Coordinator-General’s annual report to Parliament on non-resident workers in Gladstone and the Bowen and Surat Basins

November 2016

The Department of State Development

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Contents

Summary ...... v 1. Introduction ...... 7 Scope and structure of the report ...... 7 Policy and legislative context ...... 7 Role of the Coordinator-General ...... 8 Geographical scope of report ...... 8 Bowen Basin ...... 9 Surat Basin ...... 10 Gladstone...... 10 2. Population ...... 11 Non-resident population ...... 11 Bowen Basin ...... 12 Surat Basin ...... 14 Gladstone...... 16 Resident population ...... 17 Non-resident to resident population ratios ...... 17 Isaac and Central Highlands Regional Councils ...... 17 Maranoa and Western Downs Regional Councils ...... 19 Gladstone Regional Council ...... 21 3. Stakeholder consultation ...... 22 Consultation themes ...... 22 Local business and industry opportunities ...... 23 Workforce management ...... 23 Workforce accommodation ...... 23 Community wellbeing ...... 24 Community and stakeholder engagement ...... 24 Social assessment and impact management ...... 24 Cumulative impacts ...... 24 4. Social and economic impacts ...... 25 Regional expenditure ...... 26 Bowen Basin ...... 27 Surat Basin ...... 28 Gladstone...... 29 Workforce accommodation ...... 29 Bowen Basin ...... 29 Surat Basin ...... 30 Gladstone...... 31 Community wellbeing ...... 31 5. Social assessment and impact management ...... 33 Overview of social impact management ...... 33 Strong and Sustainable Resource Communities Framework ...... 34 6. Conclusion ...... 35 Acknowledgements ...... 37 Abbreviations ...... 38 Glossary ...... 39 References ...... 41

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Figures Figure 1. Bowen Basin...... 9 Figure 2. Surat Basin ...... 10 Figure 3. Gladstone LGA ...... 11 Figure 4. Non-resident workers on-shift by region ...... 12 Figure 5. Non-resident workers on-shift, Bowen Basin LGAs ...... 13 Figure 6. Non-resident workers on-shift, Surat Basin LGAs ...... 15 Figure 7. Non-resident workers on-shift, Gladstone ...... 16 Figure 8. Resident and non-resident population ratios, Isaac Regional Council ...... 18 Figure 9. Resident and non-resident population ratios, Central Highlands Regional Council ...... 19 Figure 10. Resident and non-resident population ratios, Maranoa Regional Council ...... 20 Figure 11. Resident and non-resident population ratio, Western Downs Regional Council ...... 20 Figure 12. Resident and non-resident population ratio, Gladstone Regional Council ...... 21 Figure 13. Hierarchy of social and economic impacts ...... 25 Figure 14. Bowen Basin—procurement of goods and services, community and local government contributions ...... 28 Figure 15. Surat Basin—procurement of goods and services, community and local government contributions ...... 28 Figure 16. Gladstone - procurement of goods and services, community and local government contributions ...... 29 Figure 17. NRWs on-shift by accommodation type and WAV bed capacity, Bowen Basin...... 30 Figure 18. NRWs on-shift by accommodation type and WAV bed capacity, Surat Basin ...... 30 Figure 19. NRWs on-shift by accommodation type and WAV bed capacity, Gladstone ...... 31 Figure 20. Dimensions of community wellbeing grouped into six domains ...... 32

Tables Table 1. Summary of stakeholder consultation ...... 22 Table 2. Typical social impact management measures in place between 2006 and 2014 ...... 34

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Summary In accordance with a state Government’s election commitment, this is my second annual report to Parliament on non-resident workers (NRWs) in the Bowen and Surat Basins. The report also includes an analysis of NRWs in Gladstone. Consistent with the election commitment, the report provides analyses of the number of NRWs and assessments of the flow-on social, community and economic impacts on regional communities, as well as consideration of the ongoing appropriateness of existing workforce arrangements in the context of population ratios. The 2015 report acknowledged the need for future reporting to include more extensive data on NRWs and to be informed by consultation with a broader range of stakeholders. This report includes extensive input from the Queensland Government Statistician’s Office (QGSO), which has enabled a more detailed analysis and broader understanding of the use of NRWs in the resources sector. The Office of the Coordinator-General (OCG) has also consulted with councils in 10 local government areas (LGAs), the Local Government Association of Queensland (LGAQ) and Queensland Resources Council (QRC) to inform the development of this report. The report describes the typical social and economic impacts that are associated with resource development together with details of the typical measures implemented to mitigate and manage these impacts. In the Queensland resources sector, the period between 2006 and 2014 was characterised by the assessment and construction of Queensland’s first major coal seam gas (CSG) / liquefied natural gas (LNG) projects (principally in the Surat Basin and in Gladstone), together with the construction and expansion of coal projects (in the Bowen Basin). The extent to which NRWs were utilised and the economic benefits that have flowed to these areas from the development of these projects are described in the report. The key findings of the report are: 1. The cumulative non-resident populations of Gladstone and the Bowen and Surat Basins reached a peak of 40,265 in 2013, subsequently falling to 26,520 by June 2015. The trend data indicates the majority of these NRWs were associated with the construction phases of the CSG/LNG projects (Surat Basin and Gladstone), together with the construction and expansion of coal projects (Bowen Basin). The construction of Queensland’s CSG/LNG projects brought economic benefit to the Surat Basin and Gladstone, including increased employment and business opportunities through the procurement of goods and services from local businesses and industry. The Bowen Basin experienced similar economic benefits as a result of the construction and expansion of coal mines. 2. Large workforces were required for the construction phases of these projects with the potential to cause a range of social and economic impacts, including impacts on labour supply, housing, health and emergency services. Trend data indicates that purpose-built worker accommodation villages (WAVs) were largely effective in meeting the accommodation demand created by the NRWs. Where housing impacts occurred, a range of housing initiatives was implemented by proponents to mitigate affordability and availability impacts.

