Distr.
RESTRICTED
FCCC/IDR.1/AUS
14 December 1995
ENGLISH ONLY
AUSTRALIA
Report on the in-depth review of the national
communication of Australia
Review team:
Ibrahim Abdel Gelil, Egypt
Ivan Mojik, Slovakia
John Moss, United Kingdom of Great Britain and Northern
Ireland
Ria Kemper, International Energy Agency
Aniket Ghai, UNFCCC secretariat
Lucas Assunção, UNFCCC secretariat,
Coordinator
GE.95-
Under Articles 4 and 12 of the Convention. Parties are requested
to prepare national communications on their implementation of the
Convention. Guidelines for the preparation of national communications
and the process for the review were agreed on by the
Intergovernmental Negotiating Committee for a Framework Convention on
Climate Change, by its decisions 9/2 and 10/1, and 3/CP.1 (see
FCCC/CP/1995/7/Add.1) In accordance with these decisions, a
compilation and synthesis of the 15 national communications from
Annex I Parties was prepared (A/AC.237/81).
When reviewing the implementation of the Convention of the
Parties, the subsidiary bodies and the Conference of the Parties will
have this report available to them in English as well as the summary
of the report in the six official languages of the United Nations.
(These bodies will also have before them the executive summary of the
first national communication of Australia and country-specific
information drawn from a compilation and synthesis report covering
all countries that have submitted national communications.)
Summary(1)
1. The in-depth review was carried out between June and
October 1995 and included a country visit by the team from 26 to 30
June 1995. The team included experts from Egypt, Slovakia, the United
Kingdom of Great Britain and Northern Ireland and the International
Energy Agency.
2. Australia is in many respects unique; it is a continent
in the southern hemisphere with a very low population density and
with various ecosystems quite different from those of other Annex I
Parties. It has a young dynamic economy in which exports,
particularly of primary and energy goods, play a major role. There
has recently been a clear trend towards integration in the world
economy through an increase in trade in manufactured products and
enhanced economic cooperation with the Asia and Pacific region.
3. The team recognizes the complexity of Australia's
system of government where the federal Government has limited
constitutional powers to implement measures, and where progress
depends on establishing partnerships with state and local
governments. In the light of this fact, it is relevant to note the
institutional structure established under the leadership of the
Council of Australian Governments to implement commitments under the
Convention. Australia, as the world's largest coal exporter and with
80 per cent of electricity generated with coal, realizes that
energy-related mitigation measures could impact on the national
economy and its trade balance. The team noted the broad range and
quality of a number of climate-related research activities being
carried out in the country. Equally important has been research in
the pure and applied sciences on climate change issues, including
expected impacts of and adaptation to climate change. This clearly
indicates that Australia is in a position to make important
scientific and research contributions to the efforts of other Parties
to the Convention. In a way, the first national communication does
not reflect the thoroughness of efforts being carried out in
Australia. This fact, however, was overcome during the review, when
substantial additional information was made available.
4. The country has developed its own greenhouse gas (GHG)
inventory methodology based on the Intergovernmental Panel on Climate
Change (IPCC) default methods and emission factors. In preparing it,
a bottom-up approach was adopted, and in many areas emission
factors were developed to reflect specific Australian conditions,
often based on actual field measurements. Six working groups were
created and have produced very detailed inventory work which could be
an important contribution to the IPCC process and to other Parties
with similar conditions located in the southern
hemisphere.
5. In developing its response strategy, Australia is
applying a dynamic and phased process, focusing up to now on
no-regrets measures. Concerning the major sources of carbon
dioxide (CO2) emissions, Australia has decided to direct
measures in particular towards fuel combustion and fugitive fuel
emissions, which account for roughly 70 per cent of national
CO2 emissions. Key elements in the strategy to mitigate
these emissions include the structural reform of the electricity
sector, the removal of barriers to interstate trade and use of gas,
the promotion of co-generation, the stimulation of fuel switching,
and increased use of renewables and natural gas. In end-use sectors,
key measures relate to the continuing improvement of energy
efficiency, including voluntary agreements with industries, appliance
labelling and the setting of minimal energy standards.
6. In the land use and forestry sectors, which account for
30 per cent of current CO2 emissions, measures focus on
sustainable land management (grassland conversion and managed
forests), monitoring and control of land clearing and enhancing
CO2 uptake, in particular through the One Billion Trees
Programme.
7. The "without measures" scenario indicates a 14 per cent
increase in 1990 GHG emissions by 2000. If, however, the current rate
of implementation of measures introduced in the National
Greenhouse Response Strategy (NGRS) is sustained, an increase of
7 per cent in 1990 emission levels is projected for 2000. Subsequent
to submission of the national communication in 1994, the federal
("Commonwealth") Government announced in
March 1995 the Greenhouse 21C programme, containing
a range of new mitigation and sink enhancement measures. It is
estimated that, if fully implemented, the programme would further
reduce the increase in GHG emissions by 2000 to 3 per cent above 1990
levels. At the time of the review visit, these additional measures
were still at the planning stage.
