June 2024

Air Pollution in the ACT - A story of one of our historic environmental concerns

As we head into another chilly Canberra winter and the UN observes the 51^st World Environment Day on the 5^th of June, we’ve delved into the archives to highlight our community’s historic passion and concern for the environment and the effects of pollution.

World Environment Day, led by the United Nations Environment Programme (UNEP), was first celebrated in 1973 and continues to encourage and celebrate environmental action to address climate change by urging governments, businesses, and individuals to create a more sustainable world.  The ACT is often seen as a leader in environmental initiatives, such as our 100% renewable energy target. In 1981, the House of the Assembly was already looking into alternative power sources, as Canberra was hit by a mid-winter power crisis caused by unreliable coal-fired power stations in NSW.

While climate change is probably the great environmental issue of our time, pollution, in its many forms has been a longstanding concern for Canberra’s residents. Over the last 12 months, the top 3 open data assets accessed by Canberrans relate to Air Quality measurements. Our understanding of, and attitudes toward environmental issues has evolved over time. For example, in the 1960s and 70s it was so commonplace to have a backyard incinerator to burn household waste in Australia, that the practice rates a mention in the 1964 poem “Homo Suburbiensis” by iconic poet Bruce Dawe. Today, Canberrans continue to use backyard fire pits, however, their use is strictly controlled and monitored by the Environment Protection Authority and ACT Emergency Services.

Our region experiences prevailing meteorological and topographic conditions that can lead to the build-up of pollutants. A study released by the ANU in 1964 identified high levels of air pollution in the winter of 1963, due to stoves for heating in both commercial and residential buildings. Perhaps it’s not surprising, then, that Canberrans’ interest in and passion for protecting the environment is evident in the many complaints within the ArchivesACT collection regarding the burning of waste in both residential and commercial settings in the 1970s (See Figures i, ii, iii).

Fig. i.   Letter from Turner Progress Association to the ACT Housing Commissioner

Fig. ii.  Letter from Greg Cornwall (Member of the ACT House of the Assembly) to the Minister for the Capital Territory

Fig. iii. Media enquiry from the ABC seeking information regarding air pollution legislation in the ACT

Smoke pollution wasn’t the only issue that was gaining attention in the Nation’s Capital. In 1971, members of the local National Roads and Motorists Association (NRMA) purchased a carbon monoxide meter, one of only 10 in the country, and found most of the cars they tested exceeded the World Health Organisations (WHO) emission recommendations. The Department of the Capital Territory commissioned a study in 1973 on Gaseous Emissions in Canberra based on alarming measurements taken by Dr Niel Daly (ANU) on Northbourne Avenue in 1972 (see Figures iv, v).

Fig. iv.  Carbon Monoxide levels on Northbourne Avenue, 24 August 1972

Fig. v.   Comparison of Carbon Monoxide levels, Los Angeles, Detroit and Canberra, 1972

The need for pollution control legislation in the ACT was acknowledged in 1972 with the establishment of the Interdepartmental Committee on Environment Quality in the ACT. Sub-committees on air, water and noise pollution worked on drafts for over 12 years, consulting with and using research conducted by universities, government bodies and peer reviewed research contained within journals such as the Journal of the Air Pollution Control Association.

Each draft contained within the ArchivesACT collection provides a real snapshot of the concerns of the day. Canberra wasn’t immune to the economic and political turmoil that marked the 1970s (see Figure vi). For example, comments made on potential control measures for motor vehicle exhaust pollution can be linked to the impact of the Organisation of the Petroleum Exporting Countries (OPEC) Oil Shocks of 1973 and 1979.

Fig. vi. Memorandum from Secretary for the Department of Construction to the Secretary for the Department of the Capital Territory commenting on economic factors impeding introduction of pollution control legislation

Several drafts were referred to the assembly for approval between 1978 to 1983, with the final draft of the legislation referred by Tom Uren (Minister for Territories and Local Government) to the House of Assembly on the 22^nd of November, 1983. The draft was then the subject of an inquiry by the Standing Committee on Planning and Development (see Figure vii) in early 1984. Successful gazettal occurred in late 1984, resulting in the Air Pollution Ordinance 1984 and Water Pollution Ordinance 1984.