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In relation to monitoring the appropriateness of existing workforce arrangements, NRWs associated with the construction of new projects and the expansion of existing operations were the most common driver of non—resident population change. With the exception of Isaac Regional Council, the NRW populations of the LGAs in Gladstone and the Bowen and Surat Basins represented a small ratio of the resident population. In response to the 2015 Parliamentary Inquiry recommendations on fly-in fly-out (FIFO) workforce practices, the government is implementing the proposed Strong and Sustainable Resource Communities (SSRC) policy framework, including proposed legislation and a revised social impact assessment (SIA) guideline. The 2015 Parliamentary Inquiry recommendations follow the government's election commitment to annually report to Parliament on NRWs. The findings of this report support the SSRC policy framework; and the SSRC policy framework provides a policy approach to the issue of resident to non-resident population ratios, which is a focus of the election commitment.

Sat 8eae_ Barry Broe Coordinator-General

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1. Introduction This report is the second Coordinator-General’s annual report to Parliament on NRWs in the Bowen and Surat Basins. It provides a response to the Queensland Government’s SSRC election commitment requiring the Coordinator-General to report annually to Parliament on ‘non-resident’ workforces. The commitment states: … report annually to Parliament, with support from the QGSO and input from local governments, on the number of non-resident workers (including contractors) in the Bowen Basin and Surat Basin, including an assessment of flow-on social, community and economic impacts on regional communities. As part of this assessment, the Coordinator-General will be required to consider the ongoing appropriateness of existing workforce arrangements and monitor population balance with the aim to achieve sustainable resident to non-resident ratios.

Scope and structure of the report In response to the Queensland Government’s SSRC election commitment, this report provides details of the following for the Bowen and Surat Basins:  number of NRWs and analysis of population ratios (Section 2)  consultation with and input from local governments (Section 3)  assessment of flow-on social and economic impacts (Section 4)  social and economic impact management arrangements (Section 5). Gladstone has also been discussed in the report due to the location of LNG projects and their connection with CSG activities in the Surat Basin. The Coordinator-General’s 2015 annual report identified actions to improve future reporting. Consistent with the identified future actions, this report includes extensive inputs from the QGSO and local governments that informs the analyses in this report of the use of NRWs and their impacts. Details of the policy and legislative context for the report are provided below, together with background information on each of the resource areas.

Policy and legislative context The Queensland Government is committed to fulfilling its election commitments to secure the best outcomes for communities affected by resource projects. In response to the 2015 Parliamentary Inquiry recommendations on FIFO workforce practices, the government is implementing the proposed SSRC policy framework including proposed legislation and a revised SIA guideline. The proposed legislation will:  prescribe the SIA process for new resource projects

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 prevent the future use of 100 per cent FIFO workforces on large resource projects near regional centres  prohibit future discrimination against local residents during the recruitment of new operational workers. The broader SSRC policy framework also aims to:  support resource communities to attract and retain workers and their families  provide improved opportunities for local governments to participate in project impact assessment processes  maximise the opportunities for competitive and capable local businesses to access resource project supply chains  provide sufficient flexibility to respond to the peaks and troughs in the resources sector  protect resource worker health and wellbeing  minimise any consequential increases in costs to both proponents and governments in the assessment and operation of resource projects.

Role of the Coordinator-General The role of the Coordinator-General was established in 1938 to coordinate the provision of public infrastructure, encourage development and the creation of jobs in post-depression times. Over the past 80 years, the role has evolved from being concentrated solely on public works to being principally focused on facilitating and regulating major projects, such as mining, petroleum, rail, port, tourism and large urban infrastructure developments. These projects, in turn, promote economic and social development in Queensland. Under Part 4 of the State Development and Public Works Organisation Act 1971 (SDPWO Act), the Coordinator-General may declare a project a ‘coordinated project’ based on one or more of the following:  complex local, state or Commonwealth approval requirements  strategic significance to the locality, region or State  significant positive or negative impacts on infrastructure, the economy or the social or physical environments. A proponent of a coordinated project is required to undertake a rigorous impact assessment of a proposed project’s environmental, social and economic impacts to ensure that the impacts are appropriately managed. In addition to administering the SDPWO Act, along with the relevant Minister, the Coordinator-General has been tasked with developing and implementing the SSRC policy framework.

Geographical scope of report This report covers Gladstone, the Bowen and Surat Basins and the eight LGAs within them.

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Bowen Basin The Bowen Basin (Figure 1) comprises the LGAs of Banana Shire, Central Highlands, Isaac and Whitsunday (Bowen only)1 Regional Councils.

Source: QGSO, 2015a. Figure 1. Bowen Basin

The Bowen Basin is Queensland’s major coal mining region, with 43 coal mines and two metalliferous mines either operating or under construction as at March 2016 (QGSO, 2016).

1 Whitsunday (R) (Bowen only) comprises the statistical areas level 2 (SA2s) of Bowen and Collinsville, which cover the area of the former Bowen Shire.

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Surat Basin The Surat Basin (Figure 2) comprises the LGAs of Toowoomba, Maranoa and Western Downs Regional Councils.

Source: QGSO, 2015c. Figure 2. Surat Basin

The Surat Basin is the principal location for Queensland’s CSG industry. During 2014– 15, three major CSG projects commenced their operations stages in the Surat Basin. As a result, Queensland is now Australia’s leading CSG producing state (Australian Petroleum Production & Exploration Association [APPEA], 2015). By the end of the 2015-16 financial year the three major CSG/LNG projects had reached production status, with approximately 12.02 million tonnes of LNG exported from their processing plants in Gladstone (QRC, 2016).

Gladstone The LGA of Gladstone (Figure 3) hosts Queensland’s largest multi-commodity port and is a major industrial hub. Gladstone has close links with the resources sector, with alumina refining, aluminium smelting, cement and chemical production, power generation, rail transport and coal and LNG export operations (QGSO, 2015b).