8. In preparing the projections of GHG emissions for 2000
a bottom-up approach was also used, with sectoral projections
generated from a detailed analysis of individual sectors based in
general on scenarios of low rates of implementation. For most
sectoral projections, sensitivity analysis to key assumptions, such
as world prices of energy and export goods and the recurrence of
drought, was carried out, and uncertainty levels were clearly
described. The team felt that the thoroughness and consistency
in building up emission projections from sectoral analyses to an
aggregate level for the year 2000 could be very useful as a reference
for other Parties. The team noted the progress made in the One
Billion Trees Programme, as well as the fact that the programme
is expected to bring about 45 per cent of total CO2
reductions under the NGRS. Other measures in the NGRS expected to
result in significant reductions include the introduction of natural
gas in energy production, promotion of
co-generation, improved land management and the waste
minimization strategy. The ongoing structural reform of the
electricity sector is also expected to generate emission reductions
as compared with the "without measures" scenario, although its
specific effects have not been quantified. Under the Greenhouse 21C
programme, most of the reductions (some 70 per cent) are expected to
come from the introduction of cooperative agreements with industry.
These agreements aim at improving energy efficiency and assessing
opportunities for emission abatement in industrial sectors.
Greenhouse 21C also aims at expanding support for the gas market
reform and existing sink enhancement programmes.
9. The team noted that Australia's ratio of official
development assistance (ODA) to gross national product (GNP) has
decreased to 0.33 per cent in 1995, although in absolute terms the
total level of ODA for 1994/1995 has increased to roughly US$1,069
million.(2) The Government has stated
its commitment to increase this ratio in the medium term to 0.40 per
cent, and its intention to reach the 0.70 per cent level in the
longer term. Australia has made contributions to the financial
mechanism under the Convention and has provided significant
additional support to developing countries through multilateral,
bilateral and regional programmes, mainly in the Asia and Pacific
region. These programmes include technology development and encourage
environmentally sound private sector development through creative
incentive schemes.
I. INTRODUCTION AND NATIONAL CIRCUMSTANCES
10. Australia ratified the Convention on 30 December 1992.
The secretariat received Australia's first national communication on
19 September 1994. The in-depth review of the national communication
was carried out during the period June to October 1995, including a
country visit from 26 to 30 June 1995 to Canberra. The review team
consisted of Mr. Ibrahim Abdel Gelil (Egypt), Mr. Ivan Mojik
(Slovakia), Mr. John Moss (United Kingdom), Ms. Ria Kemper
(International Energy Agency), Mr. Aniket Ghai (UNFCCC secretariat)
and Mr. Lucas Assunção (UNFCCC secretariat,
Coordinator). In the course of the visit, the team met
representatives of several federal (Commonwealth) departments as well
as of state governments, members of the scientific and academic
community and several representatives of non-governmental
organizations.
11. A number of historical and geographical factors
are important when considering Australia's climate change response.
Australia is a very large country composed of eight self-governing
states and territories [Victoria, New South Wales, Queensland,
Western Australia, South Australia, Tasmania, the Capital Territory
and the Northern Territory], with correspondingly large distances
between urban centres and a very low population density of 2.5
inhabitants per square kilometre. In comparison with most member
countries of the Organisation for Economic Co-operation and
Development (OECD), it has a young economy with the majority of its
trade partners outside the OECD and with industrial development
having taken place only since the end of the Second World War. As a
result, land clearing, for example, has not yet reached the level of
other OECD countries.
12. Certain structural features of Australia's
economy are also pertinent. The country's comparative
advantage in fossil fuel and other minerals is reflected in its trade
patterns. It is the world's largest coal exporter, the
third largest energy exporter among OECD countries and is also
heavily dependent on the export of energy-intensive processed primary
products, although there has been a recent trend to increase trade in
value-added manufactured products. In this regard, the team took
special note of the prevailing focus on economic cooperation with
countries in the Asia and Pacific region as part of an overall effort
to integrate Australia in the global economy. While the energy and
energy-intensive sectors are sensitive to some policies and measures
to mitigate climate change, agriculture - a sector which is
particularly vulnerable to the impacts of climate change - also plays
a key role as a major source of exports (10 per cent of total exports
in 1990). No nuclear power is generated in the country, and there are
very limited possibilities for hydroelectric power generation, except
in Tasmania. The country shows a relatively high level of
energy-related carbon dioxide (CO2) emissions per capita
of 16 t, compared to 12 t for members of the OECD and 8 t for
OECD-Europe, as well as a level of energy-related CO2
emissions per unit of gross domestic product (GDP) which is 60 per
cent higher than the OECD average.
13. Constitutional arrangements in Australia are
complex; the government system operates at three levels, with powers
shared at the federal level (the Commonwealth Government), at the
level of states and territories and at the local level. Jurisdiction
and powers for implementing policies are divided between these three
levels of government. The Commonwealth Government has jurisdiction
over, inter alia, setting energy taxation arrangements,
international trade policy, industrial policy, wage policy, foreign
investment guidelines, funding of research institutes and payments to
states and territories, including infrastructure programmes.
