- Facilities to Support Advanced Growler Phase 6
Department of Defence
2.1The Department of Defence (Defence) seeks approval from the Committee to proceed with the proposed facilities to support Advanced Growler Phase 6.
2.2The project will provide new and upgraded facilities and infrastructure at RAAF Base Amberley, Queensland and Delamere Air Weapons Range, Northern Territory, with the purpose of supporting the capability of the electronic attack aircraft EA-18G Advanced Growler.
2.3Upgrades to the aircraft are required throughout their operational life to ensure key strategic Australian Defence Force capability, and to ensure they remain interoperable with those operated by the United States Navy.
2.4The estimated cost of delivery of the project is $228.2 (excluding GST).
2.5The project was referred to the Committee on 7 February 2024.
Conduct of the inquiry
2.6Following referral, the inquiry was published on the Committee’s website and via media release.
2.7The Committee received one submission and one confidential submission. A list of submissions is at Appendix A.
2.8On 23 April 2024, the Committee conducted a site inspection at RAAF Base Amberley, followed by a public and in-camera hearing at Camira Springfield Community Centre, Camira, QLD A transcript of the public hearing is available on the Committee’s website.
Need for the works
2.9This project will provide the facilities required at RAAF Base Amberley, Queensland, and Delamere Air Weapons Range, Northern Territory, to support the EA-18G Advanced Growler plane upgrades. This includes:
- maintenance, logistics and storage upgrades at both Bases to enable effective servicing
- training facilities to support enhanced operation of EA-18G Advanced Growler capability, including the ability to conduct joint training exercises and integrated training.
- The EA-18G Advanced Growler is an electronic attack aircraft. The Airforce describes it as capable of disrupting, deceiving or denying a broad range of military electronic systems, including radars and communications. The Airforce notes on its website that the aircraft supports a range of Defence tasks and helps to reduce risk and improve situational awareness as well as providing complementary capability to the F/A-18F Super Hornet and the F-35A Joint Strike Fighter.
- There are 12 EA-18G Advanced Growlers based at RAAF Base Amberley controlled by No. 6 Squadron.
- Defence notes the project is consistent with the 2020 Force Structure Plan and the 2023 Defence Strategic review.
Options considered
2.13Defence determined that the essential requirements of the project include:
- upgrades to the Next Generation Jammer maintenance and storage facilities at Amberley, enabling storage and staging of Next Generation Jammer pods at the Base;
- new specialised training facilities at Amberley, which will enhance Air Force’s ability to appropriately prepare personnel for operation of the EA-18G Advanced Growler upgraded capability; and
- new and upgraded maintenance, logistics and storage facilities at Delamere, enabling maintenance of Advanced Mobile Threat Training Emitter Systems equipment, supporting associated training activities and ensuring optimum functionality of the Air Weapons range during training exercises.
- Three options for the project were considered.
- Option 1 – Do nothing. This option would provide no infrastructure to support the new Generation Jammer and Mobile Threat Training Emitter Systems capability.
- Option 2 – In Budget Scope (preferred option). This option includes upgrades to the Next Generation Jammer maintenance and storage facilities, as well as specialised training facilities at Amberley. It would also include new and upgraded maintenance, logistics and storage facilities at Delamere. This option will deliver the highest priority functional requirements within the approved Government budget.
- Option 3 – Full Scope. This option would provide fit-for-purpose facilities and upgrade infrastructure to address all the functional requirements identified by Air Force and would enable full capability for Advanced Growler Phase 6.
- Defence identified Option 2 as the preferred option as it meets the project’s needs and Defence’s minimum viable capability requirements. It was also found that the option represented the best value for money solution from both a capital and whole-of-life perspective.
Scope of the works
2.16The scope of works of Defence’s preferred option includes the following work elements:
- RAAF Base Amberley (located approximately 40 kilometres south-west of Brisbane, QLD):
- Work Element 1 – Upgrades to Existing Next Generation Jammer Maintenance Facility. This element includes adaptive re-use of Building 1411, including provision of additional work bays, lifting equipment, ICT and power, as well as installation of air conditioning throughout.
- Work Element 2 – New Next Generation Jammer Secure Ready Storage Facility. This element includes construction of a new facility to provide floor-level storage for Next Generation Jammer stock, including a staging area and a gantry crane.
