Chapter 1Introduction
Referral and conduct of the inquiry
1.1On 22 August 2024, the Senate appointed the Select Committee on PFAS (per and polyfluoroalkyl substances), to inquire into the extent, regulation and management of PFAS. The committee is required to present a final report by 5 August 2025. With a Federal election likely in the first half of 2025, the committee has agreed to table an interim report to reflect some of the evidence received so far.
1.2The committee advertised the inquiry on its website and wrote to relevant organisations and individuals to invite them to make a submission. At the time of writing, a total of 127 submissions have been received and are available on the committee's website. The committee originally called for submissions to be provided by 19 December 2024. However, in February 2025 the committee resolved to reopen submissions and continues to receive and publish submissions. A list of submissions published so far is provided in Appendix 3.
1.3Additional documents, including answers to questions on notice, have also been received. These additional documents have been published on the committee's website and are listed in Appendix 3.
1.4The committee has held four public hearings to date, including: in Canberra on 13 November 2024; in Nowra, New South Wales (NSW) on 21 January 2025; in Penrith, NSW on 22 January 2024; and in Launceston, on 12 March 2025. A list of witnesses is provided at Appendix 4.
1.5The committee also conducted a community visit to Wreck Bay, Jervis Bay Territory (JBT), as part of the inquiry. A summary of the committee's visit is provided in Appendix 2.
1.6The committee intends to hold additional public hearings as the inquiry continues.
Acknowledgments
1.7The committee thanks all the individuals and organisations who have appeared as witnesses or made submissions to the inquiry so far.
1.8The committee also wishes to record its appreciation to the Parliamentary Library for the background paper on PFAS that they provided to the committee. Of note was the Parliamentary Library summary of reports released and key information about state and territory governments handling of PFAS, which can be found at Appendix 1.
Previous inquiries into PFAS
Parliamentary inquiries into the management of PFAS contamination in and around Defence bases
1.9In November 2015, the Senate Foreign Affairs, Defence and Trade References Committee commenced an inquiry into the contamination of Australia’s Defence Force facilities and other Commonwealth, state and territory sites in Australia. The inquiry focused on the circumstances surrounding the contamination at the Royal Australian Air Force (RAAF) Base in Williamtown and the Army Aviation Centre in Oakey. The terms of reference were centred on perfluorooctane sulfonate (PFOS) and perfluorooctanoic acid (PFOA) contamination. The committee published two reports and made 17 recommendations.
1.10In May 2018, the Joint Standing Committee on Foreign Affairs, Defence and Trade (JSCFADT) commenced an inquiry referred by the Senate into the management of PFAS contamination in and around Defence bases. This initial inquiry reported in November 2018, making nine recommendations, including that the Australian Government:
appoints a Coordinator-General to coordinate a national response;
increases investment in the containment of PFAS contamination plumes, and the remediation of contaminated land and water sources;
reviews existing advice in relation to the human health effects of PFAS exposure;
improves participation in the voluntary blood testing program for PFAS;
assists property owners and businesses in affected areas for demonstrated, quantifiable financial losses associated with PFAS contamination that has emanated from Defence bases;
makes available free, individualised case management and financial counselling services to those affected by PFAS contamination;
implements legislation to ban the use of products containing PFAS;
ratifies the listing of PFOS under the Stockholm Convention; and
initiates an independent review of environmental regulation and administration of Commonwealth land.
1.11On 18 September 2019, the JSCFADT initiated an inquiry into the elimination and remediation of PFAS-related impacts in and around Defence bases under its annual report powers, continuing the work of the 2018 inquiry. This inquiry was undertaken by the PFAS Sub-committee. The sub-committee tabled progress reports in December 2019 and August 2020.
1.12In February 2020, the Australian Government tabled a response to the report of the 2018 inquiry. Out of the nine recommendations, the Government: agreed with one (Recommendation 3); noted four (Recommendations 1, 4, 5 and 9); agreed in part with two (Recommendations 2 and 6); and agreed in principle with two (Recommendations 7 and 8). The response also noted that the Government was:
… [working to] make the functions and activities of the PFAS Taskforce more publicly transparent and accessible … investing heavily in activities to address PFAS contamination, including PFAS investigations, containment, remediation, and research [and] establishing legislation and processes that will better protect the environment from further high-risk industrial chemical contamination.