Governments of states and territories have responsibility for land
management, the development of energy and other natural resources,
the provision of energy infrastructure, the setting of certain energy
prices and taxes, the establishment and enforcement of a range of
environmental regulations, environmental assessment procedures and
monitoring and enforcement of laws. Local government also plays an
important role in environmental matters in Australia, particularly in
relation to urban planning, building control, land management, and
waste management. Australia has stressed the role of national
partnerships in dealing with climate change, between levels of
government and between government and non-government actors, both in
the national communication, the NGRS and in a recently released
addition to the NGRS by the Commonwealth Government, entitled
"Greenhouse 21C", which is considered further in chapter V of this
report.
14. In the light of Australia's system of government, the
institutional and organizational structure for dealing with
matters related to climate change plays a critical role. Climate
change issues are addressed at the political level by the Council of
Australian Governments (COAG), formed by the Prime Minister of the
Commonwealth Government, the heads of governments of states and
territories and the President of the Australian Local Government
Association. The Intergovernmental Committee on Ecologically
Sustainable Development (ICESD) is a committee of senior officials
from all governments in Australia which reports to COAG. It addresses
cross-cutting complex environmental issues, including monitoring the
implementation of the NGRS and providing recommendations for its
further development. The ICESD is assisted in this role by a
Greenhouse Working Group, comprising officials from all levels of
government and by the National Greenhouse Advisory Panel. Debate and
decision-making on climate change-related issues also takes place in
other forums. A National Greenhouse Gas Inventory Committee was
established to draw up Australia's greenhouse gas inventories.
Ministerial councils on energy and on environment bring together the
relevant ministers from states and territories to discuss pertinent
issues and to set common state and territory policy.
II. INVENTORIES OF ANTHROPOGENIC EMISSIONS AND
REMOVALS
15. Pursuant to Article 12.1(a) of the Convention, the
national communication provides an inventory of emissions by sources
and sinks for 1990 of CO2, methane (CH4),
nitrous oxide (N2O), the precursors carbon monoxide (CO),
nitrogen oxides (NOX) and non-methane volatile organic
compounds (NMVOC), and perfluorocarbons (PFC). Although the data were
presented on a gas-by-gas basis as required, the information included
in the national communication did not fully meet transparency
requirements in that disaggregated activity data and emission factors
were not reproduced. Supporting documentation, referenced in the
communication, was however provided to the team during the country
visit, giving full details and enabling the inventory to be
reconstructed. Australia has used its fiscal year as the base
period, which ran from 1 July 1989 to 30 June 1990. In this
respect, Australia deviated from the IPCC recommendation because most
inventory data are provided by government departments which only have
data based on the fiscal year. Moreover, these government bodies have
commitments in the NGRS to produce greenhouse gas inventories based
on the official fiscal year. In the recently announced Greenhouse 21C
programme, the Government committed US$2.2 million ($A3 million) for
inventory compilation, expected to cover costs for approximately
three years. Emissions by gas were aggregated using 1992 global
warming potentials (GWPs).
16. The 1990 inventory shows that Australia emitted 572
000 Gg of CO2 equivalent (1992 GWP values), of which 73.4
per cent is carbon dioxide. CO2 emissions from
energy production and use account for 67 per cent of the total.
Uncertainty in the levels of these emissions is low. Forest clearing
and on-site burning - the second largest source of CO2 -
result in net emissions of 156,296 Gg CO2 per year.
Uncertainty in calculations, however, suggests that real emissions
could range from 25 per cent to 200 per cent of the reported value.
The high degree of uncertainty from land-use estimates stems from
deficiencies in data on vegetation cover and gaps in scientific
understanding of biological processes. The issue of biomass burning
is of key importance in Australia. Deliberate burning is used as a
land management tool, as has been the practice for thousands of
years, to reduce the total biomass expected to burn through natural
processes in potentially catastrophic bushfires. The team took note
of the Government's view that the question of whether or not to
define such emissions as anthropogenic needed further consideration.
Australian officials pointed out that the IPCC guidelines "somewhat
inconsistently" recommend the exclusion of CO2 emissions
from biomass burning in the inventory, but the inclusion of emissions
of other gases arising
from this activity. The quantity of CO2
emissions from deliberate fires in Australia, although not included
in the inventory, was reported to the review team as ranging from
290,000 to
917,000 Gg a year. Inventory data for 1988, with the total
GHG emissions slightly lower than the 1990 level, were also provided
during the visit.
17. The methodology underlying the compilation of the
greenhouse gas inventory is based on IPCC guidelines, but has been
enhanced considerably to cater for Australian conditions, as default
emission factors in particular were felt to be substantially
different, in some cases up to six times larger than national
estimates. Emission factors specific to Australia were derived, often
based on field measurements. Research was carried out through working
groups set up to develop the methodologies in eight sectors, six of
which were completed by the time the national communication was
submitted. The methodology workbooks of the other two groups - on
industrial emissions and solvent use and on landfill, wastewater and
other waste activities - will be available shortly. Emissions
calculated according to these methodologies are not expected to
differ significantly from those reported in the national
communication based on IPCC defaults. Another deviation from the
reporting guidelines refers to emissions for solvents. These were not
estimated in the national communication and will not be estimated
after the last two workbooks are finalized, since, as before, these
emissions are considered to be insignificant in Australia.
