Woomera Prohibited Area

Advisory Board
Annual Report
5 October 2012 - 30 September 2013
Commonwealth of Australia 2014
This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may
be reproduced by any process without prior written permission from the Department of Defence.
Woomera Prohibited Area
Advisory Board
Annual Report
5 October 2012 - 30 September 2013
1 Woomera Prohibited Area Advisory Board - Annual Report
Contents
Chairs Report ........................................................................................... 2
Executive Summary .................................................................................. 3
1. Introduction .......................................................................................... 4
2. WPA overview ...................................................................................... 7
3. Economic potential ............................................................................. 11
4. Legislative package ............................................................................ 13
5. Advisory Board meetings .................................................................... 15
6. Facts and Figures ............................................................................... 17
7. Defence use ....................................................................................... 21
8. Users views on co-existence .............................................................. 24
9. Conclusion ......................................................................................... 24
Attachment A - WPA Advisory Board Terms Of Reference ...................... 25
2 Woomera Prohibited Area Advisory Board - Annual Report
Chairs Report
The inaugural meeting of the Woomera Prohibited Area Advisory Board (the Board) was held on 18 December
2012. The Board was established to oversee the implementation of the coexistence policy framework as
endorsed through the Hawke Review and to monitor and report on the balance of national security and
economic interests as applied to the Woomera Prohibited Area (WPA).
A further and key function of the Board is to foster strategic relationships between Defence and non-Defence
users of the WPA. Establishment of these relationships has been one of our priorities over the past twelve
months and the Board meetings during this time have allowed us the opportunity to strengthen these ties.
It has been a productive frst year. Our initial two meetings were held in Canberra and a third in Woomera in
April 2013. The Woomera meeting was useful in providing us all with a frst-hand look at this vast and unique
area of land. Our visit also enabled us to improve our understanding of the role and scope of Defence and
non-Defence activities within the WPA. As part of this meeting, the Board toured OZ Minerals Prominent Hill
mine site. This visit brought yet another perspective on the complexity of the region and having the chance
to gain an insight into the workings of a mine was particularly informative for those of us with less direct
experiences of the resource sector.
A visit to the Naval Air Warfare Centre Weapons Division in China Lake, California in March 2013 afforded me
a further opportunity to aid my understanding of another approach to range management issues and military
evaluation and testing, in an area as similarly complex and sensitive as Woomera.
Maintaining successful coexistence on the WPA requires both Defence and non-Defence users alike to show
cooperative mutual respect and continued awareness in realising individual and shared goals. The principles of
coexistence call for all parties to work hand-in-hand to understand each others needs and roles so that each
can share a continued and successful presence throughout the WPA.
The Board will continue its consultation with a wide range of stakeholders in the year ahead and I look forward
to meeting with the various WPA non-Defence users groups and hearing their views and experiences of the
WPA. The coming year will also see the introduction of new legislation and accompanying management
arrangements for Woomera. In turn, this will bring about increased certainty for stakeholders and non-Defence
users regarding access arrangements for the area and will also encourage further investment by our valuable
resource industry.
I would like acknowledge the hard work of the Australian Government Departments of Defence; Finance;
and Industry; and the South Australian Government through the offces of the Department of Manufacturing,
Innovation, Trade, Resources and Energy (DMITRE) and Defence SA in their efforts to develop the legislation
and supporting activities that will enable the new coexistence arrangements to work.
I also acknowledge the contribution by the Boards Deputy Chair, the Hon Paul Holloway, the Chief of Air
Force, AIRMSHL Geoffrey Brown AO, and the other members of the Board over the past year and I thank them
for their continued support and cooperation. Finally, my sincere thanks to Ms Samantha Higgins, Executive
Director Woomera Prohibited Area Coordination Offce (WPACO) and the staff of WPACO.
Stephen Loosley
Chair
Woomera Prohibited Area Advisory Board
3 Woomera Prohibited Area Advisory Board - Annual Report
Executive Summary
On 17 May 2010 the Government commissioned a Review to consider how to use the Woomera Prohibited
Area (WPA) in a way that ensured that both its national security and full economic potential were realised.
The Review recommended the establishment of the WPA Advisory Board.
The Australian Government subsequently established the WPA Advisory Board in October 2012. In accordance
with the Boards Terms of Reference this report fulfls the requirement to report annually on the balance of
interests in the WPA.
The Review concluded that the WPA is an important asset in the national interest, but that its full potential is not
being realised. It was evident that introducing a comprehensive range management framework would improve
the co-existence of national security and economic interests in the WPA.
The South Australian Government and Geoscience Australia have assessed that over the next decade about
$35 billion worth of iron ore, gold and other mineral resources are potentially exploitable from within the WPA.
Most of the WPA is South Australian Crown land and is covered by pastoral leases and exploration and
mining tenements granted by the South Australian Government. The WPA contains Indigenous freehold title,
recognised traditional owners and claimants and signifcant Indigenous heritage sites. There are native title
rights, interests and claims over most of the WPA.
Key transport infrastructure, including the Stuart Highway and the Adelaide to Darwin railway bisect the WPA.
To implement the co-existence approach, the Review recommended that access be regulated by a model
of zones and exclusion periods that recognises the frequency and location of Defence testing, its safety and
security requirements, and that some areas within the WPA are used more often than others. These provisions
would give non-Defence users greater certainty by granting guaranteed access to parts of the WPA for set
periods of time.
It is necessary to suspend WPA access to ensure safety and/or security during Defence test and evaluation
activities. During the reporting period a combination of pastoralist evacuation and/or activity restrictions were
undertaken including road blocks for both major and minor roads.
During the reporting period work has continued on the development of a legislated permit scheme which would
contribute to the co-existence framework. Defence has also been working with existing users to clarify their
access arrangements.
