- Southern Ocean Research Aquarium
Department of Climate Change, Energy, the Environment and Water
4.1The Department of Climate Change, Energy, the Environment and Water (DCCEEW) seeks approval from the Committee to proceed with the proposed Department of Climate Change, Energy, the Environment and Water — Southern Ocean Research Aquarium.
4.2The proposed works will fit-out a cold-water marine research aquarium at the University of Tasmania’s Taroona research laboratories on the Derwent estuary in Hobart. The aquarium will help develop scientific understanding of the biology of Antarctic krill and related species and answer critical research questions on the effects of climate change and ocean acidification on the Southern Ocean ecosystem.
4.3The works will also maintain Australia’s status as a leader and innovator in Southern Ocean conservation and management through provision of a state-of-the-art research facility.
4.4The estimated cost of delivery of the project is $36.7 million (excluding GST).
4.5The project was referred to the Committee on 20 November 2024.
Conduct of the inquiry
4.6Following referral, the inquiry was published on the Committee’s website.
4.7The Committee received two submissions and one confidential submission. A list of submissions is available at Appendix A.
4.8On 19 March 2025 the Committee received a private briefing, then conducted a public and in-camera hearing at Australian Parliament House, Canberra. A transcript of the public hearing is available on the Committee’s website.
Need for the works
4.9Krill research has been conducted in Australia since the 1980s. At the public hearing, the Committee heard information about the importance of krill, and the value of Antarctic krill research:
Antarctic krill are an absolute critical keystone species in the Southern Ocean. Much of the charismatic megafauna, the large animals in the Southern Ocean, rely on krill being there in vast numbers at certain times of the year to complete their reproductive cycle. To get a concept of how important they are, if you look at the biomass of all animal life on earth—so that is, in terms of carbon, the weight of all animals alive on earth today—this single species, Euphausia superba, represents one-fortieth of that mass. No other species comes close in terms of wild animal species, and they are only eclipsed by humans.
Krill are not just a resource for humans to use; they provide a range of services across the environment. Making sure that the krill population does not change significantly is the best way to ensure the survival of the great whales that rely on them and the other species all the way through the ecosystem that are all, in some way, connected to Antarctic krill.
4.10Early krill research was conducted from ships, and icebreakers, and by the 1990’s, in cold rooms at the Australian Antarctic Division’s (AAD) Kingston, Tasmania site. In 2001, a prototype warm air, cold water aquarium was built at AAD Kingston to enhance research capabilities and improve work health safety. This facility has been updated over time. The aquarium became a leading facility for krill research, attracting scientists globally. The research on krill biology undertaken at this facility has helped Australia influence international fisheries management and environmental protection. At the public hearing, the Committee heard that Australia plays an important leadership role in krill research:
…Australia can say that we are the leaders of the world in Antarctic krill research. At a symposium of live krill experts in St Andrews some years ago, it was pointed out by other nations that Australia is the lead player, and the work we have done in the Southern Ocean aquarium we currently run in Kingston has been much appreciated. We have had many more requests for international researchers to come and utilise our research facility than we can possibly accommodate, and this is one of the key reasons that we need to increase our facility footprint, to be able to welcome research that meets the Australian government's strategic plan for science that can answer some of these big questions that affect the biology of krill and, of course, the ecosystem they support. We are the world leaders and we look to help other nations around the world also perform this research.
4.11The existing aquarium is outdated, with significant maintenance costs, safety hazards, and limited capacity. It uses inefficient technologies and does not meet new biosecurity requirements. The current aquarium needs to be replaced in order to maintain Australia's leadership in Southern Ocean research. The new facility will address these issues and remain competitive internationally.
4.12The new aquarium will interface with a mobile aquarium on the icebreaker RSV Nuyina, making specimen transfer safer and more efficient. It will be located at the University of Tasmania’s Taroona research laboratories, utilising existing infrastructure. The new facility will have five times the research space of the current one, including advanced features such as a large test tank and a sea ice research freezer. It will support comprehensive krill biology research as well as for related species. The aquarium will support research aligned with Australia's priorities in the Southern Ocean, enabling continuous and influential scientific work. At the public hearing, the Committee heard how the proposed facility will aid krill research:
We've already begun research on the effects of warming ocean and ocean acidification on Antarctic krill. We've done that in our existing aquarium, but it is very difficult due to the tight confines of that space...
The research we've done so far has shown that, if you warm the water in which krill embryos are developing, they don't hatch. And, if you push carbon dioxide concentrations above what they are currently experiencing enough, they also won't hatch…
We also have the known losses of sea ice that are occurring now in the Southern Ocean. Sea ice is the nursery area for Antarctic krill larvae.
What this new aquarium facility is going to allow us to do is to bring all of this together. It is one thing in research science to test an individual parameter on an individual species, but it is quite another thing to bring all three pressures—sea ice loss, temperature rise and acidification—to bear at once on a single animal species during a critical phase of its development. And that is what we'll be able to do with this aquarium. So it's really a step-change in capability not just for Antarctic krill but for the other species we're now able to collect in perfect condition in the wet world, the subject of some developing fisheries in the Antarctic.