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Source: QGSO, 2015b. Figure 3. Gladstone LGA

2. Population

Non-resident population The non-resident population is defined as the number of NRWs on-shift in an area at a given point in time. In resource regions, this group includes FIFO/DIDO/bus-in, bus-out (BIBO) construction and operational workers employed in resource industries, but excludes short-term visitors, tourists, itinerants and seasonal agricultural workers. NRWs are not included in the estimated resident population (ERP) data released annually by the Australian Bureau of Statistics. Estimates for NRWs are derived from the data QGSO collects annually from resource companies and accommodation providers. QGSO commenced monitoring non-resident workforce numbers and associated accommodation supply in the Bowen Basin (2006), and subsequently extended its monitoring to include the Surat Basin (2008) and Gladstone (2011).

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An historic overview of the growth and subsequent fall in the number of NRWs in Gladstone and the Bowen and Surat Basins is illustrated by Figure 4. The cumulative non-resident populations of these areas reached a peak of 40,265 in 2013, before falling to 26,520 by June 2015. This fluctuation has largely been driven by construction workforces which, by their nature, are temporary and larger than operational workforces. The peak in the non-resident population was the result of an overlap of the construction and expansion of mines (Bowen Basin) and the development of the CSG/LNG industry (Surat Basin and Gladstone).

(a) Surat Basin estimates for 2009 are extrapolated from 2008 data. Source: QGSO 2016 Figure 4. Non-resident workers on-shift by region

Further details of the non-resident populations for each of the report areas are provided below.

Bowen Basin In 2006, the Bowen Basin’s non-resident population was estimated at 10,765 persons. Despite a temporary downturn in 2009, the Bowen Basin’s non-resident population experienced ongoing growth until 2012, when it peaked at 25,035 persons, before falling to 15,665 persons in 2015 (QGSO, 2016) (Figure 5). While the use of NRWs for production increased in the period between 2006 and 2015, much of the NRW growth was due to workforces who were engaged in mine expansions, construction of new resource projects and supporting infrastructure. To a lesser extent, NRWs were also engaged in recovery works associated with flood events in 2008 and 2011. The decrease in the Bowen Basin's non-resident population since 2012 is largely due to the winding down of construction activity and the transition from large non-resident construction workforces to smaller production workforces.

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(R) – Regional Council (S) – Shire Council. Numbers of non-resident workers on shift are estimates as at the end of June of the indicated year. Expansion and new project construction periods are for financial years. These timeframes are indicative only and could extend beyond the period shown. Source: QGSO 2016 Figure 5. Non-resident workers on-shift, Bowen Basin LGAs

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Surat Basin The non-resident population in the Surat Basin grew rapidly between 2010 and 2014, peaking at 14,490 in 2014 (Figure 6). Construction workforces for power stations and new coal mines made up most of the non-resident population in Western Downs between 2008 and 2010. From 2011 to 2014, the construction workforces associated with the CSG/LNG projects were the key contributors to the non-resident populations of Maranoa and Western Downs. Non- resident workforces were also utilised in construction of new resource-related infrastructure (QGSO, 2016). The non-resident population of the Surat Basin reduced to 5,425 persons by June 2015, largely due to the transition of the CSG/LNG projects from the construction to production phases.

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(R) – Regional Council Numbers of non-resident workers on shift are estimates as at the end of June of the indicated year. Expansion and new project construction periods are for financial years. These timeframes are indicative only and could extend beyond the period shown. Source: QGSO 2016 Figure 6. Non-resident workers on-shift, Surat Basin LGAs

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Gladstone The non-resident population of Gladstone underwent a protracted period of growth between 2011 and 2014, peaking at 6,655 in June 2014 (QGSO, 2015b). This growth was largely due to NRWs engaged in the construction of a number of resource projects and associated infrastructure. These projects included the Wiggins Island Coal Export Terminal (WICET), Yarwun Alumina Refinery expansion, port dredging, expansion of the Boyne Smelter, port, rail and power infrastructure, and three LNG processing plants located on Curtis Island (Figure 7). The fall in the number of NRWs in Gladstone since 2014 reflects the substantial completion of construction for these projects, and their transition into the production phase. Most production workers for the completed projects are expected to reside locally in Gladstone.

(R) – Regional Council Numbers of non-resident workers on shift are estimates as at the end of June of the indicated year. Expansion and new project construction periods are for financial years. These timeframes are indicative only and could extend beyond the period shown. Source: QGSO 2016 Figure 7. Non-resident workers on-shift, Gladstone

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Resident population The resident populations of Gladstone, and the Bowen and Surat Basins all increased between 2001 and 2015. With the exception of Banana Shire Council, all LGAs within the report areas experienced population growth during this period. Increased employment opportunities associated with growth in the resources sector was a key contributor to this increase, together with natural growth and post-drought recovery (QGSO, 2016).

Non-resident to resident population ratios The ratio of NRWs on shift compared with the resident population provides a basis for assessing the extent to which changes in the non-resident population have the potential to impact upon the demand for services in a local area. A large non-resident population will usually have a more pronounced impact where the local area has a relatively small resident population. Conversely, local areas with large resident populations are usually more capable of meeting increased demand from non-resident populations. Figures 8 to 12 provide representative examples of non-resident to resident ratios for five resource LGAs:  Bowen Basin—Isaac and Central Highlands  Surat Basin—Maranoa and Western Downs  Gladstone. Ratios are expressed as the number of NRWs present in the area per 100 residents.

Isaac and Central Highlands Regional Councils In the Bowen Basin, the LGAs of Isaac and Central Highlands illustrate two differing scenarios in terms of their trends in non-resident to resident population ratios (QGSO, 2006). The non-resident population of Isaac Regional Council is large relative to its resident population, resulting in a high non-resident to resident population ratio (Figure 8). At its peak in 2012, there were 72 NRWs in Isaac for every 100 residents. This peak occurred largely because NRWs were engaged in the construction and expansion of several mines and other projects in the LGA. Completion of most construction activity and production workforce reductions saw the ratio fall to 43 per 100 in 2015 (QGSO, 2016).