18. Methane emissions contribute 22.9 per cent of
total GHG emissions (using 1992 GWP values), with over 50 per cent
coming from the agricultural sector, especially enteric fermentation.
This share of methane in total emissions is considerably higher than
in most OECD countries. When calculating emissions from livestock,
the Australian methodology has improved on the IPCC default factors,
which consider only the total number of animals. The Australian
methodology examines the effect of varying feed quality and quantity,
animal size and animal type, thus broadening the scope of policies
and measures that can be adopted to reduce emissions.
19. Nitrous oxide emissions contribute 3.1 per cent
of GHG emissions, with 87 per cent originating in the agricultural
sector, in particular from animal wastes, use of fertilizers and
biomass burning.
20. Inventory data were also provided for other
gases, including the precursors NOx, CO and NMVOCs,
and PFCs. In accordance with the approved reporting guidelines,
emissions from international marine and aviation transport
fuels were reported separately and were not included in total
national emissions.
21. During the visit, Australia made several
recommendations for improving the default IPCC methodology for
inventory compilation, which were identified during the process of
developing its own methodology. These recommendations ranged from
aspects related to reporting guidelines, data collection and
uncertainty estimates to specific technical issues regarding
individual sectors of the IPCC methodology. The secretariat has drawn
these concerns to the attention of the IPCC secretariat.
III. POLICIES AND MEASURES
22. Australia's national "interim planning target", while
not legally binding, is "to stabilise greenhouse gas emissions based
on 1988 levels by the year 2000 and to reduce these emissions by 20
per cent by the year 2005 ... subject to Australia not implementing
response measures that would have net adverse economic impacts
nationally or on Australia's trade competitiveness, in the absence of
similar action by major greenhouse gas producing countries." This
provides the basis for the NGRS, adopted by the Commonwealth
Government and state governments in 1992. The strategy embraces a
range of principles, measures and sectoral objectives at
Commonwealth, state and local levels which are directed towards the
national interim planning target, as well as providing the main
vehicle for the fulfilment of Australia's commitments under
Articles 4 and 12 of the Convention. Australia sees the process of
developing the strategy as dynamic and phased, with progress being
measured against the yardstick of the "interim planning target". In
addition, ICESD is to undertake a major review of NGRS in 1996. In
adding any new measures to the strategy, governments will assess
their suitability for inclusion in NGRS on the basis of a number of
criteria including their environmental impact and possible
implications for Australia's international competitiveness. Only
"no regrets" measures are currently being adopted.
23. The team found that in general the national
communication did not provide sufficient information to assess the
status of implementation of individual policies and measures in
different sectors. Nor was it possible to assess, on the basis of the
communication, their specific impact in terms of climate change
mitigation.
24. Extensive supplementary documentation to clarify these
points was, however, provided during the review visit. The team
remarked that such additional information should, to the extent
possible, be incorporated in future communications. In light of this
additional information, there was a consensus that the process for
monitoring policies and measures described in the national
communication was reliable and transparent. The team
recommends that progress in implementing these measures be
reported in detail in the next communication.
A. Carbon dioxide
25. Around 40 per cent of all CO2 emissions was
generated in 1990 in the energy and transformation sectors.
Another 24 per cent of total CO2 was emitted in the
industrial and transportation sectors. Fossil fuels provide
for most of the energy needs, with approximately 80 per cent of
electricity currently being generated with coal. The NGRS gives
special emphasis to the energy sector in the first phase of measures
implemented, given its importance for overall CO2
emissions and the potential for "no regrets" measures in this area.
The national communication describes a wide range of measures
envisaged or undertaken for the energy sector, but lacks detailed
information on their implementation.
26. Structural reform of the electricity sector is
a key policy objective. Following a decision by COAG, states are
restructuring their electricity industries to open the market up to
competition within and across state boundaries, by separating
generation from transmission and distribution. Progress on
implementation varies from state to state and the target date for
commencement has been put back from July 1995 to July 1996.
Completion of the market reform, accompanied by increased involvement
of the private sector, removal of subsidies, creation of a pricing
structure reflecting full costs, increased interstate trade,
non-discriminatory access to the grid and open entry to
new sources of generation is expected to produce substantial energy
efficiency gains and hence environmental benefits. The impact of the
structural reform on the level of CO2 emissions from the
energy sector is expected to be substantial, although potential
reductions have not been quantified. The team recommended that more
information be provided on actual emission reductions as these
measures are introduced.
27. A parallel decision to move towards a restructured
natural gas market is also being implemented and a more
competitive gas market is envisaged by July 1996. The Government
expects these market reforms to produce a further increase in the use
of natural gas, in particular in electricity generation and in
industrial co-generation. It is hoped that 16 per cent of primary
energy consumption will be provided by natural gas by 2000. It has
been estimated that the net CO2 impact of each megawatt of
co-generation capacity installed equals a reduction of 5.2 Gg.
