2.1
The Commonwealth Scientific and Industrial Research Organisation (CSIRO) seeks approval from the Committee to proceed with the Construction of a National Collections Building, Black Mountain Science and Innovation Park, Australian Capital Territory. The project aims to ‘enhance delivery of CSIRO-managed National Research Infrastructure’ through the ‘construction of a new National Collections Building as well as minor alterations of the existing Herbarium Building’ and the Australian Tree Seed Centre.
2.2
CSIRO state that the project objective is to co-locate all Canberra-based collections in fit-for-purpose facilities in order to:
standardise workflows and increase partnership in collection management and scientific research;
remove operational risk to specimens and guarantee long term preservation of collections;
deliver state of the art biodiversity research facilities that enable CSIRO and its national and international research collaborators to better deliver science for national benefit; and
attract, develop and retain talent.
2.3
The estimated cost of the project is $70 million (excluding GST).
2.4
The project was referred to the Committee on 3 June 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, listed at Appendix A.
2.7
On 6 August 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
Founded in 1926, CSIRO is Australia’s national science agency, and is ‘one of Australia’s leading multidisciplinary organisations’. As custodian of the National Research Collections Australia (NRCA), CSIRO is responsible for over 15 million specimens across six collections and approximately 20 per cent of all biological collections in Australia. Of these, 13 million specimens are housed in Canberra across disparate facilities.
2.9
CSIRO stated that the project’s ‘objective is to ensure the preservation of the collections in a purpose-built facility to consolidate the insect, wildlife and plant collections while enhancing research, access and use’.
2.10
Presently, the Canberra-based NRCA comprise:
the Australian National Insect Collection (ANIC);
the Australians National Herbarium (ANH);
the Australian National Wildlife Collection (ANWC);
the Australian Tree Seed Centre (ATSC); and
the Dadswell Memorial Wood Collection (DMWC).
2.11
These collections are stored in disparate facilities with varying degrees of accessibility, and the NRCA face risks to their preservation and capacity to expand. Three collections, the ANIC, the ANH and the ATSC are located at CSIRO’s Black Mountain site, while the ANWC is located at an accessible leased facility in Crace, Australian Capital Territory (ACT), and the DMWC is inaccessible for research purposes at a storage facility in Hume, ACT.
2.12
CSIRO stated that current accommodation of collections at Black Mountain is ‘no longer fit-for-purpose and present significant operational challenges’ with specific issues including:
ineffective chemical protectants leaving vulnerable collections in the ANIC building subject to continued pest attack damage;
inappropriate storage of collections in the ANIC and ANH buildings (which co-locate offices, laboratories and storage halls) leaving collections vulnerable to temperature, humidity and excessive human activity; and
all Canberra-based collections are at or near capacity, with collections compromised due to overcrowded storage arrangements.
2.13
CSIRO highlighted that the proposed project will align with CSIRO’s 2019-2029 Property Strategy, which ‘seeks to consolidate CSIRO’s property footprint to sites and locations that align to the future needs of the organisation, improve utilisation of properties, increase utilisation of core infrastructure, enhance site vibrancy and maximise investment of limited funds in key sites’.
Options considered
2.14
In developing a detailed business case for the project CSIRO considered multiple options, including ‘doing nothing, refurbishment of existing buildings, new builds, and multiple precinct variations on the CSIRO Black Mountain site’.
2.15
These options considered are outlined in greater detail below:
Option 0: ‘Status quo’ seeks to take a do minimum approach, and provides minimal increased benefits.
Option 1: ‘Dispersed campus’ would deliver new facilities for the ANWC at the Black Mountain site, with 17 per cent of the Collections’ current facilities relocated and 83 per cent remaining in situ.
Option 2: ‘Precinct model’ (preferred option) proposes construction of a fit-for-purpose facility for the ANWC, ANIC, ANH and DMWC at the Black Mountain site, and regeneration of the existing Herbarium Building and ATSC facilities.
Option 3: ‘New integrated building’ co-locates all Canberra-based collections in a new fit-for-purpose facility at the Black Mountain site.