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The resident population of Isaac grew by 3,895 persons from 2006 to 2015, whilst the non-resident population grew by 3,320 persons in the same period.

r = revised p = preliminary Source: QGSO 2016 Figure 8. Resident and non-resident population ratios, Isaac Regional Council

The LGA of Central Highlands also has an ongoing non-resident population, which is primarily engaged in coal production. NRWs have also been engaged in construction activities temporarily boosting numbers since 2006. Compared to Isaac, the LGA’s resident population is substantially larger than its non-resident population (Figure 9), resulting in a lower non-resident to resident population ratio. At its peak in 2012, the non-resident to resident population ratio of Central Highlands reached 18 per 100, before declining to 13 per 100 in 2015. The resident population of Central Highlands grew by 4,190 persons between 2006 and 2015, whilst the non-resident population grew by 1,645 persons in the same period. Central Highlands has experienced low fluctuation in its non-resident to resident ratio since 2006, due to the relatively large size of its resident population and strong resident population growth.

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r = revised p = preliminary Source: QGSO 2016 Figure 9. Resident and non-resident population ratios, Central Highlands Regional Council

Maranoa and Western Downs Regional Councils The LGA of Maranoa has a small non-resident population involved in CSG production, which was temporarily boosted by large numbers of CSG construction workers between 2011 and 2014 (Figure 10). At its peak in 2014, the non-resident to resident population ratio of Maranoa was 38 per 100, which was second only to that for Isaac Regional Council for that year. As construction activity wound down in 2015, this ratio fell to a more modest 13 per 100. The resident population of Maranoa increased by only 910 persons between 2008 and 2015, whilst its non-resident population grew by 1,110 persons. Fluctuations in the non-resident to resident population ratio of Maranoa are a reflection of two influences, the small size of the area’s resident population relative to its non-resident population and low growth in the resident population.

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r = revised p = preliminary Source: QGSO 2016 Figure 10. Resident and non-resident population ratios, Maranoa Regional Council

The resident population of the Western Downs LGA is large compared with its non- resident population, which consists mainly of NRWs involved in CSG projects and coal production. Large construction workforces for CSG projects increased the area’s non- resident population between 2011 and 2014 (Figure 11), so that the non-resident to resident population ratio peaked at 27 per 100 in 2014. As construction slowed in 2015, this ratio declined to 11 per 100. The resident population of Western Downs grew by 3,565 persons between 2008 and 2015, whilst the non-resident population grew by 2,355 persons.

r = revised p = preliminary Source: QGSO 2016 Figure 11. Resident and non-resident population ratio, Western Downs Regional Council

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Gladstone Regional Council The LGA of Gladstone with a large and growing population is better positioned to absorb growth in its non-resident population than most other resource LGAs. Gladstone's non-resident population consists largely of construction NRWs, with only a small number of production workers in the region who are not locally resident. Despite reaching 6,655 persons in 2014, the non-resident population in Gladstone was relatively small in comparison with the size of its resident population (Figure 12). As a result, the non-resident to resident population ratio of Gladstone peaked at only 10 per 100 in 2014, before falling to 8 per 100 in 2015. The area’s resident population grew by 8,005 persons between 2011 and 2015, whilst the non-resident population grew by 4,225 persons in that same period.

r = revised p = preliminary Figure 12. Resident and non-resident population ratio, Gladstone Regional Council

Although it is not the sole influence on change, the increased employment opportunities associated with the growth in the resources sector was a key contributor to the growth in the resident populations of Gladstone, and the Bowen and Surat Basins since 2006. In most cases, NRWs associated with the construction of new projects and the expansion of existing operations were the most common driver of non–resident population change. With the exception of Isaac Regional Council, the NRW populations of the LGAs in Gladstone and the Bowen and Surat Basins represented a small ratio of the resident population on an ongoing basis. The following section provides details of the typical social and economic impacts that can occur during the development and operation of resource projects, including details of the type and scale of impacts that can be caused by population changes.

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3. Stakeholder consultation Between June and July 2016, the OCG consulted with councils in 10 LGAs, the LGAQ and QRC to inform the development of this report (Table 1). The 10 LGAs comprised the eight LGAs within the report area (see Section 1), together with the LGAs of Rockhampton and Mackay, which were included due to their role as supply centres to the report areas. OCG coordinated a series of consultation meetings, which were hosted by the LGAs and attended by a range of key stakeholders including: councillors, chief executive officers, and economic development and planning managers. Consistent with the SSRC election commitment to obtain input from local governments, the purpose of the consultation was to inform an assessment of flow-on social, community and economic impacts on regional communities. The Department of State Development also contributed to the consultation process. Table 1. Summary of stakeholder consultation

Location Stakeholder Brisbane Isaac Regional Council, LGAQ Biloela Banana Shire Council Rockhampton Rockhampton Regional Council Gladstone Gladstone Regional Council Mackay Mackay Regional Council Bowen Whitsunday Regional Council Toowoomba Toowoomba Regional Council Dalby Western Downs Regional Council Roma Maranoa Regional Council Emerald Central Highlands Regional Council

Consultation themes Several consultation themes consistently emerged from the stakeholder consultation process, including:  local business and industry opportunities  workforce management  workforce accommodation  community wellbeing  community and stakeholder engagement  social assessment and impact management  cumulative impacts.

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The themes that were captured during stakeholder consultation broadly reflect the typical social and economic impacts that can occur during the construction and operation of resource projects. Below is a summary of the issues raised by the stakeholders during consultation, grouped by key themes. Sections 4 and 5 provide further details of social and economic impacts and their associated management measures. The themes captured during stakeholder consultation have informed the development of the SSRC policy framework, particularly proposed revisions to the SIA guideline.