The new co-generation capacity already committed or identified as
potentially economic totals about 1000 megawatts, indicating a
potential reduction of 5200 Gg of CO2. A further impetus
to natural gas use is given in the new Greenhouse 21C proposals (see
chapter V below). While the national communication does not specify
the reductions of CO2 expected through increased use of
natural gas, the Greenhouse 21C programmes anticipate a possible
reduction of 2000 Gg of CO2 emissions by 2000.
28. Replacement of fossil fuels by non-carbon renewable
energy sources, such as hydroelectric power, solar and wind
energy, results in an immediate reduction of CO2
emissions, while the use of biomass on a sustainable basis can
produce net reductions. While there is only limited potential for
further expansion of hydroelectric power in the national strategy,
solar energy is more promising and has already become economically
viable in certain niche markets, for example, solar water heating in
households and stand-alone photovoltaic systems in remote areas.
Although a target has not been set for the use of renewable sources
of energy, there is a range of instruments to create financial
incentives for the use of renewable technologies, including tax
exemptions, bonus buy-back rates for electricity produced from
renewable energy sources. It is estimated that the average impact of
each megawatt generated through small hydroelectric power plants,
landfill and biomass projects corresponds to a reduction in emissions
of about 6.1 Gg of CO2 per year. Given the status of
implementation of hydroelectric power, landfill and biomass projects
and their total economic potential of 200 megawatt by 2005, a
reduction of 1220 Gg of CO2 per year could be expected by
that time. The potential emission reductions through the promotion of
wind and solar energy projects have not been estimated.
29. The residential and commercial buildings
sectors together account for only 2 per cent of CO2
emissions associated with energy use and 20 per cent of total final
energy consumption. Measures applied in these sectors aim at the
continuing improvement of efficiency in energy use, key measures
being labelling and introduction of minimum performance standards of
electrical efficiency; the National House Energy Rating Scheme; the
Energy Audit programme for private, government and commercial
buildings; the National Commercial Building Energy Code; and
mandatory insulation standards for new houses. There have, however,
been some delays in their adoption and implementation. Domestic
appliance labelling has been introduced by most Australian states.
Agreement on minimum energy performance standards for certain
domestic appliances has only recently been reached by Australia and
New Zealand and expansion beyond refrigerators, freezers and
electrical storage heaters is currently being examined. Australia
expects CO2 reductions of nearly 2000 Gg by 2000 from the
continued application and expansion of these measures. Special
efficiency targets set for new Commonwealth Government buildings have
been in operation since 1992. While these measures cannot be expected
to achieve substantial early results because of the extended turnover
time, they should eventually make a significant contribution to the
climate policy. Overall, the Government expects a reduction of 2500
Gg from the envisaged response measures in the household sector and a
contribution of 1000 Gg from the commercial sector by 2000.
30. In the industrial sector, voluntary measures
are an important component of the response strategy, aiming mainly at
improving energy efficiency. Although significant results have been
achieved so far in the aluminium industry, with a 2 per cent energy
efficiency improvement reached over the last five years, the
non-ferrous sector in Australia accounts for a much larger share of
CO2 emissions than in other OECD countries. Furthermore,
the Australian Government has put in place additional incentive
schemes to encourage industry to invest in new plant and equipment.
These measures can be expected to increase indirectly the uptake of
new and more energy efficient technology. The direct effects of these
measures on CO2 emissions, however, have not been
estimated. Altogether, the Australian Government projects a reduction
of CO2 emissions by 2000 of 1100 Gg as a result of the
full implementation of these response measures in the industrial
sector. Major additional improvements in energy efficiency in
industry are expected over the next five years as a result of
cooperative agreements being promoted under the "Greenhouse 21C"
initiative (see chapter V).
31. Contrary to the usual view that Australia has high
emissions because of the dispersion of its population and size of its
territory, the contribution of the transport sector to total
CO2 emissions is lower than the average for OECD
countries. Despite the fact that gasoline prices are the third
cheapest in OECD countries, the number of private cars is believed to
be approaching saturation, with nearly 0.52 cars per person. The only
increases in demand are expected in domestic aviation for tourism and
in truck transportation as economic activity increases. Government
proposals and measures aimed at reducing CO2 emissions in
the transport sector include a limited rail reform, road upgrades,
road transport reform, technical innovation, control of vehicle
emissions, use of alternative fuels, urban planning, improving the
efficiency of public transport and private car use, and specific
measures for the government fleet. A total reduction of 3000 Gg of
CO2 is expected from the proposed measures in the
transport sector by 2000. In addition to excise tax exemptions to
promote switch to natural gas, liquified petroleum gas (LPG) and
ethanol fuels, change in driver behaviour and modal shifts are seen
as the most promising among the response measures.
32. Land use change and forestry sectors in
Australia are responsible for a disproportionally large amount of
CO2 emissions, estimated - albeit with a high degree of
uncertainty - at around 30 per cent of total CO2
emissions. Improving the effectiveness and coverage of government
controls on land clearing is the central approach to minimize
CO2 emissions from this source. A system for granting
permits for clearing land for pasture and, in some cases, permits
for deliberate burning of forests and bush have been used as a
means of controlling land clearing. Responsibility rests with state
and local governments but regulations vary from state to state.
