2.1
The Great Barrier Reef Marine Park Authority (the Authority) seeks approval from the Committee to proceed with the proposed Transformation of Reef HQ Aquarium in Townsville, Queensland. The project aims to transform the Reef HQ Aquarium (Reef HQ) into a ‘global destination of excellence in tropical coral reef education’.
2.2
The Authority states that the proposed works will ‘transform Reef HQ, the world's largest living coral reef aquarium, into Australia's national centre of excellence for tropical coral reef education, making it a premium international tourism destination’.
2.3
The estimated cost of the project is $40 million (excluding GST).
2.4
The project was referred to the Committee on 26 August 2021.
Conduct of the inquiry
2.5
Following referral, the inquiry was publicised on the Committee’s website and via media release.
2.6
The Committee received three submissions and one confidential submission. A list of submissions can be found at Appendix A.
2.7
On 11 October 2021, the Committee conducted a virtual site inspection, private 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
2.8
Reef HQ is the National Education Centre for the Great Barrier Reef and is nationally and internationally recognised for its environmental education programs. It is also home to ‘the world’s largest living coral reef aquarium’.
2.9
Through both outreach programs and in-person visits, Reef HQ has played a valuable role in educating thousands of people on the value of the Great Barrier Reef and methods for its ongoing preservation.
2.10
The Authority is pursuing these works as part of its commitment to its ‘Master Plan for Reef HQ’. This plan is divided into two stages of work -Renewal and Transformation - with a total proposed expenditure of
$80.1 million. Stage One works are already underway, with the current works comprising Stage Two, Transformation.
2.11
The Authority explained how the proposed works will ‘expand the award-winning formal education and EduTourism products and develop new initiatives associated with key national priorities such as waste reduction, emergency efficiency and Closing the Gap’.
2.12
The proposed works seek to continue Reef HQ’s work through transforming the current facility into a revitalised and fit-for-purpose ‘global destination of excellence in tropical coral reef education’. Currently Reef HQ operates out of its 1987 facility which initially had an expected life of 25 to 50 years.
2.13
The Authority has identified a need for works to ensure the facility’s long-term viability:
After 34 years in a harsh tropical climate physical deterioration had reached the point where serious risks were emerging and supporting infrastructure was in many ways not compliant with current Australian standards. The ageing and increasingly unreliable structure and systems continued to impact on the Australian government's capacity to safely and effectively provide education and informational services at Reef HQ Aquarium.
2.14
At the public hearing the Authority explained that:
… this once-in-a-generation investment in Reef HQ Aquarium will establish it as a global destination of excellence for tropical coral reef education. The programs that it will enable now are formal education programs, ranging from the early years of education right through to senior secondary and tertiary education; a greater focus on, and expansion of, edu-tourism programs…
Options considered
2.15
In developing the business case for the works the Authority considered two options:
Option 1- gradual implementation of the Master Plan over 20 years: this option would allow for continual improvements by delivering Reef HQ’s Master Plan over a 15 to 20 year period as funds become available. This option was discounted as it is vulnerable to visitor interruptions delaying works, a longer construction timeline, and the risk of reworking areas, such as electrical and air conditioning services.
Option 2 – fast-track implementation to combine with Stage One works: this option would deliver financial efficiencies and reduce workplace health and safety risks through combining works with Stage One works.
2.16
The Authority considered Option 2 to be the preferred option highlighting the opportunity to capitalise on investments in the recovery from COVID-19 and the benefits of this earlier investment to the Townsville region.
Scope of the works
2.17
The proposed scope of the Reef HQ transformation includes the following new infrastructure and facilities:
internal stairs from ground floor to level one;
additional hands-on-learning educational facilities;
roof replacement over workshop;
floor over ‘back of house’;
contemporary façade around part of the building’s exterior;
conference/function centre;
administration facilities;
bridge over coral reef exhibit; and
expanded renewable energy systems.
2.18
Works to upgrade existing facilities include:
theatre upgrade to improve visitor engagement;
additional audio visual equipment;
air conditioning unit reconfiguration;
electrical and control services including lighting;
additional security infrastructure;
additional fire protection measures;
hydraulic services modifications, replacement or repairs as needed; and
2.19
Further, the Authority highlighted that the scope of these works ‘will allow us to deliver immersive experiences and revitalise exhibits, including educational activities, hands-on experiences, onsite diving programs, scientific demonstrations and the use of interactive technology’.