Local business and industry opportunities Key aspects included:  the benefits of early and ongoing engagement to allow local businesses and industry to understand the nature and scale of economic opportunities and prequalification requirements associated with supplying to a resource project  need for effective feedback to local suppliers on tendering process outcomes  project reporting on regional expenditure, including opportunities to report local and regional procurement by business categories  the benefits of Indigenous business participation  initiatives for local and regional business and industry to maximise on opportunities such as forming partnerships  the need for flexibility in project procurement processes whilst still achieving commercial objectives  the benefits of undertaking supply chain readiness initiatives.

Workforce management Key aspects included:  the need for information on labour supply, sourcing and engagement terms  the processes and criteria for selecting FIFO source communities, including labour supply and capacity of soft and hard infrastructure  maximising opportunities for local workers and the provision of flexible workforce accommodation arrangements.

Workforce accommodation Key aspects included:  the challenges of meeting workforce accommodation demands during the exploration, pre-construction and transition into the construction phases of projects  the need to assess the capacity and vacancy rates of existing WAVs prior to the consideration and any approval of applications for new developments  ensuring workforce accommodation plans apply to the direct workforce and all levels of contractors  recommendation to consider adaptable housing—design and approvals that allow transition from one use to another.

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Community wellbeing Key aspects included:  road safety/fatigue management particularly in relation to drive-in, drive-out (DIDO) workers  provision of health and emergency services, including recommendations to investigate opportunities for shared services  community development opportunities  perceived impacts on community volunteering due to changes in demographic profiles.

Community and stakeholder engagement Key aspects included:  the need for engagement approaches that are responsive to the dynamic nature of SIA and management  the need for shared value approaches that enable stakeholders to contribute to the identification, monitoring and management of social and economic impacts  the need for collaboration in seeking solutions to complex issues  the need for continuity in project staff, recording and implementation of project commitments.

Social assessment and impact management Key aspects included:  social baselines are critical  effective impact management should include the selection of valid social impact indicators, compliance monitoring and responding to changes that are identified through the monitoring process (adaptive management)  the need to monitor and mitigate housing peaks and troughs that can occur through the resource cycle.

Cumulative impacts Key aspects included:  the need to manage the impacts that can occur when multiple projects proceed locally or regionally in similar timeframes  need to focus on impacts on soft infrastructure (housing, health and emergency services) and hard infrastructure (roads, water and waste management).

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4. Social and economic impacts The construction and operation of resource projects has the potential to result in a range of social and economic impacts (both positive and negative) on the regions in which they are located. The nature and extent of these impacts will vary from project to project, but typically involve a hierarchy of social impacts as outlined in Figure 13.

Adapted from Fleming and Measham 2015 Figure 13. Hierarchy of social and economic impacts

The assessment of project-specific impacts is undertaken as part of the environmental impact assessment process, which includes an assessment of the project’s anticipated social impacts for large resource projects. The following paragraphs describe the typical social and economic impacts as they relate more broadly to the construction and operation of resource projects in the Bowen and Surat Basins and in Gladstone, including those that relate to the use of NRWs in the resources industry. It is important to note that social impacts have the potential to occur long before regulatory assessment is required (Vanclay, 2015). Impacts on local housing markets due to increased housing costs associated with speculative purchasing and increased rents are examples of early impacts; and these occurred prior to the development of the CSG/LNG industry in Gladstone and the Surat Basin. This also occurred in the Bowen Basin due to the construction and expansion of coal projects.

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At a broad level, the positive impacts of the resources industry on the state’s economy are substantial and include its expenditure on wages, infrastructure and operating costs (Ivanova & Rolfe, 2011). The direct purchases made by resource companies flow on through the supply chain, creating local employment and generating further purchases of goods and services from regional industries. The extent to which the direct purchases are multiplied through the economy by secondary expenditure (secondary impact) provides a more comprehensive understanding of the social and economic impact of a development activity in a region (Ivanova & Rolfe, 2011). Research into the nature and extent of flow-on social and economic impacts associated with the use of non-resident workforces on regional economies is limited. One study by Ivanova and Rolfe (2011) concluded that the use of non-resident workforces can reduce the level of positive economic impacts to local economies. While increases in employment and expenditure (primary and secondary impacts) are beneficial to regional economies, they may also lead to negative impacts such as labour market shortages, infrastructure bottlenecks and increases in housing costs (Rolfe et al., 2007). It is therefore critical to strike a balance between realising the benefits of positive flow-on economic impacts to resource regions whilst also mitigating potential negative effects such as strains on social infrastructure (housing, provision of services and other community wellbeing impacts) that can occur during spikes in non-resident population numbers (e.g. during construction). The engagement of large workforces over a relatively short time period, compared with the life of a project, has the potential to cause ‘shocks’ to regional economies (Measham et al., 2015), and these potential impacts require effective management measures. The use of NRWs and associated WAVs during the construction phases of projects has been a key measure in mitigating and managing the potential ‘shock’ impact on regional economies. In keeping with the scope of the report, the following sections focus on impacts that relate to the use of NRWs (such as housing) and the regional economic benefits that result from the purchase of goods and services during the construction and operation of resource projects. Community wellbeing is also discussed. Impacts on hard infrastructure, such as local roads, are not within the scope of the report and are considered in detail during the assessment of projects.