The Board invited non-Defence users of the WPA to provide their views on access to and operating in the
WPA during the reporting period. Overall the comments were positive, with comments largely focussing on
the communication with, and support given by, the Woomera Test Range (WTR) and WPACO. Concerns were
minimal and focussed on: arrangements for emergency access; Approved Personnel applications, evacuation
periods, future mine feasibility given evacuation requirements, and the request for continued consultation.
4 Woomera Prohibited Area Advisory Board - Annual Report
1. Introduction
Hawke Review
On 17 May 2010 the Government commissioned a Review to consider how to use the WPA in a way that
ensured that both its national security and full economic potential were realised. The Review was undertaken
by Dr Allan Hawke AC and staffed by a team comprising representatives from the Departments of Defence,
Prime Minister and Cabinet, and Resources, Energy and Tourism.
The review proposed a system to maximise the co-existence between Defence and non-Defence users of
the area. The review recommended that Defence remain the primary user of the area, but acknowledged that
exploitation of the WPAs considerable minerals resources would bring signifcant economic beneft to South
Australia in particular and Australia in general. The review proposed that the WPA be accessible for resources
exploration to the maximum extent possible, but within the confnes of its primary use for defence purposes.
This was to allow Australians to take advantage of the resources potential of the WPA while ensuring its future
viability as the most important test and evaluation range supporting the Australian Defence Force.
The Review recommended the Australian Government negotiate with the South Australian Government
to establish an Advisory Board. It recommended that the Advisory Board be headed by an independent
Chair agreed to by the Ministers of the following: Defence; Resources, Energy and Tourism and Finance
and Deregulation (as they were then known); and by the Premier of South Australia. The Review further
recommended that the Chair of the Advisory Board should have the power to refer Defence access conditions
to the Secretaries of Defence and Resources, Energy and Tourism to seek their review by Defence where
necessary. The Advisory Board Terms of Reference are at Attachment A.
Establishment of the Advisory Board
Membership
The Australian Government established the WPA Advisory Board in October 2012 and, following consultation
with the South Australian Government, appointed an independent Chair, Mr Stephen Loosley, and Deputy
Chair, the Hon Paul Holloway. The Board includes ex offcio representatives from relevant Australian
Government and South Australian Government agencies as follows:
Deputy Secretary Strategy, Department of Defence
Chief of Air Force, Department of Defence
Deputy Secretary Resources, Department of Industry
Deputy Secretary Business, Procurement and Asset Management, Department of Finance
Chief Executive Offcer, Defence SA
Deputy Chief Executive, Resources and Energy, SA Department for Manufacturing, Innovation, Trade, Resources
and Energy (DMITRE)
5 Woomera Prohibited Area Advisory Board - Annual Report
Functions
The Board has initially met on a quarterly basis, with secretariat support provided by the WPACO.
As outlined in its Terms of Reference, the Advisory Board is to:
a) monitor and recommend amendments to co-existence policies and procedures;
b) develop high-level relationships between Defence and the resources sector;
c) resolve disputes between Defence and non-Defence users;
d) report annually on the balance of interests in the WPA; and
e) conduct a review every seven years of the balance of interests in the WPA.
This report fulfls the requirement to report annually on the balance of interests in the WPA. In preparing
the annual report on the balance of interests in the WPA and in assessing extant co-existence policy and
procedures, the Terms of Reference require the Board to:
call for submissions from non-Defence users on their experience with obtaining access to and operating
in the WPA;
assess Defence use of the WPA for the preceding 12 months and anticipated use for the subsequent 12 months
as provided by the Coordination Offce; and
assess:
the number of tenements renewed or granted in the past 12 months and the number anticipated in the next
12 months; and
updates on the resources potential of the WPA as provided by the Coordination Offce.
Remuneration
The remuneration for the Chair is determined by the Remuneration Tribunal in its Principal Determination
Remuneration and Allowances for Holders of Part Time Public and tier two travel entitlements under the
Remuneration Tribunals Determination Offcial Travel by Offce Holders. The Minister for Defence determined
that the Deputy Chair would be paid 80% of the Chairs base rate, plus the meeting fee only when acting for
the Chair, and Tier 2 travel entitlements. There was no additional remuneration payable for ex-offcio members
of the Board.


1 November 2012 to 30 September 2013
Remuneration Paid
(GST Inclusive)
Meeting Fees
(GST Inclusive)
Chair Mr Stephen Loosley $9,466.43 $4,000.00
Deputy Chair Mr Paul Holloway $7,572.95 Nil
The Remuneration Tribunal conducts reviews on the rates within the Determinations and if an increase is
to be made a Statement will be issued advising the increase to the rates along with the justifcation.
Copies of current and previous Determinations can be located on the Remuneration Tribunal Website
http://www.remtribunal.gov.au/.
6 Woomera Prohibited Area Advisory Board - Annual Report
Terms of appointments
The term of appointment for the Chair and the Deputy Chair is for a three year period and commenced on
1 November 2012 and concludes on 31 October 2015.
Ex Offcio members relinquish membership on ceasing their substantive appointments with their respective
government departments. Membership normally transfers to the new incumbents.
Establishment of the Woomera Prohibited Area
Coordination Offce
WPACO was established in late May 2011 within Defence as a central point of contact for non Defence access
to the WPA. It is responsible for implementing the recommendations of the Review and to provide Secretariat
support to the Advisory Board.
WPACO is located in Canberra and includes physical representation from Defence, and virtual representation
from other Australian Government departments (Industry Resources Division, and Finance) and the South
Australian Government (Department of Manufacturing, Innovation, Trade, Resources and Energy (DMITRE)
and Defence SA).