Options considered
4.13The following options were considered:
- Option 1 – Upgrade the existing facility:
- Process: The current aquarium is outdated and needs a major refit to continue operating. Upgrading would extend its life and improve safety
- Challenges: This option can't fully address biosecurity issues, would be costly, reduce research space, and disrupt ongoing research during construction. It also can't connect to the containerised aquaria on the RSV Nuyina ship
- Option 2 – Build a new aquarium at the Kingston site:
- Process: Construct a new, purpose-built aquarium at the existing Kingston site
- Challenges: The site has water supply issues, requiring frequent trucking of sea water, which is costly and operationally challenging. The site lease is also short-term compared to the aquarium's expected lifespan
- Option 3 – Build a new aquarium at a greenfield site:
- Process: Construct a new aquarium at a new, yet-to-be-identified location
- Challenges: This option is expensive, time-consuming, and lacks collaborative opportunities. Funding is insufficient, and the benefits of collaboration with the University of Tasmania (UTas) would be missed
- Option 4: Build a new aquarium at the University of Tasmania, Taroona site:
- Process: Construct a new aquarium at the UTas site, leveraging existing infrastructure and enhancing collaboration
- Benefits: This is the preferred option due to lower costs, better water supply, and significant collaborative opportunities with UTas. It allows for continuous research during construction and provides long-term benefits for Antarctic marine research.
- Each option was evaluated based on feasibility, cost, operational challenges, and potential for collaboration, with Option 4 emerging as the most viable solution. At the public hearing, the Committee also heard that Option 4 may also allow for expansion if required in the future, as there is other room available at this site.
Scope of the works
4.15The project scope is the fit-out of a cold shell. The cold shell is currently being constructed in a partnership between UTas and the AAD and was approved by the Committee as a medium work in December 2022. UTas built the basic structure and related infrastructure with costs being divided between UTas and the AAD based on the gross floor area of the buildings. Related infrastructure, including a sea water intake/pump station, water treatment system, and HVAC system for water cooling and heating, was also included in this stage of the works.
4.16The scope of works for the fit-out of the cold shell is below:
- shared areas and services:
- construction of rooms, including: reception area, meeting rooms, flexible workspaces, and a tearoom shared with UTas
- civil works including extension of existing roads and parking to support the new aquarium
- specialist infrastructure:
- upgrades to existing specialist infrastructure
- replacement of the ozone plant to sterilise incoming water and a new bio-secure seawater treatment plant
- research spaces: nine small research rooms, five large research rooms, one large research room built to biosecurity containment Level 2 standard, a deep tank, a sea ice research freezer, culture room to support culturing phytoplankton, feed rooms, marine laboratory, cold room, bulk seawater store, workshop, storeroom
- support systems: each room will be supported by a recirculating aquaculture skid system (RASS) for temperature-controlled seawater, automated data collection, and monitoring
- electrical: new lighting, power systems, backup generators, and energy monitoring
- mechanical: plumbing, HVAC, and elevator systems integrated with the larger development
- hydraulic: connections to potable water, sewerage, and stormwater drainage
- fire protection: systems developed in consultation with Tasmania Fire Service, meeting national standards
- ICT: Infrastructure to support the facility, including a server room and data connections.
Community and stakeholder consultation
4.17Consultation and stakeholder engagement activities were divided into two main components: the broader UTas development at the Taroona site and the design of the fit-out for the new research facility.
4.18For the first component, extensive consultation was conducted by UTas to obtain approvals for the Taroona site development. Key issues identified included safety and traffic management during construction, resident concerns about increased traffic flow, and the loss of significant trees. The Kingborough Council confirmed the road's suitability for postconstruction traffic, and UTas is managing vegetation according to planning recommendations.
4.19For the second component, the Department engaged with CSIRO, UTas, and the Australian Institute for Marine Science, and formed a reference group with experts to provide input on the design. Safety workshops were held to identify and manage risks during the design and operation phases. The initiative has been endorsed by Dr. Nick Gales, Chair of the Australian Antarctic Science Council.
Cost of the works
4.20The project’s budget is $36.7 million (excluding GST). The total cost estimate includes the construction cost for a cold-shell and related infrastructure, contribution to the construction of shared facilities and the fit-out cost of the cold shell. The construction of the cold-shell is already underway and was approved by the Committee as a medium work earlier in the Parliament due to interdependencies with UTas. The estimated cost of the fit-out component is $24.2 million which also includes professional fees, construction costs, IT infrastructure and equipment, contingencies and an allowance for cost escalation.
4.21The project will be funded through from the existing Department Capital Budget.
4.22DCCEEW note that there will be a moderate increase in the aquarium operating costs due to the need for additional personnel to support a larger facility, additional maintenance and operating costs. Funding for additional operating costs will be provided from existing sources with the Department.
Revenue
4.23There will be no revenue generated by the project.
Public value
4.24The Southern Ocean Research Aquarium in Hobart will boost Australia's leadership in Antarctic research as well as global scientific understanding. Supported by the Tasmanian Government, this project will enhance scientific capabilities and create jobs. It will attract top scientists, strengthen biosecurity, and support sustainable krill management. This project aligns with national strategies and reinforces Tasmania's role as a key Antarctic gateway, contributing to the local economy.
4.25Particular benefits are listed below:
- Scientific Research Capability: The new aquarium will ensure that marine research can continue and expand to meet new priorities
- Health and Safety: The facility will reduce workplace health and safety risks compared to the current one. Employment
- Employment Opportunities: Building and operating the new facility will create jobs during construction and support more researchers in the long term
- Education Opportunities: The aquarium will provide more chances for postgraduate training, helping to develop future marine scientists.
Committee comment
4.26The 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.
4.27The Committee acknowledges the AAD's international leadership in krill research and affirms that the proposed works will further support and strengthen Australia's significant research efforts in this critical area.
4.28The Committee commends the department for its significant advancements in krill research and climate change. The new aquarium facility enhances the ability to study the combined effects of sea ice loss, temperature rise, and acidification on Antarctic krill and other species, providing critical insights into the Southern Ocean ecosystem.
4.29The Committee is satisfied that the selected option for the proposed works will not only enable the AAD to continue its operations but also enhance its capacity as a leading authority in krill research.
4.30Having 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.
4.31The 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 Climate Change, Energy, the Environment and Water — Southern Ocean Research Aquarium.
4.32Proponent 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.