- Work Element 3 – New Next Generation Jammer Container and Ground Support Equipment Storage. This element includes covered, semi-enclosed storage for Next Generation Jammer shipping containers, as well as additional Ground Support Equipment storage for increased holdings, within the new Next Generation Jammer Secure Ready Storage Facility.
- Work Element 4 – New Mission Control Centre. This element includes a new facility to replicate the Mission Control Centre at Delamere, including secure conference and briefing rooms, training rooms and supporting communications and information communications and technology (ICT) services.
- Delamere Air Weapons Range (located approximately 520 kilometres south of Darwin, NT):
- Work Element 5 – New Mobile Threat Training Emitter Systems Maintenance Facility. This element includes a new facility to support Advanced Mobile Threat Training Emitter Systems maintenance, including additional work bays, office space, secure briefing room and storage, as well as supporting services.
- Work Element 6 – Modifications to Existing Air Defence Radar System Storage Shelter. This element includes adaptive reuse of an existing building to accommodate new Advanced Mobile Threat Training Emitter Systems capability, including access controls, fire suppression and ICT connection.
- Work Element 7 – New Vehicle Wash Point. This element includes a new two-bay vehicle wash point to support an increase in Mobile Threat Training Emitter Systems vehicle throughput during training exercises.
- Work Element 8 – Upgrades to Existing Maintenance Facility Road Network. This element includes road upgrades to allow vehicle access to storage and maintenance facilities.
- Work Element 9 – New Overflow Storage. This element includes provision of an additional hardstand to support overflow storage during training and maintenance periods.
- Work Element 10 – Upgrades to Existing Range Operations Centre Communications Building. This element includes construction of a new secure communications building to support existing infrastructure on site, including racking, Uninterrupted Power Supply and connection into the existing Range Operations Compound communications tower.
- Work Element 11 – Upgrades to Existing Infrastructure. This element includes upgrades to existing services infrastructure, including sewer and diesel storage.
- Defence notes the proposed works will include the removal of some existing trees, redundant engineering services, footing and pavements.
- The structures have been designed according to the local geotechnical and climatic profile. The proposed facilities will generally be constructed from reinforced precast concrete walls, suspended concrete floor slabs and steel-frames with pre-finished steel roofing. Internal walls are non-load bearing frames, lined with plasterboard to provide maximum flexibility to respond to changing functional needs.
- Existing sewerage and storm water services are proposed to be extended to each facility to suit design requirements. Potable water will be connected to the existing supply via sub-metering to each new building. Roof water will be redirected to existing stormwater infrastructure on each Base.
Potential impacts
2.20Defence stated that while PFAS contamination is present at RAAF Base Amberley because of the historical use of PFAS containing firefighting foam at air bases across the country, levels of PFAS found in the soil at RAAF Base Amberley are very low and therefore the level of risk to human health is negligible.
2.21At the public hearing, Defence was able to reassure the Committee that the proposed works at Delamere Air Weapons Range will not impact the two threatened species of fauna in the area, the Gouldian finch and the Crested Shrike-tit, as the works are confined to the existing compound, not undisturbed ground.
Community and stakeholder consultation
2.22Defence developed a community consultation and communications strategy to give local residents and other interested stakeholders an opportunity to provide input or raise concerns regarding the works.[17]
2.23The following stakeholders were engaged by Defence:
- The Federal Member for Blair, The Hon Shayne Neumann MP
- The Federal Member for Lingiari, Ms Marion Scrymgour MP
- The Queensland Member for West Ipswich, Mr James (Jim) Madden
- The Northern Territory Member for Daly, Mr Dheran Young
- The Mayor of the City of Ipswich, Mayor Teresa Harding
- The Mayor of Katherine, Mayor Elisabeth Clark
- The Chief Executive Officer Victoria Daly Regional Council, Mr Brian Hylands
- Traditional Owners of the land
- Local industry and business associations, including:
- Business Ipswich
- The Northern Territory Business Council
- Local community groups.
- Two drop-in sessions at Katherine, NT, and Ipswich, QLD, and one virtual session attracted six participants. Five participants were local residents of the areas and one was a local contractor. Concerns noted by participants included:
- Local industry participation
- Impact on accommodation availability
- Noise and traffic impacts
- Changes to fence lines
- Impact to the Communication Tower at Delamere Air Weapons Range
- Defence’s design of wash bays
- Environmental impact to land in the Victoria Daly region.