A Department of Finance offcial was seconded for a period of six months to assist with the establishment of
the WPACO. Offcials from the then Department of Resources, Energy and Tourism were also seconded to the
WPACO from the commencement through to June 2013.
Reporting Period
This Report covers the year since the moratorium on new access was lifted (5 October 2012 to
30 September 2013).
7 Woomera Prohibited Area Advisory Board - Annual Report
2. WPA overview
The importance of the WPA to Defence
The WPA covers nearly 124,000 km2 in South Australia, approximately 450 km NNW of Adelaide. It comprises
extensive lands north of the Indian Pacifc railway, from Maralinga in the south-west up to its north-west corner
in the Great Victoria Desert (that stretches across the SA-WA border), across to Coober Pedy, and west of
Roxby Downs down to Woomera in the south-east.
The WPA is globally unique, and Australias most important military testing range. It is used for the testing of
war materiel under the management of the Royal Australian Air Force and is the largest land-based test range
in the world, comparable in size to England, with a centre line of over 600 km.
The size, remote location, low population density and quiet electromagnetic environment of the WPA make it an
ideal test and evaluation site for Australia and its allies and partners.
The WPA was established as a long-range weapons testing facility by the United Kingdom and Australia under
the Anglo-Australian Joint Project, which wound down during the 1970s. The use of the WPA by Defence
declined during the 1980s and 1990s at which time its use by non-Defence users including the resources
sector, dominated the area. Changes in the strategic environment since the late 1990s have resulted in an
increasing requirement for access to WPA facilities for the testing and evaluation of weapons systems.
The range is now, in parts, in near constant use.
Defence is responsible for ensuring the safety of people and security of trials during all defence activities
inside the WPA. Current and future weapons systems are increasing in range and lethality and require larger
exclusion areas during the critical trials and evaluation phase undertaken at Woomera. The ability to evacuate
large portions of the WPA during the 2013 Joint Air to Surface Standoff Missile (JASSM ) launch was a critical
component of the safety case for the trial and is indicative of the weapon templates for future generation
weapons. Increasingly Defence will rely on new generation weapons which will focus on electronic effects
Test activity explosion Woomera Prohibited Area
8 Woomera Prohibited Area Advisory Board - Annual Report
rather than traditional kinetic ones. Whilst not having the same dynamic or explosive potential of traditional
kinetic weapons (bombs and missiles), lasers and jammers require larger safety templates, bounded only by
radio frequency horizons, to ensure personal safety and protecting electronic equipment which can create
an indirect safety hazard to range users. Providing access to an electronically quiet environment in the WPA
provides a unique capability for Australia and our strategic partners to test new generation electronic systems,
affording high levels of safety and protecting the sensitive nature of many of these trials and tests. Security of
Defence trials provided inside the WPA remains a critical part of Australias continued access to leading edge
weapons and systems.
This area has been declared as a Prohibited Area in accordance with regulation 35 of the Defence Force
Regulations. This regulation allows the Minister to declare a place to be a prohibited area which is a place
necessary, expedient or in the interest of safety or defence of Australia:
to carry out operations for the testing of war materiel; and
that special precautions be taken to prevent the entry of unauthorised persons into that place.
In addition, a person must not access the WPA without the Ministers permission, which may be subject to
any condition necessary for the protection of persons, property and offcial secrets. The authority to grant
permission to the WPA has been delegated to offcials in the Department of Defence, including key positions
located in Woomera. This allows access decisions to be made in a timely manner.
Heron Remotely Piloted Aircraft at Woomera Prohibited Area
9 Woomera Prohibited Area Advisory Board - Annual Report
The importance of the area for
non-Defence users
The WPA overlaps a major part of South Australias potential for signifcant minerals and energy resources,
including 30 per cent of the Gawler Craton, one of the worlds major mineral domains, and the Arckaringa,
Offcer and Eromanga Basins for hydrocarbons and coal. Olympic Dam is adjacent to the WPA and is part
of the Gawler Craton.
There are currently four operating mines in the WPA: the Challenger gold mine, operating since 2002,
produces over 85,000 ounces of gold a year; the Prominent Hill copper-gold mine, operating since 2010,
is a medium-sized, high quality copper-gold mine producing around 75,000 tonnes of copper a year and
around 140,000 ounces of gold; the Cairn Hill magnetite (iron ore) mine, operating since 2010, is one of
Australias few magnetite mines, producing around 1.7 million tonnes of premium quality magnetite-copper
direct shipping ore a year at full capacity; and the Peculiar Knob iron ore mine, operating since October 2012,
is, contributing approximately 3.6 million tonnes per annum of high grade iron ore to Arriums processing and
export facilities in Whyalla.
The South Australian Government and Geoscience Australia have assessed that over the next decade
about $35 billion worth of iron ore, gold and other mineral resources are potentially exploitable from
within the WPA.
Most of the WPA is South Australian
Crown land and is covered by pastoral
leases and exploration and mining
tenements granted by the South
Australian Government. The WPA
contains Indigenous freehold title,
recognised traditional owners and
claimants and signifcant Indigenous
heritage sites. There are native title
rights, interests and claims over most
of the WPA.
Key transport infrastructure, including
the Stuart Highway and the Adelaide
to Darwin railway bisect the WPA.
Visits to the area by tourists
also increased in recent years.
Tourists both from interstate and
overseas visit Coober Pedy north of
the WPA, dubbed as the Opal Capital
of the World, for its opals, opal
mines and local attractions such as
the underground homes and museums and outback activities. Adventure seekers and nature lovers visit and
traverse the Tallaringa Conservation Park (northwestern WPA) which provides 4WD access to Western Australia
along the Anne Beadell Highway. The Woomera Village with its Rocket Park and museum is also an attraction
for tourists travelling through the area.
