1. Introduction
   1. The importance of Antarctica to Australia’s national interests cannot be overstated. The Antarctic continent and its waters possess a diversity of life and are critical to themaintenance of global environmental and climate systems. Antarctica is home to extensive ice sheets and sea which reflect solar energy and limit heat absorption.[1]
   2. The Southern Ocean helps regulate the global climate through the exchange of heat and carbon dioxide between the ocean and the atmosphere. The Antarctic and Southern Ocean ecosystem is home to several significant biodiverse species including krill, plankton, whales, and commercially significant species, such as toothfish. This ecosystem is crucial to ensuring not only Australia’s, but the world’s, climate regulation and health.[2]
   3. As Australia faces the risk of considerable global warming and sea level rise, Antarctic observations and science is increasingly drawn on to forecast outcomes and inform key decision-making. Antarctic climate modelling will help address Australia’s future climate challenges with regard to sea level rise and weather patterns which will impact the Asia–Pacific region. Antarctica and the Southern Ocean may also affect Australia’s policies on renewable energy sources, migration, and emergency management systems resulting from extreme climate events.[3] Consequently, the stability of the region is of great importance to Australia’s long‑term national interests.
   4. The Australian Antarctic Territory (AAT) comprises 42 per cent of the Antarctic continent, giving Australia a significant and compelling interest in Antarctic affairs. Australia’s Antarctic sector and programs contribute substantially to our economic and social development in both direct and indirect ways. Australia’s stake in Antarctica has necessitated considerable Commonwealth investment and a coordinated effort and commitment to maintain Australia’s national interests.
   5. The Australian Antarctic Strategy and 20 Year Action Plan sets out Australia’s national interests in Antarctica as being to:

• maintain Antarctica’s freedom from strategic and/or political confrontation
• preserve our sovereignty over the Australian Antarctic Territory, including our sovereign rights over adjacent offshore areas
• support a strong and effective Antarctic Treaty system
• conduct world-class scientific research consistent with national priorities
• protect the Antarctic environment, having regard to its special qualities and effects on our region
• be informed about and able to influence developments in a region geographically proximate to Australia
• foster economic opportunities arising from Antarctica and the Southern Ocean, consistent with our Antarctic Treaty system obligations, including the ban on mining and oil drilling.[4]
  6. Australia has a significant role to play to maintain the peace, scientific exploration, and environmental protection of Antarctica. Australia also has a responsibility to itself and the international community to remain a strong advocate for Antarctica through its domestic and international policy.

Referral and conduct of inquiry

1.7On 27 February 2024, the Joint Standing Committee on the National Capital and External Territories (the Committee) adopted an inquiry into the importance of Antarctica to Australia’s national interests following a referral from the Minister for the Environment and Water, The Hon Tanya Plibersek MP. The Committee was asked to focus on Australia’s role in Antarctica with regard to scientific endeavour, climate change, the Antarctic Treaty System (ATS), and how Antarctica contributes to Australia’s economic and social development. The Terms of Reference are provided at pagexi of this Report.

1.8The inquiry was advertised via media release on 28 February 2024 and called for written submissions. The Committee received 38 written submissions, which are listed in Appendix A.

1.9The Committee held four public hearings in Canberra and Hobart and conducted three site inspections including to the Australian Antarctic Division’s (AAD) Kingston premises, Australia’s icebreaking research and supply vessel the RSV Nuyina, and the Institute for Marine and Antarctic Science at the University of Tasmania. The site inspections allowed the Committee to see firsthand how Australia manages its Antarctica program. A series of private briefings was also held including a meeting with expeditioners based at Casey Station in the AAT. The Committee was scheduled to undertake a site inspection of the Wilkins Aerodrome in Antarctica, however due to poor weather and operational requirements this site inspection wasunable to take place. A list of public hearings and site inspections is provided atAppendix B.

Recent inquiries and reviews

1.10Australia’s Antarctic operations have been the subject of several parliamentary inquiries and reviews over the past decade. The Committee last undertook an inquiry into Australia’s national interests in Antarctica during the 45th Parliament, which resulted in a report tabled on 18 June 2018, containing 22 recommendations.[5]

1.11During the 47th Parliament the Senate Standing Committee on Environment and Communications (References) (the Senate Committee) completed an inquiry into AAD funding. The Senate Committee tabled its report containing 16 recommendations on 9 May 2024.[6]

1.12The Australian Government has commissioned several reviews into the efficacy and culture of Australia’s Antarctic operations since 2017. These reviews are known colloquially as the Clarke Review (2017), the O’Kane Review (2021), theRussell Review (2022), and the Funding Model Review (2023). A detailed summary of the findings and recommendations of these reviews is set out in the Senate Committee report on AAD funding.[7]

Structure of report

1.13This report consists of five chapters. Following this introduction:

• Chapter 2 provides a background to Australia’s Antarctic history, the ATS, and the Australian Antarctic program;
• Chapter 3 examines the Australian Government’s efforts to uphold the principles of the ATS through its work in Australia, Antarctica, and in international forums;
• Chapter 4 examines the Australian Government’s management and delivery of Australia’s Antarctic science program; and
• Chapter 5 examines Antarctica’s contribution to Australia’s economic interests and social development.

Acknowledgements

1.14The Committee would like to thank everyone who prepared written submissions, appeared at public hearings, and hosted the Committee on its various site inspections. In particular, the Committee would like to thank AAD staff who hosted the Committee and lead the inspection of the AAD premises in Hobart, including the RSV Nuyina. TheCommittee is grateful for all the expertise and experience that was made available to it throughout the inquiry.

Footnotes

[1]Australian Academy of Science (AAS), Submission 20, p. 1.

[2]AAS, Submission 20, p. 1.

[3]AAS, Submission 20, p. 1.

[4]Australian Government, Australian Antarctic Strategy and 20 Year Action Plan,2016. p. 17.

[5]Joint Standing Committee on the National Capital and External Territories, Maintaining Australia’s National Interests in Antarctica: Inquiry into Australia’s Antarctic Territory, tabled 18 June 2018.

[6]Senate Standing Committee on Environment and Communications (References), Australian Antarctic Division funding, tabled 9 May 2024.

[7]Senate Standing Committee on Environment and Communications (References), Australian Antarctic Division funding, tabled 9 May 2024, ch 2, ch 4.