Regional expenditure The Coordinator-General has required proponents of coordinated projects to outline strategies that they will implement to encourage participation by local business and industry and the local workforce. This includes ensuring local suppliers of goods and services receive full, fair and reasonable opportunity to tender for work throughout the life of the project. The QRC’s Queensland Resource and Energy Sector Code of Practice for Local Content (the code) was published in March 2013 and has since been widely adopted by industry as a guide for local procurement plans across the resources sector. The code is designed specifically for companies undertaking significant greenfield and

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brownfield resource and energy sector investment projects and may also be applied to the operational phases of projects (QRC, 2013a). All Queensland operating resource and energy companies who adopt the code are requested to submit an annual code industry report (CIR) to QRC. QRC produces an annual Code Effectiveness Report (CER) based on data submitted through the CIRs, which includes the following:  the quantum and location of Queensland content procurement in the preceding year and associated social and economic benefits  why local content spend may be increasing or decreasing  case studies demonstrating the effective application of the code  feedback on the effectiveness of the capacity and capability development programs, whether publically or privately funded  the general progress of the companies in meeting the principle and framework of the code  any recommendations of the QRC Board to amend the code (QRC, 2013a). QRC also surveys its full members annually to identify the economic contribution of the minerals and energy sector to Queensland and its regional economies. The survey data is used to calculate the direct and indirect economic contribution of the resources sector to regional economies. The regional data includes goods and services expenditure, community, and local government contributions. The outcomes of the survey are published in the Annual Economic Contribution In the following sections of this report, the expenditure data in QRC’s CER and the Annual Economic Contribution Reports from 2010 to 2015 have been collated to provide an historical overview of procurement trends for each of the report areas (QRC, 2015).

Bowen Basin Direct and indirect resources industry expenditure peaked at $8.8 billion during 2012 (Figure 14), aligning with the peak of construction and expansion of new mines in the Basin (see Section 2). Expenditure levels have since fallen to $3.6 billion reflecting the completion of the construction of several resource projects.

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Source: QRC, 2011–2015 Figure 14. Bowen Basin—procurement of goods and services, community and local government contributions

Surat Basin Resource activities in the Surat Basin have been characterised by the development of the CSG industry. Direct and indirect resources sector expenditure in the Basin peaked in 2014 at $5.2 billion (Figure 15), coinciding with the peak in the construction period of the CSG projects. Resource expenditure has since fallen but remains above 2011 and 2012 levels at $2.8 billion, reflecting the move from the construction to the operations phases of the CSG projects.

Source: QRC, 2011–2015 Figure 15. Surat Basin—procurement of goods and services, community and local government contributions

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Gladstone Resources sector expenditure in Gladstone has been driven by a number of major projects, including the construction of three LNG projects, WICET and associated rail and infrastructure projects. A peak in expenditure occurred in 2012 at $9.2 billion (Figure 16) coinciding with the start of the LNG construction phase. Expenditure levels have gradually fallen since 2012 but currently remain above the 2011 level at $4.1 billion.

Source: QRC, 2011–2015 Figure 16. Gladstone - procurement of goods and services, community and local government contributions

Workforce accommodation The use of NRWs requires the development and utilisation of commercial accommodation arrangements, which may include the following:  hotel, motel and caravan park accommodation  purpose-built WAVs. Resource companies have also utilised housing, head leased from the private rental market, in instances where the above workforce accommodation options have not been available in sufficient quantities. The provision of purpose-built WAVs for NRWs has been a key aspect of mitigating and managing the impacts on housing availability and affordability, which occurred during the construction and expansion stages of the CSG/LNG and coal projects.

Bowen Basin The number of WAV beds in the Bowen Basin increased along with the overall growth in NRWs between 2006 and 2012 and continued to grow (Figure 17), peaking at 32,495 beds by June 2013. The WAV bed capacity continued to grow beyond the peak

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of the non-resident workforce in 2012, and as of 2015 exceeded the number of NRWs on-shift by a considerable margin. The number of NRWs staying in other accommodation was highest in 2011 and 2012 at 2,830 and 2,885 persons respectively (QGSO, 2016).

Other accommodation includes hotels/motels, caravan parks, and other rental accommodation occupied by non-resident workers. Source: QGSO 2016. Figure 17. NRWs on-shift by accommodation type and WAV bed capacity, Bowen Basin

Surat Basin The CSG industry was the major contributor to increased demand for WAV beds in the Surat Basin between 2011 and 2014 (Figure 18). The supply of WAV beds exceeded NRWs on-shift from 2012 onwards, with the demand for WAV beds declining steeply between 2014 and 2015 due to CSG projects transitioning from construction to operation (QGSO, 2016).

Other accommodation includes hotels/motels, caravan parks, and other rental accommodation occupied by non-resident workers. Source: QGSO 2016. Figure 18. NRWs on-shift by accommodation type and WAV bed capacity, Surat Basin

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Gladstone The commencement of construction for the LNG projects presented challenges in meeting the demands for NRW accommodation in Gladstone prior to 2013 (Figure 19). Completion of WAVs on Curtis Island alleviated this demand, resulting in the supply of WAV beds exceeding demand beyond 2013 (QGSO, 2016).

Other accommodation includes hotels/motels, caravan parks, and other rental accommodation occupied by non-resident workers. Source: QGSO 2016. Figure 19. NRWs on-shift by accommodation type and WAV bed capacity, Gladstone

Community wellbeing The development of resource projects has the potential to result in rapid and significant change to host communities. The nature and extent of any changes will vary from project to project but typically may involve impacts on community wellbeing and social outcomes, which are complex and always multifactorial (Vanclay, 2015). The multifactorial nature of community wellbeing impacts present challenges for identifying suitable indicators that specifically monitor impacts associated with resource development. Quantitative indicators such as demographic changes, income changes and public order offences have limitations in determining the extent to which changes are directly attributable to resource projects. Qualitative survey research provides insights into community wellbeing by understanding the values, expectations and aspirations of host communities prior to and during the development of resource projects. A study of residents in the Western Downs LGA in the Surat Basin (Walton et al., 2014), investigated wellbeing across 15 dimensions. These 15 dimensions were subsequently grouped into six domains (Figure 20). The development of the dimensions and domains were informed by the results of a survey, which looked at residents’ attitudes to and perceptions of community wellbeing and responses to change.