Cairn Hill Mine (Courtesy of IMX Resources; DMITRE photo 413546)
10 Woomera Prohibited Area Advisory Board - Annual Report
Co-existence model
The Review concluded that the WPA is an important asset in the national interest, but that its full potential is not
being realised. It was evident that introducing a comprehensive range management framework would improve
the co-existence of national security and economic interests in the WPA.
Accordingly, the Review proposed that access to the WPA be facilitated for resources exploration to the
maximum extent possible, while ensuring Defence primacy for the testing of war materiel. This would allow
Australians to take advantage of the resources potential in the WPA while ensuring its future viability as the
most important test and evaluation range that supports the Australian Defence Force.
To implement the co-existence approach, the Review recommended that access be regulated by a model
of zones and exclusion periods that recognises the frequency and location of Defence testing, its safety and
security requirements, and that some areas within the WPA are used more often than others. These provisions
would give non-Defence users greater certainty by granting guaranteed access to parts of the WPA for set
periods of time.
The zones were determined according to Defence use of the WPA, and have been in place since
31 March 2012. They are:
Red Zone: encompassing the area of high frequency Defence use;
Amber Zone: encompassing the area of periodic Defence use and, together with the Red Zone, comprises the
previously defned Core Area of Operations as described in the Defence Ministers statement of 17 May 2010;
and
Green Zone: encompassing the area of infrequent Defence use.
The number of exclusion periods available for Defence depends on the zone within the WPA. The exclusion
periods are each of seven days duration during which non-Defence users are required to evacuate the
designated areas:
Red Zone (continuous Defence use): a total exclusion of new non-Defence users.
Amber Zone (periodic Defence use): Defence can exclude new non-Defence users for 20 windows each of
seven days in the Amber Zone (Zone 1), and 10 windows each of seven days in the Amber Zone (Zone 2) - the
corridor - every year. Defence will give at least three months notice before the beginning of the fnancial year in
which the exclusion period begins. There will be a break of at least six weeks between the exclusion periods.
Green Zone (infrequent Defence use): Defence can exclude new non-Defence users up to 56 days.
The exclusions will be for up to eight windows of seven days each year after giving permit holders with
permanent facilities a minimum of six months notice, and other permit holders 14 days notice.
Exclusion period notices have been exercised since 1 July 2012.
WPA Opal Fields (Courtesy of DMITRE, photo 405408)
11 Woomera Prohibited Area Advisory Board - Annual Report
3. Economic potential
SA Government economic/resource
potential assessment
The WPA covers over 30 percent of the Gawler Craton, one of the worlds major mineral domains, and the
Arckaringa, Offcer and Eromanga Basins that contain conventional and unconventional hydrocarbons and
coal. Geoscience Australia has estimated that 62 percent of Australias known copper resources, as well as
78 percent of the countrys known uranium resources are located within the WPA and immediate surrounds.
With potential mineral development value estimated at more than $35 billion, including iron ore, gold, copper
and uranium prospects, the WPA already hosts four major operating mines: the Challenger gold mine by
Kingsgate Consolidated Ltd, the Prominent Hill copper-gold mine by OZ Minerals, the Cairn Hill iron ore-
copper mine by IMX Resources, and the Peculiar Knob iron ore mine by Arrium. These four operating mines
employ over 1,500 people and contribute more than $20 million per annum to the State in royalties. Arrium is
actively progressing another iron ore mine project at Hawks Nest, which lies south of Peculiar Knob. Increasing
confdence in the new WPA regulatory framework is demonstrated by OZ Minerals 2012 investment of
$135 million to its Ankata project to expand Prominent Hills underground mining operations and Arriums
investment of $86 million into the construction and operation of its Peculiar Knob iron ore mine.
Aerial photo of Peculiar Knob mine (courtesy of Arrium Mining; DMITRE photo 412828)
Since the moratorium on granting new access was lifted in October 2012, DMITRE has granted 61 new mineral
exploration licences within the WPA, lifting the total number of ELs within the WPA to 205. These licences
are held by 62 different companies investing several millions of dollars per annum on the search for new
copper, gold, coal, uranium and iron ore deposits in this remote area. There are also a number of Petroleum
and Geothermal Energy Act 2000 (SA) tenements held by nine different companies that are evaluating the
considerable potential of the region to host oil, conventional and unconventional gas reserves and hot rocks
at depth that could support geothermal power generation. Large international explorers including Teck
Cominco, Vale and Antofagasta Minerals have been attracted to the area due to its high mineral prospectivity
and currently hold exploration licences in the area.
12 Woomera Prohibited Area Advisory Board - Annual Report
To further assess the economic and resource potential of the WPA, the $2 million PACE 2020 Woomera
Geoscience (gravity) Survey was successfully completed from June to September 2013 involving collaboration
between DMITRE, Geoscience Australia and Defence personnel at the WTR. The project is part of DMITREs
Plan for Accelerating Exploration (PACE 2020) Gawler Craton Enhanced Exploration Initiative which includes
a follow-up geochemical program mostly across the area of the gravity survey and consolidation and
re-processing of existing magnetics data for the region. The data and images generated from these exploration
programs in the WPA will facilitate renewed exploration investment into the region, supporting discovery of
South Australias next series of world-class mines.
Aerial Gawler Craton - (Woomera Prohibited Area) gravity survey (photo courtesy of DMITRE)
13 Woomera Prohibited Area Advisory Board - Annual Report
4. Legislative package
Overview
The Review recommended the development of a legislated permit scheme which would contribute to the
co-existence framework. The intention of the legislation is to establish a scheme that provides non-Defence
users within the WPA a greater level of certainty over Defence activity in the area and greater clarity on access
arrangements. It allows users to make commercial decisions with some assurance as to when they will be
required to leave the area because of Defence activity.