Cost of the works
2.25The estimated total capital delivery cost of the project is $228.2 (excluding Goods and Services Tax). The cost estimate includes management and design fees, construction, information and communications technology, furniture, fittings, equipment, contingencies and a provision for escalation.
2.26Defence notes the proposed works will increase ongoing operational and sustainment costs at each Base. This increase is due to the need for additional maintenance, cleaning and utilities costs required to operate and maintain the new facilities.
2.27Defence provided further details on project costs in its confidential submission and during an in-camera hearing.
Revenue
2.28There will be no revenue generated by this project.
Public value
2.29Some of the public value and benefits to the community of the proposed works are:
- Economic impacts: Project expenditure will support the Australian economy, in particular the construction and professional services sectors in south-east Queensland and the Northern Territory.
- Employment opportunities: The project will employ a diverse range of consultants, contractors and construction workers, and is expected to generate opportunities for up-skilling and job training to improve individual skills and employability on future projects.
- Local industry and Indigenous business involvement opportunities: The Head Contractor will actively promote opportunities for small and medium local enterprises through construction trade packages. The Head Contractor will also develop a Local Industry Capability Plan and an Indigenous Participation Plan to detail how it will engage with and maximise opportunities for local industry and Indigenous businesses, while providing value for money to the Commonwealth.
- At the public hearing, Defence explained that one of the construction materials, steel, is expected to be sourced from Australia:
As part of those Commonwealth Procurement Rules, there is guidance in terms of expectations of the Commonwealth for material supply as part of that, and, therefore, the expectation would be that it would be Australian supplied steel that's delivered as part of this project.
2.31In response to further questions, Defence elaborated on local content:
It will be essentially up to the head contractors to determine which companies they approach to provide all the materials necessary for the new facilities. […] In terms of local industry participation, we are aiming, for this project, to have a minimum of 15 per cent technical; however, the majority of supplies will be from Australia. I can assure you that the share of Australian industry content in this project will be very high. However, I mentioned earlier value for money. If steel is provided from a foreign company then that may be the most efficient way of delivering this project within the budget.
2.32Design for energy efficiency and sustainability measures have been included in the proposed facilities. At the public hearing, Defence advised that:
We have adopted low-volatile organic compound materials, sustainable materials. We've considered shading the buildings to minimise heat load on the mechanical ventilation systems in the building…
2.33However, Defence further advised that the secure facilities required hardened elements and sealing that precluded the use of natural ventilation and skylights.
2.34At the public hearing, the Committee inquired about Defence’s internal capability for construction works, noting the frequency of construction works. In response to this, Defence noted that it makes more economic sense to have specialist builders contracted to build specialist facilities:
At the moment it's mainly the Army and the Air Force that have that internal capability. However, the major works delivered across the country in support of Defence are predominantly done now by major and medium construction companies. Even though some of those companies may be foreign owned, the workers are Australian. It is not the Defence Force's main capability to build permanent facilities in support of defence capabilities on our bases; that's been an outsourced model for many years. It would require a significant increase in the capability within Defence if we were to take that capability on in-house.
Committee comment
2.35The Committee did not identify any issues or concerns with the proposal, and it is satisfied that the project has merit in terms of need, scope and cost.
2.36The Committee acknowledges that Option 2 is the preferred option for this project, having been assessed as viable, affordable, representing value for money and that it is also consistent with the 2020 Force Structure Plan and the 2023 Defence Strategic review.
2.37The Committee noted that while the major works delivered across the country in support of Defence are primarily carried out by major and medium sized construction companies, there may be opportunities for Defence to increase its internal engineering and construction capability, particularly given the large amount of construction work carried out by Defence.
2.38The Committee notes the Department of Defence will attempt to source Australian steel for use in the works where it represents value for money.
2.39The Committee appreciates the Department of Defence’s commitment to sustainable design and urges the Department to continue this in subsequent works.
2.40Having 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.
2.41The Committee recommends that the Department of Defence report back to it with the source location of the steel that will be used in the proposed works once identified.
2.42The 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 — Facilities to Support Advanced Growler Phase 6.
2.43Proponent 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.