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Source: Adapted from Walton et al. 2014 Figure 20. Dimensions of community wellbeing grouped into six domains

The study concluded that: When residents feel that their community is responding effectively to changes with good planning, leadership, and community trust they feel more positive about their future. Moreover, when the community feels that all parties can work together the more positive they feel about the future of their community. Resilience actions, along with current levels of wellbeing are important for creating a positive expectation of future wellbeing. Achieving the best possible outlook for a region is one way to facilitate future growth in a region (Walton et al., 2014). In assessing and conditioning coordinated projects, the Coordinator-General will consider the extent of potential social and economic impacts together with the proposed measures to avoid or mitigate these impacts. The following section provides details of typical social impact management measures.

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5. Social assessment and impact management The assessment and management of social impacts is a dynamic process, which is undertaken in phases. An outcome-based, adaptive management approach effectively responds to the changing social circumstances that can be associated with the development of resource projects. The International Association for Impact Assessment (IAIA) in its Principles for Social Impact Assessment, defines SIA as: ….the processes of analysing, monitoring and managing the intended and unintended social consequences, both positive and negative, of planned interventions (policies, programs, plans, projects) and any social change processes invoked by those interventions (IAIA, Vanclay et al., 2015).

Overview of social impact management In the Queensland resources sector, the period between 2006 and 2014 was characterised by the assessment and construction of Queensland’s first major CSG/LNG projects (principally in the Surat Basin and in Gladstone), together with the construction and expansion of coal projects in the Bowen Basin. The extent to which NRWs were utilised and the economic benefits that have flowed to these areas from the development of these projects during this period are detailed in previous sections of this report (Section 4). In keeping with the IAIA principles for SIA management, proponents of coordinated projects were required to develop social impact action plans, which detailed impact management and monitoring measures across five key areas. Proponents were required to monitor the effectiveness of their impact management measures and to report on the outcomes through an annual report to the Coordinator- General during the construction phase of the project. This annual reporting was integral to assessing the appropriateness of management measures, including the use of NRWs. An overview of the typical social impact management measures that were in place during the period between 2006 and 2014 is provided in Table 2.

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Table 2. Typical social impact management measures in place between 2006 and 2014

Key area Typical management measures Workforce management  Use of NRWs for construction phases to minimise housing impacts and potential impacts on local labour supply  investment in apprenticeship and traineeship programs to enable employment opportunities for local and regional workers. Workforce housing and  Provision of WAVs to minimise impact on housing accommodation availability and affordability  investment in affordable housing programs and housing provision for low income families, where required. Local business and industry  Investment in business development and mentoring content programs to build capacity and capability  local content plans that provided local employment and procurement of goods and services. Community wellbeing  Project commitments to community wellbeing initiatives such as health care, childcare, community groups and not-for-profit organisations. Community and stakeholder  Development and implementation of stakeholder and engagement community engagement plans.

The appropriateness of social impact management measures has been described in this report using trend data in the following key areas:  workforce management, including details of NRW  workforce accommodation provisions  ratios of NRW to resident populations  local business and industry procurement  community wellbeing.

Strong and Sustainable Resource Communities Framework As discussed in the introduction, the Coordinator-General has been tasked with developing and implementing the SSRC policy and legislation, which will require all new resource projects to undertake a SIA as part of their overall assessment process. The SIA process will be supported by a revised SIA guideline. The development of the guideline has been informed by consultation with key stakeholders; it builds upon existing requirements for coordinated projects to adopt an outcomes-based, adaptive management approach to address a range of social impacts.

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The SIA guidelines require proponents to consult with key stakeholders to identify potential project impacts and develop associated impact management and mitigation strategies in the following key impacts areas:  workforce management  housing and accommodation  local business and industry content  health and community wellbeing  community and stakeholder engagement.

6. Conclusion Consistent with a state Government’s election commitment, the Coordinator-General’s 2016 annual report to Parliament on NRWs in Gladstone and the Bowen and Surat Basins provides analyses of the number of NRWs and includes assessments of the flow-on social, community and economic impacts on regional communities. It also considers the ongoing appropriateness of existing workforce arrangements in the context of monitoring the balance between resident and non-resident population ratios in the report areas. The key findings of the report are: 1. The cumulative non-resident populations of Gladstone and the Bowen and Surat Basins reached a peak of 40,265 in 2013, subsequently falling to 26,520 by June 2015. The trend data indicates the majority of these NRWs were associated with the construction phases of the CSG/LNG projects (Surat Basin and Gladstone), together with the construction and expansion of coal projects (Bowen Basin). 2. The construction of Queensland’s CSG/LNG projects brought economic benefit to the Surat Basin and Gladstone, including increased employment and business opportunities through the procurement of goods and services from local businesses and industry. The Bowen Basin experienced similar economic benefits as a result of the construction and expansion of coal mines. 3. Large workforces were required for the construction phases of these projects with the potential to cause a range of social and economic impacts, including impacts to labour supply, housing, health and emergency services. Trend data indicates that purpose-built WAVs were largely effective in meeting the accommodation demand created by the NRWs. Where housing impacts occurred, a range of housing initiatives was implemented by proponents to mitigate affordability and availability impacts. In relation to monitoring the appropriateness of existing workforce arrangements, NRWs associated with the construction of new projects and the expansion of existing operations were the most common driver of non–resident population change. With the exception of Isaac Regional Council, the NRW populations of the LGAs in Gladstone and the Bowen and Surat Basins represented a small ratio of the resident population. In response to the Government’s election commitments and the 2015 Parliamentary Inquiry recommendations on FIFO workforce practices, the government is

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implementing the proposed SSRC policy framework, including proposed legislation and a revised SIA guideline. The findings of the 2016 annual report support the SSRC policy framework.

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Acknowledgements The Coordinator-General extends thanks to:  the staff of QGSO  the staff of QRC  the staff of LGAQ  the staff and elected representatives of – Banana Shire Council – Central Highlands Regional Council – Gladstone Regional Council – Isaac Regional Council – Mackay Regional Council – Maranoa Regional Council – Rockhampton Regional Council – Toowoomba Regional Council – Western Downs Regional Council – Whitsunday Regional Council.

