Bills Digest no. 65 2005–06
Anglo-Australian Telescope Agreement Amendment Bill 2005
WARNING:
This Digest was prepared for debate. It reflects the legislation as introduced
and does not canvass subsequent amendments. This Digest does not have
any official legal status. Other sources should be consulted to determine
the subsequent official status of the Bill.
CONTENTS
Passage History
Purpose
Background
Main Provisions
Concluding Comments
Endnotes
Contact Officer & Copyright Details
Passage History
Anglo-Australian Telescope Agreement Amendment Bill 2005
Date Introduced: 9 November 2005
House: House of Representatives
Portfolio: Education, Science and Training
Commencement: Clauses 1-3 commence on Royal
Assent. The operative provisions (Schedule 1) only commence once both
Royal Assent is given and the Supplementary Agreement(1)
is in force in Australia. The relevant Minister must make a gazettal
notice announcing the date the Supplementary Agreement comes into force
in Australia. However, if that Agreement is not in force with six months
of Royal Assent, Schedule 1 does not commence at all.
To incorporate the 2005 Supplementary Agreement regarding the Anglo-Australian
Telescope into the Anglo-Australian Telescope Agreement Act 1970.
Background
Most observing activity in Australian optical astronomy occurs at Siding
Spring Observatory located near Coonabarabran NSW, where a large number
of significant telescopes and facilities coexist. Few astronomers peer
through a telescope these days as most observing is computerised. Work
also involves theoretical study, instrumentation development and teaching.
Astronomy is a science enabling and inspiring discipline, particularly
for young people, with Australia’s extensive expertise being demonstrated
by the level of citations in relevant publications, while also contributing
to scientific applications and technological advancement.
In 1969, Australia and the UK signed a treaty (the Anglo-Australian
Agreement(2)) providing for the establishment and operation
of a large 3.9m telescope at Siding Spring – the Anglo-Australian Telescope
(AAT). The AAT is managed and operated by the Anglo-Australian Telescope
Board (AATB), which was also established by the Anglo-Australian Agreement.
The AATB is an independent bi-national authority funded on an equal
basis by Australia and the UK. The AATB was given statutory recognition
in Australia by the Anglo-Australian Telescope Agreement Act 1970 (the
Act).
In addition to the AAT, the AATB’s facilities include the 1.2-metre UK
Schmidt Telescope (UKST), also at Siding Spring, and a laboratory at Epping
in Sydney. Collectively, these form the Anglo-Australian Observatory (AAO).
In 2001, the UK advised Australia that it had other astronomy priorities
and intended to terminate its involvement with the AAT. According to the
recent report
of the Joint Standing Committee on Treaties (JSCOT):
The Committee was informed that the UK would be directing
some of its astronomy assigned funding towards facilities such as the
European Southern Observatory and Gemini Observatories both of which
operate next generation eight-metre optical telescopes.
Instead of terminating the Agreement with Australia,
the UK agreed to amend the Agreement to continue the UK’s commitment
to the AAT, but at a reduced level until the termination of both agreements.
The new termination and the AAT handover arrangements will ensure long
term access for Australian astronomers to a valuable scientific instrument
in the lead up to Australia’s acquisition of the AAT.(3)
The administrative arrangements to reflect this progressive withdrawal
by the UK from the AAT are contained in an amendment (the ‘Supplementary
Agreement’) to the Anglo-Australian Agreement. Under the Supplementary
Agreement, which was signed in August 2005, ownership of the AAT will
be transferred to Australia on 1 July 2010, at which time the Anglo-Agreement
Agreement will cease.
As a national facility in high demand, AAT usage is allocated on the
basis of the merit of proposed observing programs. The Observatory has
thus been involved in activities such as the 2dF Galaxy Redshift Survey and the
6dF Galaxy Survey (UKST). The
2dF survey mapped more than 221,000 galaxies in space while the 6dF survey
covered 20,000 quasars of distant galaxies. According to a recent study,
the AAT has fared well in terms of citations of scientific papers, being
the most productive telescope for those greater than 3m in size.(4)
The AAT’s most highly cited papers came from the 2dF Survey.