Monitoring of results has been particularly difficult because permits
issued do not necessarily correspond to amount of land actually
cleared. This may occur due to illegal land clearing and the fact
that some permit holders may not clear their land immediately.
Furthermore, the scientific uncertainties involved and considerable
difficulty in primary data collection make it difficult to quantify
the potential reductions in CO2 emissions from improved
management of land clearing in Australia. However, funds have
recently been allocated to introduce remote sensing to assess
the extent of land clearing and monitor deliberate burning.
33. The Australian Government in 1989 introduced the
National Landcare Programme aimed at an integrated approach to
natural resource management. Landcare programmes, which are
characterized by cooperative action between all levels of government,
the community and the agricultural sector, promote improved soil and
pasture management techniques to minimize carbon loss from
cultivation. The Government expects significant contributions to
CO2 abatement in particular from two programmes - improved
tillage systems (with an envisaged CO2 reduction of 2500
Gg by 2000) and additional hardwood plantation (providing a
CO2 reduction of 400 Gg by 2000).
34. The One Billion Trees Programme is the main
initiative launched under the umbrella of the National Landcare
Programme. (Other initiatives address grassland conversion and
managed forests.) Although originally conceived to promote soil
conservation, it has increased considerably the sink capacity in the
country. It was estimated that by the time of the country visit
approximately 550 million trees had been either planted or protected
and that another 100 million trees will be established or protected
each year until 2000. The CO2 uptake achievable from
implementing the One Billion Trees Program is estimated at
124,000 Gg, by far the largest single contribution to
the country's mitigation efforts. The Greenhouse 21C initiative
proposes to expand this sink enhancement programme and to address the
programme's high vulnerability to drought and bushfires. If
implemented, the expanded programme would generate an additional
annual CO2 uptake of 2000 Gg by 2000.
B. Methane
35. Methane emissions in Australia are proportionally
higher than in most OECD countries as a result of the large share of
the livestock industry in the national economy. Methane emissions in
Australia originate mainly from enteric fermentation in animals,
landfills and fugitive emissions from coal mining and oil and natural
gas production and distribution systems. Expected reductions in
methane leakage from the rehabilitation of low pressure gas
pipelines are modest, while black coal production is expected to
increase by over 45 per cent between 1990 and 2000. Methane from
certain sources, principally coal mining and landfill sites, has been
used to a certain extent as a commercial energy source. Thirty per
cent of expected reductions in methane (175 Gg) will result from
technological advancement in animal breeding, improved efficiency in
livestock production and animal waste processing systems. The largest
reduction (51 per cent, or 300 Gg) is expected to come from the
community-based Waste Minimization Strategy which aims not
only at drastically reducing the amount of waste disposed of in
landfills, but also at reducing domestic per capita waste by 50 per
cent by 2000. Only limited information was made available on the
status of implementation of these measures and their effects have
only been estimated partly, owing to difficulties encountered in
technical measurements.
C. Nitrous oxide and other gases
36. Response strategies with regard to land clearing can
be expected to have a similar effect on N2O emissions.
Australia's use of nitrogenous fertilizers per hectare is very low,
allowing little scope for further reduction. The most significant
measure aimed at reducing N2O emissions promotes improved
efficiency of nitrogen uptake from legume nitrogen and nitrogen-based
chemical fertilizers. This measure is expected to have a limited
effect on total N2O emissions, which are expected to grow
by some 10 per cent between 1990 and 2000. Very little information
has been provided on the status of implementation of measures to
reduce other sources of N2O emissions.
D. Perfluorocarbons
37. The major source of these greenhouse gases is the
aluminium industry. The Australian aluminium industry has in the past
made considerable technological improvements, resulting in an almost
70 per cent reduction in perfluorocarbon emissions since 1990.
Aluminium smelters continue to work towards further improvements,
mainly through modified processing, training and research activities.
A reduction of projected emissions from
4400 Gg to 1500 Gg of CO2 equivalent is
expected, although emission estimates and emission factors have so
far a high uncertainty level.
IV. PROJECTIONS AND EFFECTS OF POLICIES AND
MEASURES
38. In accordance with Article 4.2(b) of the Convention,
Australia presented projections of CO2, CH4,
N2O and PFC emissions and CO2 removal levels
for the year 2000. Their effect was aggregated using 1992 GWPs with a
100-year time horizon. Both with and without measures scenarios were
prepared. Removals of CO2 by sinks were clearly indicated
and were listed separately. The communication on its own, however,
did not provide enough information for a full understanding of the
projections analysis. Information on the effects of measures was
restricted to aggregate sectoral figures presented by gas, and was
not provided for individual measures as recommended. During the
country visit, however, these gaps were satisfactorily filled by
supplementary documentation and presentations by national experts.