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Abbreviations

Abbreviation Definition ABS Australian Bureau of Statistics BIBO bus-in, bus-out CER code effectiveness report CG Coordinator-General CIR code industry report CSG coal seam gas DIDO drive in, drive out ERP estimated resident population FIFO fly-in, fly-out LNG liquefied natural gas LGA local government area IAIA International Association for Impact Assessment LGAQ Local Government Association of Queensland LIPP local industry participation plan NRW non-resident worker QGSO Queensland Government Statisticians Office QRC Queensland Resource Council SDWPO Act State Development and Public Works Organisation Act 1971 SIA social impact assessment SSRC Strong and Sustainable Resource Communities WAV worker accommodation village WICET Wiggins Island Coal Export Terminal

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Glossary

Term Definition brownfield Land that has been previously used for industrial or commercial uses. code effectiveness report Provides government with a summary of industry’s progress in adopting the Queensland Resource Council’s Code of Practice for Local Content. code industry report All Queensland operating resources and energy companies are requested to submit a Code Industry Report. cumulative impacts Effects which are caused by the combined results of past, current and future activities. environmental impact A process of evaluating the likely environmental assessment impacts of projects. flow-on Effects that occur as the direct result of an activity or occurrence. fly-in, fly-out FIFO); drive- Employment arrangements whereby non-resident in, drive-out (DIDO); bus-in, workers commute between home and their place of bus-out (BIBO) work by air or road at the start and end of their roster. greenfield Land that has never been used. multiplier effect The increase in final income arising from any new injection of spending. local content The development of local skills, technology transfer and the use of local workforces and manufacturing. local government area A geographical area of responsibility of a local government council. local industry participation Outlines how contractors are required to source plan equipment, materials and services from local suppliers when tendering for the project. mitigate Reduce the significance of negative impacts. non-resident workers FIFO/DIDO/BIBO workers who live in the same local (NRW) area as their place of work while on-shift, then return to their usual place of residence when rostered off. prequalification An assessment of an applicant’s capability to provide the requisite resources and experience to complete the job as required. procurement The act of finding, acquiring or buying goods and services or works from an external source. proponent A person, group or organisation that puts forward a proposition or proposal. QRC Queensland Resources Council.

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QRC Code of Practice for Assists Queensland operating resources and energy Local Content companies to support local capable industry participation in significant investment projects. resident population Those who permanently reside in a community or locality. resource region A geographical area that is different from other places due to the nature of its mineral or gas reserves, or that hosts resource industry activities, including mining, gas and associated infrastructure developments. social disruption The alteration or breakdown of social life within a community. social impact assessment A methodology to review the social effects of projects. (SIA) stakeholders A party that has an interest in a project, that can either affect or be affected by the project. tendering A formal offer to carry out work or supply goods for a fixed price. worker accommodation A type of hostel accommodation used to house village (WAV) unaccompanied non-resident workers, usually in the form of demountable dwellings arranged in a camp.

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References Australian Petroleum Production & Exploration Association (APPEA) 2015, Key Statistics, APPEA, Brisbane, viewed 7 September 2016, http://www.appea.com.au/wp- content/uploads/2015/05/APPEA_Key-Stats15_web.pdf. D Fleming, T Measham & Y Cai 2015, Overview and synthesis of regional economic effects of the CSG industry during the construction phase: A literature review report to the Gas Industry Social and Environmental Research Alliance (GISERA), CSIRO, Canberra. G Ivanova and J Rolfe 2011, ‘Using input-output analysis to estimate the impact of a coal industry expansion on regional and local economies’, Impact Assessment and Project Appraisal, vol. 29, no. 4, pp. 277-288. Queensland Government Statistician’s Office (QGSO) 2015a, Bowen Basin population report, 2015, Queensland Government Statistician’s Office. ——2015b, Gladstone region population report, 2015, Queensland Government Statistician’s Office. ——2016, Population change in Queensland resource regions, Queensland Government Statistician’s Office (forthcoming). Queensland Resources Council (QRC) 2011, Economic Impact of Resources Sector on the Queensland Economy 2010/11, prepared for Queensland Resources Council, Lawrence Consulting. ——2012, Economic Impact of Resources Sector on the Queensland Economy 2011/12, Prepared for Queensland Resources Council, Lawrence Consulting. ——2013a, Code of Practice for Local Content: A voluntary code to help companies engage with local industry, Queensland Resources Council, Brisbane 4000. ——2013b, Economic Impact of Resources Sector on the Queensland Economy 2012/13, prepared for Queensland Resources Council, Lawrence Consulting. ——2014, Economic Impact of Resources Sector on the Queensland Economy 2013/14, prepared for Queensland Resources Council, Lawrence Consulting. ——2015, Economic Impact of Resources Sector on the Queensland Economy 2014/15, prepared for Queensland Resources Council, Lawrence Consulting. J Rolfe, B Miles, S Lockie & G Ivanova 2007, ‘Lessons from the social and economic impacts of the mining boom in the Bowen Basin 2004–2006’, Australasian Journal of Regional Studies, vol. 13, no. 2, pp. 134-153. F Vanclay, AM Esteves, I Aucamp I & DM Franks 2015, Social Impact Assessment: Guidance for assessing and managing the social impacts of projects, Fargo ND: International Association for Impact Assessment. A Walton, R McCrea & R Leonard 2014, CSIRO Survey of Community Wellbeing and Responding to Change: Western Downs Region in Queensland, CSIRO Technical Report, CSIRO, Australia.

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2016, Shiploads of Queensland LNG exports http://www.resourcinginnovation.com.au/education/shiploads-of-queensland-lng- exports/

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The Coordinator-General PO Box 15517, City East Qld 4002 tel 13 QGOV (13 74 68) fax +61 7 3452 7486 [email protected] www.statedevelopment.qld.gov.au