1.13The JSCFADT committee's second progress report included recommendations directed to the Department of Defence (Defence) and the Australian Government, including that they should:
highlight the PFAS Taskforce's role in coordination and review of the national PFAS response through PFAS website changes;
improve information on Defence investment in PFAS remediation programs, research and related activities;
publish up-to-date maps showing investigation and remediation sites;
improve information about compliance with environmental policies and standards and national PFAS regulatory frameworks for timely remediation works in and around Defence bases;
improve public information about PFAS to ensure it is targeted and factual;
adopt participatory approaches to improve collaboration and involvement with the community;
fund research to better understand the mental health impacts of living with PFAS contamination to better inform government services and supports;
provide all people affected by PFAS with mental health supports and counselling services and regular updates;
prioritise assisting property owners and businesses in affected areas through compensation for financial losses associated with contamination emanating from Defence bases, including the possibility of buy-backs; and
expedite work to ban the use of, contain, and ultimately safely destroy, long chain PFAS-based firefighting foams, providing a timeline for this work.
1.14In January 2022, the Australian Government provided its response to the Second Progress Report. Out of the 10 recommendations, the Government: noted two (Recommendations 7 and 9); agreed in part with three (Recommendations 1, 2 and 8); and agreed in principle with five (Recommendations 3, 4, 5, 6 and 10). The response also outlined that:
Since tabling its response to the 2018 PFAS Inquiry in February 2020, the Government has continued to actively progress PFAS-related activities, despite the challenges presented by the COVID-19 pandemic. The Department of Defence has implemented additional communication channels with communities, and has worked to provide increased accessibility and enhanced content on information regarding PFAS management activities.
…
The Government has also continued work to improve chemicals management in Australia and deliver pragmatic guidance and policies, informed by the latest scientific knowledge.
1.15The committee's final report was tabled in the Senate on 30 March 2022. It recommended the Australian Government:
expedites the implementation of recommendations from previous committee reports;
reviews and adapt its engagement, communication and support to meet the evolving needs of communities affected by PFAS contamination;
engages the New South Wales Government to assess the case for re-establishing the community reference group process;
produces and publishes quarterly updates on the work of Commonwealth agencies on PFAS management;
works with states and territories to produce and publish regular updates;
increases national coordination of information sharing and investigation for airfield sites;
considers suitable options for people with high levels of PFAS, who are otherwise unable to donate blood or plasma, to make therapeutic donations as an intervention to reduce their levels of PFAS; and
provides funding for further longitudinal studies on potential adverse health effects for firefighters and members of PFAS-affected communities.
1.16A Government response has not yet been provided for this report.
Independent review of land uses around key Defence bases impacted by PFAS contamination (PFAS Independent Review)
1.17In September 2023, the Government commissioned an independent review of land uses around key Defence bases impacted by PFAS contamination, led by Mr Jim Varghese AM. The review process included a series of public hearings and stakeholder engagements with Commonwealth, state and local governments, affected communities, industry and academia. The consultation was also open to the public. The review focussed on communities around:
RAAF Base Williamtown, NSW
Swartz Barracks, Queensland
RAAF Base Tindal, Northern Territory.
1.18On 5 December 2024, the Australian Government released the PFAS Independent Review as well as the Government’s response to the review. The review made 19 recommendations, and the Australian Government agreed or agreed in-principle to 18 of the 19 recommendations.
1.19Recommendations of the PFAS Independent Review covered:
Improving national coordination (Recommendation 1);
better access to information for impacted communities (Recommendations 2–4);
transparency about PFAS management and remediation (Recommendations 5–8);
principles to support improved decision-making for land use and planning (Recommendation 9–10);
managing risk associated with land uses in PFAS management areas (Recommendations 11–15); and
Social, economic and natural capital precincts (Recommendations 16–19).
1.20Central to the Government's response to the PFAS Independent Review is the establishment of a PFAS National Coordinating Body. The coordinating body will be:
… led by a Commonwealth Minister with representation from all key Commonwealth portfolios including Health, Environment and Infrastructure, as well as relevant state and territory agencies… Initially this will involve the Commonwealth and New South Wales and expand to include other impacted jurisdictions.
State government parliamentary inquiries
1.21On 4 May 2021, the House of Assembly of the South Australian Parliament passed a motion requesting the Environment, Resources and Development Committee investigate and report on the appropriate and safe disposal of PFAS contaminated waste in South Australia (SA). The committee tabled an interim report on 4 February 2022, presenting early evidence and recommending the PFAS inquiry be re-established following the formation of the 55th Parliament in that state. In its interim report, the committee noted:
There is currently a process for a disposal pathway for PFAS contaminated waste in SA, but no licensed facility. PFAS contaminated waste is currently trucked interstate for treatment and/or disposal. A number of sites in SA need remediation and commercial transport and infrastructure projects within SA may be at risk of not proceeding if a local disposal pathway is not made available.
