In relation to working with local industry, Defence explained that:
We've allowed, again, for three smaller packages so that smaller groups of individuals can be involved with the delivery. We've tailored the actual packages so that they would be able to meet the project's program and also, at the same time, ensure there is adequate buy-in from local construction firms to ensure that the overall spread of employment throughout the Darwin region.
Committee comment
2.38
The Committee was satisfied with the proposed project and considers that it has merit in terms of need, scope and cost.
2.39
The Committee notes the concerns regarding ventilation and airflow in the proposed living-in accommodation, and encourages Defence to ensure that all relevant personnel are satisfied with the design of the proposed works.
2.40
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.
2.41
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: Department of Defence - Robertson Barracks Base Improvements.
2.42
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.