2.16
Options 0 and 1 were not recommended as they did not meet the project requirements and would negatively impact science outcomes. Option 3 was unsuitable as it did not meet budget requirements at an estimated cost of $160 million.
2.17
Further, CSIRO considered different location, commercial and scale options, and identified key project requirements:
Due to key strategic Canberra-based partnerships and research opportunities and the risk of moving collections any distance, locating the facility in Canberra was identified as a critical project requirement.
CSIRO considered leased options, and determined that they would not meet project requirements due to the additional financial and property management strains, without the necessary flexibility of owner-occupied premises.
In assessing scale, CSIRO found that there is a net economic benefit to co-location of all Canberra-based collections.
2.18
In assessing the above options and requirements, CSIRO selected the Precinct Model (option 2) as the preferred option as it:
a.
achieves the project objective and project outcomes;
b.
ensures main benefits are realised;
c.
significantly reduces risks compared with maintaining the status quo; and
2.19
CSIRO added that the proposed project maximises existing infrastructure at a CSIRO-owned site:
… Black Mountain is an owned site, we've got existing infrastructure on site, we've already invested and we've had a program of upgrades across a number of the facilities on site, including glasshouses, roads and core infrastructure. That means the precinct solution meets budget and also maximises the utilisation of the works that we’ve already done on site.
Scope of the works
2.20
In its submission CSIRO outlined the scope of the proposed works, which includes:
New construction works will encompass:
development of a greenfield space adjacent to the existing Herbarium building to accommodate the ANWC and ANIC; and
the facility will include interaction spaces, office areas, laboratories, storage vaults and landscaped areas.
Alteration works will include:
minor works to the Herbarium Building to accommodate the DMWC; and
minor works to the existing ATSC facilities to improve safety and compliance, and reduce risks.
Public value
2.21
CSIRO stated that the public value associated with the proposed project includes:
a.
provision of safe, fit for purpose facilities to provide science, operations and collaboration;
b.
efficiencies associated with reduced property footprint;
c.
providing sustainable outcomes associated with efficient building design and engineering systems; and
d.
ensuring the national biological collections are secured and maintained as science-ready research capability for Australia.
2.22
Further, CSIRO asserted its position as an ‘established global leader in world-class research’. CSIRO highlighted the need for a National Collections Building as an avenue to continue the delivery of significant science benefits to the Commonwealth.
Consultation
External consultation
2.23
CSIRO stated that it has consulted with the following parties:
Federal Government Ministers;
locally-elected Federal Members of Parliament;
local government representatives (Kurrajong);
Office of the Federal Safety Commissioner; and
National Capital Authority;
Australian National University;
Australian National Botanic Gardens;
Friends of Black Mountain Association; and
United Ngunnawal Elders Council.
Internal consultation
2.24
CSIRO told the Committee that staff have been consulted since the project’s inception, and has established an ‘internal website, monthly newsletters and town hall updates’ to deliver regular project updates for interested or impacted staff.
2.25
In evidence at the public hearing CSIRO representatives drew attention to the staff consultation undertaken:
We've obviously had regular meetings with the collections staff themselves through the development of the project. Through our functional user groups we've had 45 people formally involved in helping to plan this building and making sure it's the building we all need.
2.26
CSIRO highlighted the enthusiasm of the seven staff members who will be relocated as a result of the proposed project, from a current leased facility in Crace, ACT, to the proposed new National Collections Building, ‘They are very happy with the quality of the facility that is being proposed, how it will protect the collection, and the opportunity to work in the new laboratories and the new digital suites.’
Cost of the works
2.27
The proposed works have an estimated project cost of $70 million (exclusive of GST). This estimate covers internal staffing, contingency, project management, design, documentation and escalation costs until December 2024.
Revenue
2.28
There is no expected revenue from the proposed project.
Committee comment
2.29
The Committee was pleased to learn that CSIRO has actively engaged with stakeholders to develop a fit-for-purpose solution for the accommodation of, and ongoing research into, the National Research Collections Australia.
2.30
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.
2.31
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.
2.32
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: Commonwealth Scientific and Industrial Research Organisation, Construction of National Collections Building, Black Mountain Science and Innovation Park, Australian Capital Territory.
2.33
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.
Chair