The draft Australian Astronomy Decadal Plan
2006-15 proposes a strategic vision for national benefit through research
and expertise in optical and radio facilities, with a focus on international
collaborations and global projects. The two major projects are the Square
Kilometre Array (SKA) radio telescope program and development of Extremely
Large Telescope (ELT) optical facilities. Australian expertise in automated
optical imaging systems has enabled entry into major overseas scientific
projects such as the Gemini Observatories located in Hawaii and Chile.
The Plan aims to build on a proud history
of local achievements in astronomy, but how Australia will sit in future
proposals, such as the $1 billion SKA project and $500 million ELT project,
is problematic. While these may represent the new generation of astronomy
research, their astronomical prices may forever confine Australian interests
to mere niche activities. Australia’s participation in international collaborative
observatories, although useful, is also said to be viewed by some overseas
participants as stingy, being at around 6 to 10 per cent.(5)
In 2005-06 Australia is providing $4.6 million of funding for the AAT
and associated matters, with the UK, if it follows past practice, contributing
somewhat over $4 million. According to the Explanatory Memorandum, forward
estimates indicate that Australian funding through annual budget appropriations
will increase incrementally up to $4.9 million in 2008-09.(6)
However, according to the JSCOT report, the UK will halve its current
contribution to around $2 million in 2006-07 and $1 million in 2007-08.(7)
The Supplementary Agreement provides for a minimum annual contribution
of $0.5 million by both parties to 2010. The Department of Education,
Science and Technology (DEST) has indicated that some additional funding
for the AAT’s continued operation, without UK support, may be available
through the competitive grants program, assuming a successful application.(8)
The astronomical community has expressed its concerns about the uncertain
funding arrangements.(9)
More information on the AAT and the funding issues associated with implementation
of the Supplementary Agreement can be found in the JSCOT report. (pages
27–28)
Schedule 1 makes various consequential changes to the Act to reflect
the amendment of the original Anglo-Australian Agreement by the Supplementary
Agreement.
Concluding Comments
The concerns of astronomers mentioned may well be validated, as funding
for even very basic astronomy programs have sometimes been not forthcoming.
For instance, there remains no funded Australian component of the international
effort to detect Earth-threatening asteroids and comets under project
Spaceguard. Establishment of a Joint Department of Defence and DEST search
for Earth-threatening asteroids has been long-deferred. As well, space
science remains a poor cousin here, despite Australia's obvious expertise
in astronomy research. So, as stated by the AATB: ‘To be effective, astronomical
research requires stable, long-term funding’.(10)
-
See background for an explanation of the Supplementary Agreement.
-
The full title is The Agreement between the Government of the
Commonwealth of Australia and the Government of the United Kingdom
of Great Britain and Northern Ireland to provide for the establishment
and operation of a large optical telescope.
-
JSCOT Report 68: Treaties tabled on 7 December 2004 (5) and tabled
on 9 August 2005 – Chapter 4 Report on the Supplementary Agreement
with the United Kingdom of Great Britain concerning the Anglo-Australian
Optical Telescope , pp. 20-21.
-
Sky and Space, ‘Anglo-Australian research in world class’, Sky
and Space, July/August 2005, p. 30.
-
This sentiment was expressed verbally by Australian astronomers at
a recent visit by Parliamentary Library staff to a major observatory.
-
Explanatory Memorandum, Financial Impact, p. 2.
-
JSCOT Report 68, op. cit, p. 27.
-
ibid.
-
Submission
to JSCOT inquiry by Professor Penny Sackett, Director, Research School
of Astronomy and Astrophysics, Australian National University.
-
Anglo-Australian Observatory, AAO Annual Report 2003–2004,
Annual Report of the Anglo-Australian Telescope Board, 2004, p. 17.
Matthew James
25 November 2005
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ISSN 1328-8091
© Commonwealth of Australia 2006
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