The framework maintains the primacy of the WPA as a national security and defence asset and sets up a
co-existence scheme that allows access by non-Defence users subject to conditions that protect the safety of
all users in the WPA and ensures the appropriate national security protections for an area used to test defence
capability.
As recommended by the Review, existing users will continue to access and operate in the WPA under
their current arrangements. These include Indigenous groups, pastoralists, the railway and existing mining
operations in the WPA. The co-existence scheme to be established by the Bill would apply to new users of
the WPA. Existing mines in the area would have the option of voluntarily joining the co-existence scheme to
be established by the legislative package.
Consultation on the Defence Legislation
Amendment (WPA) Bill 2013
The Defence Legistation Amendment (WPA) Bill 2013 (the Bill) (and associated Rules) built upon the
consultation activities that occurred during the conduct of the review in 2010-2011, together with the public
consultation regarding the Minerals Exploration Deed of Access developed during the moratorium period in
2012 and operational trialing of the access zone/exclusion window procedures which commenced in July
2012.
As part of the public consultation process on the Bill, an information paper on the proposed legislative
framework for the WPA was released and distributed widely to stakeholders and interested parties in April
2013. The paper provided a general overview of the policy framework proposed for implementation in the
legislative package.
Concurrently, the draft Bill was developed and referred to Australian Government and South Australian
Government stakeholder agencies for review and comment, with proposed amendments being incorporated
where appropriate. The principal agencies consulted were:
The Department of the Prime Minister and Cabinet;
The Department of Resources, Energy and Tourism;
The Attorney-Generals Department;
The Treasury;
The Department of Finance;
The Department of Families, Housing, Community Services, and Indigenous Affairs;
South Australian Department for Manufacturing, Innovation, Trade, Resources and Energy;
DefenceSA;
South Australian Crown Solicitors Offce; and
South Australian Department of the Premier and Cabinet.
14 Woomera Prohibited Area Advisory Board - Annual Report
The then Ministers for Defence and Resources and Energy released an exposure draft of the Bill for stakeholder
and other public consultation on 8 May 2013. The draft was brought to the attention of all other identifed
stakeholders and interested parties, and published on the WPACO website. The South Australian Government
hosted a public consultation workshop, chaired by WPACO, on 10 May 2013 to discuss the Bill. Stakeholders
and interested parties provided feedback through the workshop and by written submission.
The exposure Bill was amended to take feedback into account.
The then Minister for Defence, Stephen Smith, introduced the Defence Legislation Amendment (Woomera
Prohibited Area) Bill 2013 into the Parliament on 30 May 2013. It was passed by the House of Representatives
on 6 June 13 and entered the Senate on 17 June 2013. The legislation was referred to the Senate Committee
on Foreign Affairs, Defence and Trade on 18 June 2013 by both the Coalition and the Australian Greens.
The Senate Committee requested submissions and proposed to hold a hearing in Adelaide on 7 August 2013.
However, a Federal election was called and the Committee decided to cancel the hearings during the caretaker
period. On 20 August 2013 the Committee issued its report stating that it had decided not to continue with its
inquiry at this stage. Two Coalition senators had made a dissenting report, suggesting that the hearing should
have progressed. The Committees report stated that should the bill be reintroduced in the 44th Parliament
and referred to the committee, the committee would resume its consideration of the legislation.
The Bill lapsed when Parliament was prorogued on 5 August 2013.
Consultation on the Rules
The exposure draft of the Rules was released for public consultation on 30 May 2013, with interested
stakeholders and parties to consider and provide feedback by 12 July 2013. The draft Rules were also
distributed by Defence to its list of identifed stakeholders and interested parties, and published on the
WPACO website.
A public consultation forum was held in Adelaide on 1 July 2013 with attendees representing mining,
petroleum, defence industry, rail operators and Indigenous groups.
Targeted consultations were also undertaken with Indigenous groups conducted by Department of Defence
and South Australian Government offcials in Adelaide on 2 July 2013. Parties included representatives of the:
Maralinga Tjarutja;
Anangu Pitjantjatjara Yankunytjatjara;
Kokatha Uwankara claimant group;
Antakarinja Matu-Yankunytjatjara Aboriginal Corporation; and
Gawler Ranges People.
A meeting was also held in Coober Pedy on 3 July 2013 for licensed Opal Miners and Extractive Minerals Deed
holders. Attendees at the meeting included the President and Deputy President of the Opal Miners Alliance
and a representative of an operating mine. Discussions were also held with the Chair of the Antakarinja
Matu-Yankunytjatjara Aboriginal Corporation.
On 6 August 2013 in Adelaide, Defence and South Australian Government representatives met to discuss
future access arrangements with the three companies involved with the railway: the Australian Rail Track
Corporation, AustralAsia Railway Corporation, and Geneseee & Wyoming Australia.
The parties agreed to recognise the rail as an existing user, inclusive of all associated infrastructure,
and to develop a protocol covering consultation and notifcation arrangements.
The consultation process also identifed a number of issues relating to existing users, not caused by the Bill.
Defence is working with existing users to address these, including to formalise working agreements.

15 Woomera Prohibited Area Advisory Board - Annual Report
5. Advisory Board meetings
The Terms of Reference for the Advisory Board included meeting quarterly initially, then moving to half yearly.
Three meetings were held during the reporting period - the meeting proposed for September 2013 was
subsequently cancelled. This was due to the 2013 Federal election and consequent lapsing of the legislation.