1.22On 17 October 2022, the ERDC of the 55th Parliament voted not to continue with or establish a new PFAS inquiry.
1.23On 25 September 2024, the New South Wales Legislative Council established the Select Committee on PFAS Contamination in Waterways and Drinking Water Supplies Throughout New South Wales, to inquire into and report on PFAS contamination in waterways and drinking water supplies throughout New South Wales. The committee was due to present its final report by 20 June 2025, however, the inquiry was extended on 25 September 2024 and is now due to report on 20 August 2025.
1.24The committee held its first hearing on Friday 6 December 2024. Chair of the committee, Ms Cate Faehrmann MLC said:
… the detection of PFAS, commonly known 'as forever chemicals' in some of the state's water catchments is extremely concerning. … this committee will meet and work with affected communities, experts, regulatory agencies and the whistleblowers who raised the alarm about PFAS in New South Wales.
1.25The NSW Parliamentary committee has since held three additional hearings across NSW, including in the Blue Mountains, Newcastle and NSW Parliament House Sydney.
Purpose of the interim report
1.26This report aims to provide a brief overview of PFAS in Australia and summarise some of the initial evidence received.
1.27As the committee's first report, this interim report has a focus on the community of Wreck Bay, where the committee was able to see firsthand some of the profound impacts that living in a community affected by PFAS can have. The committee has made two recommendations relating to Wreck Bay and intends to seek further evidence before making further recommendations.
1.28The committee has also received a large body of evidence on other matters. However, PFAS is a highly complex and ever-evolving issue. As the committee progresses its work, it will continue to gather evidence, examining the issues raised in greater detail, before reporting on a range of other matters and forming the further recommendations.
Structure of the interim report
1.29The report contains six chapters:
1.30Chapter 1 introduces the inquiry, outlines the structure of the report and details findings of previous inquiries relating to PFAS.
1.31Chapter 2 provides background information on PFAS, covering:
what are PFAS?;
PFAS as environmental contaminants;
human exposure pathways of PFAS; and
regulation of PFAS in Australia.
1.32Chapter 3 discusses the impact of PFAS on human health. The chapter provides an overview of the current government advice relating to PFAS and human health and recounts evidence received from PFAS contaminated communities, including the Wreck Bay Aboriginal Community in the Jervis Bay Territory and affected communities in Richmond and the Blue Mountains, both in NSW. Chapter 3 also outlines evidence regarding the mental health impacts of living with high PFAS exposure.
1.33Chapter 4 considers PFAS in Australian drinking water. The chapter provides information on the current and updated draft Australian Drinking Water Guidelines (ADWG). The chapter details evidence from submitters and witnesses about the ADWG and compares Australia's guidelines with international jurisdictions. The chapter then details the status of PFAS testing amongst water suppliers in Australia, and outlines PFAS treatment technologies, including their current limitations. The chapter also includes two case studies of communities impacted by PFAS contamination in their water supply—the First Nations community of Wreck Bay and the Blue Mountains community.
1.34Chapter 5 describes active PFAS remediation programs currently directed by the Commonwealth, including:
Defence PFAS Investigation and Management Program;
Airservices' National PFAS Management Program;
PFAS Airports investigation Program; and
state-level management and remediation programs.
1.35Chapter 5 also provides an overview of remediation techniques and technologies, and presents a case study of remediation at Wreck Bay.
1.36Chapter 6 considers the social and cultural impacts of PFAS contamination, particularly for First Nations communities, with Wreck Bay as a case study. It looks at:
cultural loss and disconnection;
views on the community's class action seeking compensation for cultural loss from the Commonwealth;
communication and consultation in relation to the investigation and remediation programs; and
the community's desire for self-determination and to play a meaningful role in addressing the impact of PFAS contamination on their lands and waters.
1.37Noting the substantial program of work still to do, the committee is recommending it be reappointed in the 48th Parliament in order to facilitate further hearings and support consideration of these complex matters.
1.38The committee recommends that the Senate reappoints the Select Committee on PFAS (per and polyfluoroalkyl substances) in the 48th Parliament, granting access to the evidence and documents collected during the 47th Parliament.