39. The background documentation presented to the team
described detailed sectoral analyses that were used to assess the
effects of individual measures, mostly using a
bottom-up approach. The projections considered only
measures already being implemented. Although the background studies
examined scenarios of high, medium and low rates of implementation of
policies, the projections that appeared in the national communication
were based in general on the scenarios of low rates of
implementation. The studies were conducted using a common set of
plausible key "ground rule" assumptions on economic and
population growth and expected structural change, as well as
assumptions specific to each sectoral analysis. For most sectoral
projections, sensitivity analysis of key assumptions, such as world
prices of energy and export goods and the occurrence of drought, was
carried out, and uncertainty levels were explicitly described. For
some sectors such as land clearing, the activity data used in the
projections have a high uncertainty level owing to difficulties in
basic data collection and monitoring. The team was informed that the
methodologies used in the projections analysis were being refined to
reflect improved data and enhanced understanding of the processes.
The team felt that the thoroughness and consistency of work
being done in building up emission projections from sectoral analyses
to an aggregate level for the year 2000 could be very useful as a
reference case for other Parties. No adjustments for temperature
fluctuations in base years or electricity imports were made in the
projections.
40. The "without measures" scenario projects an
increase of 14 per cent in total GHG emissions by the year 2000
(using 1992 GWPs with a 100-year time horizon). The largest increase
arises from CO2 emissions associated with energy
production and transformation, and industrial processes such as iron,
steel, aluminium and cement production. The assumptions underlying
the "without measures" scenario are clearly mentioned in the
background document, and include, inter alia, population
growth, world prices and autonomous energy efficiency. An increase
of 7 per cent in total GHG emissions by 2000 compared with 1990
levels is projected if measures already undertaken continue to be
implemented at the current rate.
V. PROJECTED PROGRESS IN GREENHOUSE GAS MITIGATION
41. In March 1995, the Commonwealth Government released a
programme entitled Greenhouse 21C, which describes measures in
addition to those mentioned in the national communication relating to
further climate change issues. This new package of measures is
expected to lead to increased reductions in GHG emissions, although
it still falls short of stabilization. If fully implemented, these
measures are projected to lead by 2000 to a GHG emissions level 3 per
cent above the 1990 level. A proposal to include an environmental
levy on CO2 was not pursued on the basis of the support
for a voluntary industry (cooperative agreements) approach from which
significant emissions reduction are anticipated. The team was not
provided with any analysis of emission projections for this package
of measures and was informed that most of the measures were still to
be refined by the Commonwealth Government, in coordination with the
states, territories and local governments. For that reason, effects
of the new measures could only be presented at a very aggregate level
at the time of the visit. Financial commitments totalling some
US$45.3 million ($A 63 million) have already been made by the
Commonwealth Government to implement this range of measures.
42. As in the national communication, Greenhouse 21C
underlines the importance of the partnership approach in
reducing GHG emissions, and relies heavily on cooperative
agreements between the Commonwealth Government and individual
companies to achieve over 70 per cent of emission reductions (in
CO2 equivalent) expected from the new package. States,
territories and local governments will also be involved in
cooperative agreements. These agreements aim at promoting best
practice and achieving additional energy efficiency gains. The
process of liberalization and reform in the domestic gas market will
be accelerated, with the Government aiming at making natural gas
account for at least 20 per cent of primary energy consumption by the
year 2000 compared to the current 9 per cent, thus achieving a
reduction of 2 000 Gg of CO2. The One Billion Trees
Programme will be expanded, increasing the projected uptake of
CO2 by 2 000 Gg. Employment programmes for increased tree
planting are projected to result in an uptake of CO2 of 1
000 Gg. The ongoing deregulation and liberalization process in the
electricity market is expected to lead to increased energy
efficiency, more economical use of domestic energy resources and a
gradual integration of climate change concerns in the power
generation sector. Greenhouse 21C also includes Commonwealth support
for an innovative programme to improve public transport and plans for
enhanced integrated land use to reduce reliance on private motor
vehicle travel. Car fuel efficiency labelling and
advertising is expected to bring about to a reduction of 450 Gg of
CO2 equivalent.
43. In accordance with decision 2/CP.1 of the Conference
of the Parties (FCCC/CP/1995/7/Add.1), Australia confirmed its
intention to submit a second national communication in
1997.
VI. EXPECTED IMPACTS OF CLIMATE CHANGE
44. During the country visit, information contained in the
national communication was supplemented with details of ongoing
efforts to assess the expected impacts of climate change, in
particular with regard to climate change vulnerabilities and to
climate change research and observation. A range of scenarios of
future climate change has been analysed - covering precipitation,
climate extremes, duration of snow cover and sealevel rise. They
include estimates of possible impacts on ecosystems and on
socio-economic variables, the latter focusing on agriculture,
fisheries and forestry, coastal zones, infrastructure and human
health. During the visit, the particular vulnerability of certain key
economic sectors was emphasized. For example, Australia is highly
dependent on the agricultural sector, whose normal vulnerability to
climate extremes has been vividly illustrated by three consecutive
years of the El Niño-Southern Oscillation phenomenon that
periodically affects Australia. The resulting drought has inflicted
serious economic loss on the agricultural sector in recent years,
followed by consequent population movements. In its 1995-1996
economic outlook, the Government estimated that, owing to the severe
drought which affected most of eastern Australia in 1994 and 1995,
farm production, in particular grain crops, fell drastically. The
decline in farm production may have lowered GDP growth in 1994 and
1995 by about 1 per cent.