18 December 2012 Canberra Inaugural meeting
The inaugural meeting of the WPA Advisory Board was held in Canberra on 18 December 2012. At this
meeting the Board endorsed its Terms of Reference, as proposed in the Hawke Review. The Board received
briefngs on the Defence activities and Resources industry in the WPA. The Board also reviewed the work
plan and timeline for implementing the Review and discussed the Boards Business Rules and reporting
requirements.
9-11 April 2013 Woomera
The second Board meeting was held in Woomera from 9-11 April 2013. The Board discussed an information
paper on the proposed legislative framework, which was then published on the WPACO website to assist with
the public consultation process. The Board also discussed the process and timelines for accessing the WPA
and advised on providing greater clarity to industry about how processes at DMITRE and WPACO interrelate.
The Woomera visit and Royal Australian Air Force demonstration provided Board members with a greater
awareness of Defence use of the WPA to assist in the Boards future discussions. Board members also toured
OZ Minerals Prominent Hill mine site to gain an understanding of the mines operations.
Advisory Board visit to OZ Minerals Prominent Hill mine site
16 Woomera Prohibited Area Advisory Board - Annual Report
13 June 2013 Canberra
The third meeting was held in Canberra on 13 June 2013. Discussions focussed on the legislation,
and associated issues such as the compensation and demerit point regimes.
The members attendance at meetings during the reporting period is listed in the table below.
Name of Member Position Meeting eligibility Meetings attended
Mr Stephen Loosley Chair 3 3
Hon Paul Holloway Deputy Chair 3 3
AIRMSHL
Geoffrey Brown AO
Chief of Air Force 3 2*
Mr Andrew Fletcher
Chief Executive Offcer,
Defence SA
3 3
Dr Paul Heithersay
Deputy Chief Executive,
Resources and Energy,
DMITRE
3 3
Mr Martin Hoffman
Deputy Secretary,
Department of Industry
3 2*
Ms Jan Mason
Deputy Secretary,
Business, Procurement
and Asset Management,
Department of Finance
3 3
Mr Brendan Sargeant
Deputy Secretary,
Strategy, Department of
Defence
3 2*
* A representative was provided for the meeting not attended.
Briefng to Advisory Board members Woomera Prohibited Area
17 Woomera Prohibited Area Advisory Board - Annual Report
6. Facts and Figures
SA Government tenements and licences - Mineral,
Petroleum and Geothermal Exploration
During the year a number of mineral, petroleum, and to a lesser extent geothermal exploration tenements
were active in the WPA area (refer table over).
Exploration activities were dominated by the mineral exploration companies which conducted a number of
geoscientifc surveys and programs during the year to search for new mineral deposits. Activities included
airborne surveys, Indigenous heritage surveys, ground sampling and mapping programs, exploratory drilling
and site rehabilitation works.
Tenement / Application Current Granted Renewed
Anticipated over the
next 12 months
ELA Exploration
Licence Application
32 - - 32 ELAs may be granted
EL Exploration Licence 205 61 60
Up to 95 ELs may be
renewed
MC Mineral Claim 3 0 0
Anticipated to be similar
to previous year.
RL Retention Lease 2 0 0
GEL Geothermal
Exploration Licence
3 0 0
GELA - Geothermal Exploration
Licence Application
1 - -
GSEL Gas Storage
Exploration Licence
2 0 0
GSELA Gas Storage Exploration
Licence Application
21 - -
PEL Petroleum
Exploration Licence
12 0 0
5 PELs will be renewed over
a reduced area
PELA Petroleum Exploration
Licence Application
15 - - 2 PELAs may be granted
18 Woomera Prohibited Area Advisory Board - Annual Report
Existing mines
Four metallic mines currently operate within the WPA, together with several small extractive mines which supply
construction materials locally, often on an as needed basis. Information on the major mines in the WPA is
provided in the table below.
Mine Name Commodity Company Status
Term of
Mining
Lease
Life of
Mine1
(years)
Production
FY 2012/13
Prominent Hill
Copper (Cu),
Gold (Au),
Silver (Ag)
OZ Minerals
Operating;
underground
(Ankata), open
cut (Malu)
ML 6228 15
years from
2006 to 2021
10
86,887t Cu
130,192oz Au
The mineral exploration licences (ELs) granted in the Woomera Prohibited Area (WPA) between 1 October 2012
and 30 September 2013 are shown in the following fgure.
19 Woomera Prohibited Area Advisory Board - Annual Report
Challenger Gold (Au)
Kingsgate
Consolidated
Ltd
Operating;
underground
ML 6103 17
years from
2001 to 2018
7 66,216oz Au
Cairn Hill
Magnetite iron
ore (Fe3O4),
Copper (Cu),
Gold (Au)
IMX Resources
Ltd through
subsidiary
Termite
Resources NL
Operating;
open cut
ML 6303 10
years from
2008 to 2018
6
1.7Mt ore
mined
Peculiar Knob
Hematite iron
ore (Fe2O3)
Arrium Ltd
Operating;
open cut
ML 6314 14
years from
2008 to 2022
6
2.4Mt ore
mined
1 Published information based on currently defned reserves
In line with the co-existence model for the area, both the exploration and mining operators work in close
communication with Defence in relation to their operations and the scheduling of activities relevant to
supporting Defence tests.
During the year OZ Minerals and Defence jointly ran a safety training exercise involving a mock plane crash.
The exercise tested coordination with emergency services and the activation of emergency response
procedures at the mine. The exercise was a success with both organisations learning lessons for
future operations.
New exploration deeds and other forms of access
Information on the types of Deeds of Access and total numbers held are provided in the table below.