2.20
The Authority drew attention to their commitment to supporting key stakeholders, the Traditional Owners of the Great Barrier Reef, through the development of the Indigenous Reef Advisory Committee. This Advisory Committee has, and will continue to, provide the Authority with advice on cultural heritage representation through Reef HQ’s programs. Further, as part of the Authority’s commitment to creating opportunities and career pathways for First Nations Peoples, the ‘proposed works will allow for the development of an Indigenous traineeship program’.
2.21
The project will also facilitate the delivery of new educational content and programs with a new ‘journey narrative throughout the facility’ which travels through:
Dreamtime and Formation of the Reef;
What Makes the Reef Great;
Managing the Marine Park; and
2.22
The Authority emphasised the importance of Reef HQ as an educational facility and the enhanced capacity that it will have to deliver key messages on conservation will be assisted through these works.
The programs that it will enable now are formal education programs, ranging from the early years of education right through to senior secondary and tertiary education; a greater focus on, and expansion of, edu-tourism programs … corporate social responsibility programs … career pathway and vocational education and training …
Consultation
2.23
Consultation on the proposed transformation of Reef HQ has included members, voucher and ticketing agents, the Townsville community and the Port of Townsville Ltd.
2.24
In order to engage the public on the transformation project the Authority and Reef HQ have continued to provide ‘regular updates on the works through the Authority’s and Reef HQ’s social media pages’.
2.25
Mr Robert Heron drew attention to the ‘optical characteristics’ of aquarium glass, and made the suggestion that material used should be suitable for photography using a smartphone. Mr Heron’s submission further highlighted the range of interactive smartphone technologies available for consideration in the Reef HQ upgrade.
2.26
In its submission the Community and Public Sector Union (CPSU) expressed its support for both Stage One, Renewal, and Stage Two, however raised concern about the adequacy of staffing levels at Reef HQ. The CPSU suggested that increased permanent staffing levels are necessary and the Average Staffing Levels (ASL) be doubled from 15 Australian Public Service (APS) staff to an ASL of 30 APS staff.
2.27
In response to discussion on staffing levels, the Authority advised at the public hearing that it was too early to determine the staffing profile that will be required at the aquarium as, ‘at this stage we are looking to determine what our offering will be, and, to be honest, what our design will be.’ The Authority advised that with the finalisation of these elements by March 2022, future staffing requirements could be determined.
Cost of the works
2.28
The project has an estimated cost of $40 million (excluding GST).
Revenue
2.29
Currently Reef HQ operates at a deficit. Under the proposed works Reef HQ would be likely to have the capacity to be more profitable and would be in a position to charge an entry fee ‘similar to other commercial facilities’. Reef HQ suggested that it expected to be ‘at minimum, breaking even, but, hopefully, profitable in the future’ as a result of the proposed works.
2.30
As a public museum, Reef HQ has deducible gift recipient status which it will use when the facility reopens. The Authority intends to ‘fully cover the costs of operating the facility through revenue streams’.
Public value
2.31
The Authority explained that the public value of the proposed project includes Reef HQ’s expanded educational engagement and outreach capabilities, a modernised major regional tourism asset, and the economic value of both building works and ongoing facility operation.
2.32
The Authority stated that the value of Reef HQ is multifaceted with some actions pursued with reference to its relevant Act, the Great Barrier Reef Marine Park Act, and align to its business ethos such as its support of employment pathways.
2.33
In contrast, other community services Reef HQ offers are more wide-reaching and, at times, difficult to quantify.
The Australian Government having a facility like this in Townsville in North Queensland does present a range of opportunities to the community that aren't necessarily revenue generating. One example is opportunities for career pathways for young people through the facility … The other important piece of the work is working closely with our state and federal based tourism organisations …
Committee comment
2.34
The Committee believes that the presence of such a facility is critically important to the wider Townsville community and the domestic and international tourism market and is pleased to note that Reef HQ was awarded additional funding following its initial proposal in 2020.
2.35
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.
2.36
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.
2.37
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: Great Barrier Reef Marine Park Authority - Transformation of Reef HQ Aquarium, Townsville, Queensland.
2.38
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.