VII. ADAPTATION MEASURES
45. The national communication describes activities
undertaken to assess adaptation measures, including the
identification of possible adaptation strategies in agriculture,
coastal zone management and human health. During the country visit,
the review team was informed that specific action was already under
way to consider adaptation responses to climate change, in particular
in coastal zone management. For example, information exchange occurs
between local councils on adaptation, and, in some instances, the
possible effects of climate change are taken into consideration when
replacing infrastructure in coastal areas. While the communication
does not explicitly refer to cooperation in preparing for adaptation
under Article 4.1(e), the review team was informed that Australia
recognizes the necessity to include capacity building for adaptation
in its international cooperation efforts.
VIII. FINANCIAL ASSISTANCE AND TECHNOLOGY TRANSFER
46. Australia made contributions to the pilot phase of the
Global Environment Facility (GEF) of US$21.6 million (or $A 30
million), which included the co-financing of a project on climate
change. Its contribution to the first replenishment of the GEF
amounted to over US$30.2 million ($A 42 million). This contribution
was reported to the team as being "new and additional", indicating an
increase in the funds for international environment-related
programmes, without diversion of funds from existing international
assistance programmes.
47. Australia has also provided significant additional
support to developing countries through multilateral, bilateral and
regional programmes, mainly in the South Asia and Pacific region.
Programmes comprise adaptation, mitigation and capacity-building
projects, as well as the development of national GHG inventories and
IPCC activities.
48. The ratio of official development assistance (ODA) to
gross domestic product (GDP) decreased from 0.36 per cent in 1992 to
0.33 per cent in 1995, although in absolute terms the total level of
ODA for 1994/1995 has increased to roughly US$1,069 million ($A 1,486
million), a 3.5 per cent increase on the previous fiscal year. The
Australian Government has stated its commitment to increase this
ratio in the medium term to 0.40 per cent, and its intention to reach
the 0.70 per cent level in the longer term. The team was told these
targets have received wide public support.
49. Significant technology development and transfer
occurs, with funds being provided for the adaptation of Australian
technology to other countries, especially developing countries of the
Asia and Pacific region. The Australian aid programme encourages
environmentally sound private sector development through programmes
such as the green development import finance facility established in
1994 with a core budget of US$14.4 million ($A 20 million) for
1994/95.
IX. RESEARCH AND SYSTEMATIC OBSERVATION
50. Efforts to carry out commitments under Article 4.1(g)
and Article 5 pertaining to research and systematic observation are
well documented in chapter 7 of the communication. Additional
documentation, both on planned research and actual research
publications, was made available to the review team during the visit.
Because of the country's specific circumstances (such as impact of
oceans, differences in flora and fauna), arising in part from its
geographical location in the southern hemisphere, and because of the
focus of much of the current research on northern hemisphere climate
change phenomena, Australia has sought to develop its own
capabilities in this area. The chief effort of the Commonwealth
Government is channelled through the National Greenhouse Research
Program, which, despite its small annual budget ($A 6 million), has
succeeded in attracting additional funds and expanding its programme
areas through collaboration with other research institutes, state
governments and international organizations. A number of initiatives
for strengthening research capacities in developing countries exist,
in particular in the South Pacific and South-East Asia. Several
non-governmental research efforts were highlighted during the country
visit, including studies on changes in insect pest ranges and the
greenhouse effect on cereal productivity. Research
is under way in collaboration with private sector entities
and state organizations, and workshops have been organized on range
lands, involving farmers.
X. EDUCATION, TRAINING AND PUBLIC
AWARENESS
51. The team found that Australia had satisfied the
reporting requirements for commitments under Article 4.1(i) and
Article 6. The provision of information on climate change and
establishment of public awareness campaigns occur at two levels -
targeting the general public, on the one hand, and focusing on
specific groups, such as architects, engineers, students and the
business community, on the other. Well-established long-running
energy efficiency campaigns have been re-focused to highlight
potential environmental, as well as financial benefits to the energy
user and the community as a whole. A broad range of media have been
used, including booklets, newsletters, educational kits and videos,
to mention but a few.
52. A number of states, territories and local governments
have also taken their own initiatives to develop and implement
information programmes, including the establishment of energy
information centres to distribute material on how to save energy and
reduce greenhouse gas emissions. Some electricity utilities have also
developed and distributed information on climate change.
53. In order to secure public participation, the National
Greenhouse Advisory Panel was established to provide an input from
non-governmental stakeholders in the formulation of Australia's
response to climate change. In addition, the Australian inventory
methodology was developed through extensive participation of experts
from within and outside government departments, and was made
available to the public for comment.
54. There is an information exchange with other countries
through the International Energy Agency Cadet Network as well as an
information flow to developing countries, in particular those in the
South Asia and Pacific region. Training activities for developing
countries take a variety of forms, ranging from the provision of
scholarships to skills enhancement programmes carried out in the
countries themselves.
- - - - -
1. 1/ In accordance with
decision 2/CP.1(see FCCC/CP/1995/7/Add.1), the full draft of this
report was communicated to the Australian Government, which had no
further comments.
2. Henceforth, the June 1995 exchange
rate of $A1.39 to US$1 will be used.