Period Total Number of Deeds of Access held
As at 31 Dec 12
16 mineral exploration
4 mineral lease
3 extractive mineral
1 petroleum
0 geothermal
As at 31 Mar 13
21 mineral exploration
4 mineral lease
3 extractive mineral
1 petroleum
0 geothermal
As at 30 Jun 13
26 mineral exploration
4 mineral lease
3 extractive mineral
1 petroleum
0 geothermal
1 infrastructure/other
As at 30 Sep 13
29 mineral exploration
4 mineral lease
4 extractive mineral
1 petroleum
0 geothermal
1 infrastructure/other
20 Woomera Prohibited Area Advisory Board - Annual Report
The table below provides a summary of applications and access requests during the period.
Item
5 Oct 12
to 31 Dec 12
1 Jan 13
to 31 Mar 13
1 Apr 13
to 30 Jun 13
1 Jul 13
to 30 Sep 13
Total
Deeds of Access executed 8 13 8 4 33
Deeds of Amendments issued 0 0 3 1 4
Non-compliance 1 0 0 0 1
Approved Personnel lodged
in period
154 181 468 345 1148
Total number of Approved
Personnel currently approved
- - - 1469 1469
Approved Personnel denied 0 0 0 0 0
Escorted Personnel lodged in
period
0 19 2 14 35
Escorted Personnel denied 0 0 0 0 0
Number of Tourist Permits
issued
5 95 247 142 489
Number of tourists processed
on Permits
20 150 518 269 957
Tourist Permits denied 0 0 0 0 0
Opal Permits issued 19 9 14 17 59
Opal Permits denied 0 0 0 0 0
Exploration Access Requests
processed
13 16 9 33 71
Total number of personnel
processed on Access
Requests
282 185 114 131 712
Access Requests denied 0 0 0 0 0
Negotiations underway for mining
Negotiations are underway with a company interested in a Deed of Access for new mining operations in the
WPA. As with the exploration deed, the mining deed would provide for company access to the WPA prior
to commencement of new legislation. The deed would contain a defned transition period for moving to a
legislated permit.
Opal Mining
The Coober Pedy Proclaimed Precious Stones feld covers approximately 4,954 square kilometres, of this
48% is within the WPA. There are currently 48 registered precious stones tenements within the WPA producing
approximately $1.2 million worth of opals annually (estimated from the Opal production report).
21 Woomera Prohibited Area Advisory Board - Annual Report
7. Defence use
Range of unclassifed testing undertaken over
last 12 months
During calendar year 2013, the WTR level of activity was consistent with the previous two years. The number of
tasks cancelled throughout the year was higher than usual, which led to a subsequent restriction on available
planning resources. Analysis of the cancelled events shows that the vast majority came from within Defence,
and were due to continuing issues with importing equipment and signifcant budget cuts across Defence.
The reduced level of activity also refects some reduction in operational support with the drawdown of
operations in Afghanistan.
Royal Air Force C-17 at Woomera Airfeld
The lower number of overall trials did not equate to less range activity, however, due to the higher than usual
number of highly-complex, complex and highly-technical trials conductedtrials of these complexity levels
have a high demand on WTR resources. The different types of trials on the WTR are defned in the table below.
WPA Trial Type Description
Highly complex Full operations and engineering support
Complex Signifcant to very high operational inputs and signifcant engineering input
Highly Technical Signifcant operations inputs and some engineering input
Technical Lower level of operational inputs and little or no engineering input
Non-Technical Task administration/planning in nature
22 Woomera Prohibited Area Advisory Board - Annual Report
Key 2013 fgures for WTR are as follows:
Tasks. 69 Planned, 1 Rejected, 34 Cancelled, and 34 Completed.
Complexity. Of the 34 completed, the breakdown of task complexity was: two Highly Complex,
two Complex, one Highly Technical, 24 Technical and fve Non-Technical.
Range usage. 869 Actual Trial days (not including setup/redeployment), over 2200 trials personnel deployed into
Woomera (excluding WTR staff), around 67,000 Bednights (Eldo 65,000, Camp Rapier 2000).
Offcial Visits. 103 visits conducted involving 515 persons.
A number of important classifed Defence trials were also carried out on the WTR in 2013.
Exclusion Windows exercised over the reporting period
WPA non-Defence users were advised of the WPA exclusion periods for the 2012-13 fnancial year on
30 March 2012 and for the 2013-14 fnancial year on 21 March 2013. The exclusion periods for Amber Zone 1,
Amber Zone 2 (the corridor) and the Green Zone during the reporting period are provided in the
following tables.
Amber Zone One Planned
Exclusion period
Exclusion
exercised
Comment
15 October 18 November 2012 No
Cancellation notifed to WPA non-Defence
users by email on 21 September 2012.
18 February - 24 March 2013 Yes
6 May 2013 9 June 2013 Yes
Part of a large scale closure affecting the Green
zone Pastoral Stations, the Stuart Highway,
public roads and the Darwin to Tarcoola
Railway were affected.
22 July - 25 August 2013 Yes
Amber Zone Two Planned
Exclusion period
Exclusion
exercised
Comment
15 October 28 November 2012 No
Cancellation notifed to WPA non-Defence
users by email on 21 September 2012.
4 March 24 March 2013 No
Cancellation notifed to WPA non-Defence
users by email on 22 February 2013.
13 May 2 June 2013 Yes Part of large-scale Green Zone closure
12 August 25 August 2013 No
Cancellation notifed to WPA non-Defence
users by email on 15 July 2013.
Green Zone Planned
Exclusion period
Exclusion
exercised
Comment
20 May 2 June 2013 Yes
Closure notifed to WPA non-Defence users
by way of letter dated 24 April 2013 and
through advertisements in regional press in
late April 2013
23 Woomera Prohibited Area Advisory Board - Annual Report
Nature of exclusions and non-Defence users affected
It is necessary to suspend WPA access to ensure safety and/or security during Defence test and evaluation
activities. During the reporting period a combination of pastoralist evacuation and/or activity restrictions was
undertaken including road blocks for both major and minor roads.
For the JASSM tests between 20 May 2013 and 2 June 2013 Defence closed the Green Zone. This included
closing the Stuart Highway and Darwin to Tarcoola Railway for limited times over this period - in the case of
the railway, for three 3-hour periods which were all scheduled to work in with the railway operators timetable.
All suspensions were minimised where possible and were advertised in advance to reduce the disruption to
users. Defence coordinated with state authorities as required, for example gaining permission from the SA
Department of Planning, Transport and Infrastructure to temporarily close the Highway, and assistance from
the SA Police to conduct road closures.
Loading the Joint Air to Surface Standoff Missile (JASSM) on to an FA-18 Hornet
Exclusion zone management plan under development
Defence is currently preparing an Exclusion Zone Management Plan. The plan is an integral part of the
improved WPA range management framework. The plan will set out procedures for improved management of
zone closures and protocols for communicating with WPA stakeholders affected by Defence test activities.
The draft plan is expected to be completed in 2014.
24 Woomera Prohibited Area Advisory Board - Annual Report
8. Users views on co-existence
In accordance with the Terms of Reference, the Board invited non-Defence users of the WPA to provide their
views on access to and operating in the WPA during the reporting period.
Twelve submissions were received, including from a mining company, opal miner, exploration companies,
emergency services, rail, and tourism. Overall the comments were positive, with comments largely focussing on
the communication with, and support given by, the WTR and WPACO. Concerns were minimal and focussed
on: arrangements for emergency access; Approved Personnel applications; evacuation periods; future mine
feasibility given evacuation requirements; and the request for continued consultation. The Advisory Board noted
the submissions received and thanked those who contributed.
9. Conclusion
The Advisory Board believes it has made a valuable and constructive start in carrying out its responsibilities in
relation to the implementation of co-existence between Defence and non-Defence users within the WPA.

25 Woomera Prohibited Area Advisory Board - Annual Report
Attachment A
WPA Advisory Board Terms Of Reference
Objectives
1. Monitor and report on the balance of national security and economic interests in the WPA.
2. Oversee the implementation of the coexistence policy arrangements.
3. Foster strategic relationships between Defence and non-Defence users of the WPA.
Membership
4. An independent Chair to be agreed by the Ministers for: Defence; Resources and Energy; Finance; and the
Premier of South Australia.
5. Members: The Commonwealth (the Department of Defence and the Department of Resources, Energy and
Tourism, and the Department of Finance) and the South Australian Government (Department for Manufacturing,
Innovation, Trade, Resources and Energy (DMITRE) and Defence SA).
a. Members should be senior-level (Deputy Secretary/Deputy Chief Executive) representatives of their
respective organisations.
Roles and Functions
6. Monitor and recommend amendments to co-existence policies and procedures.
7. Develop high-level relationships between Defence and the resources sector.
8. Resolve disputes between Defence and non-Defence users.
9. Report annually on the balance of interests in the WPA.
10. Conduct a review every seven years of the balance of interests in the WPA.
Operating Procedures
11. The Chair should guide discussions but is not the arbitrator on decisions.
12. The Chair should only endorse proposed amendments to coexistence policy and processes that have been
agreed by both Defence and DMITRE.
a. Each agency representative would be responsible for achieving the necessary changes in their own
organisations to effect coexistence policy outcomes.
13. The Board should meet quarterly at the beginning, moving to half yearly, to discuss issues arising from the
implementation and execution of coexistence policies and processes and the balance of national interests in
the WPA.
a. Issues could be discussed and resolved out of session with the agreed action appropriately minuted in the
subsequent Board meeting.
b. The Board should invite external persons as they relate to the issues being considered.
26 Woomera Prohibited Area Advisory Board - Annual Report
14. Consistent with legal authority, and as the primary user of the WPA, Defence should have the fnal authority on
granting non-Defence access, but the Board would operate in a collegiate manner to resolve all reasonable
impediments to Defence authorising a permit.
a. The Board may request that Defence reconsider its decision to deny access in light of any additional
substantial information not previously considered by Defence.
15. In preparing the annual reports on the balance of interests in the WPA and in assessing extant coexistence policy
and procedures the Board should:
a. call for submissions from non-Defence users on their experience with obtaining access to and operating in
the WPA;
b. assess Defence use of the WPA for the preceding 12 months and anticipated use for the subsequent 12
months as provided by the Coordination Offce; and
c. assess:
i. the number of tenements renewed or granted in the past 12 months and the number anticipated in the
next 12 months; and
ii. updates on the resources potential of the WPA as provided by the Coordination Offce.
16. The annual reports on the balance of interests in the WPA will be publicly available, with copies provided to the
heads of the relevant State and Commonwealth agencies and respective State and Federal ministers.
17. In conducting the seven-yearly review, the Board should consider, but not be limited to, the following:
a. Defence use of the WPA in the preceding seven years and anticipated use in the following seven years;
b. the fndings from the on-going South Australian Government geological assessment;
c. the views of non-Defence and Defence users in the WPA; and
d. the effectiveness of extant time-share arrangements and coexistence policy and procedures.
18. The fndings of the seven-yearly review should be provided to the heads of the relevant State and
Commonwealth agencies, the Prime Minister, South Australian Premier and respective State and Federal
ministers, as well as being made publicly available.
Administration
19. Each agency should be responsible for the resourcing of its contribution to the Board.
20. Secretariat support should be provided by the WPA Coordination Offce with support from DMITRE.
a. Quarterly meetings should be held in Adelaide and Canberra alternately.
DPS-MAY049-14