Fig. vii. Newspaper advertisement seeking submissions on inquiry into proposed pollution control legislation. Canberra Times, 4 February 1984

Today, backyard rubbish burning is a thing of the past, carbon monoxide levels on Northbourne Avenue no longer compare with those of a Detroit freeway, and we can look forward to celebrating World Environment Day again in 2025.

References:

10^th ACT legislative Assembly. 2020. Parliamentary and Governing Agreement. https://www.cmtedd.act.gov.au/__data/assets/pdf_file/0003/1654077/Parliamentary-Agreement-for-the-10th-Legislative-Assembly.pdf

Access Canberra. 2022. Air Pollution from Domestic Premises. Retrieved 6 June, https://www.accesscanberra.act.gov.au/__data/assets/pdf_file/0005/2237891/Air-pollution-from-domestic-premises.pdf

ACT Emergency Services, n.d. Home Fire Safety. Retrieved 6 June 2024. https://esa.act.gov.au/be-emergency-ready/home-fire-safety

ACT House of Assembly. 1981. “Tilting at Windy Power Source: Hird on ACT Windmills.” Assembly Reporter, Issue no 15 (June-July): 3

ACT House of Assembly. 1982. Minutes of proceedings of the Australian Capital Territory House of Assembly: 1^st Assembly, meetings 29 June 1979 to 21 May 1982. Canberra ACT: Commonwealth Government Printer

ACT House of Assembly. 1986. Minutes of proceedings of the Australian Capital Territory House of Assembly: 2^nd Assembly, meetings 16 July 1982 to 17 June 1986. Canberra ACT: Commonwealth Government Printer

Boubel, Richard W. 1975. “Best Available Technology: Good News or Bad News?” Journal of the Air Pollution Control Association, vol. 25 no.3 (March): 226

Cashman, A.G. 1983. Air and Water Pollution legislation Ministerial Minute Paper. Legislation and Legal Policy Branch, Department of the Capital Territory, October 31, 1983

Clark, Andrew. 2021. “Why the 1970s was the decade of living dangerously.” The Australian Financial Review, November 19, 2021. https://www.afr.com/policy/economy/why-the-1970s-was-the-decade-of-living-dangerously-20210916-p58s6r

Department of Science. 1976. Towards new perspectives for Australian meteorological services: a discussion paper / presented by Senator the Hon J.J. Webster, Minister for Science. Canberra, ACT: Australian Government Publishing Service

Dawe, Bruce. 1964. Homo Suburbiensis. Retrieved May 30, 2024, from https://nebo-lit.com/poetry/dawe/Bruce-Dawe-homo-suburbensis.html

Freedom of Information (Accessibility of Government Information) Statement 2024 (No 1)(ACT). May 15 2024. https://www.legislation.act.gov.au/ni/2024-242/

Owens, Warren. 1971. “Keeping the skies clear”. The Canberra News, March 16, 1971,

The Canberra Times. 1964. “Canberra Air Pollution 'High.'” February 22, 1964, 1. Retrieved May 21, 2024, from http://nla.gov.au/nla.news-article131744981

UN Environment Programme (UNEP). n.d. About: What is World Environment Day? Accessed 20^th May 2024. https://www.worldenvironmentday.global/about/history

Figure:

1. Letter from Mr Dickins (Secretary Turner Progress Association) to the ACT Housing Commissioner expressing concern around waste incinerator smoke. 12 June 1974
2. Letter from Greg Cornwall (Member of the ACT House of the Assembly) to the Minister for the Capital Territory urging action on the pollution legislation. 22 June 1979
3. Media enquiry from the ABC seeking information regarding air pollution legislation in the ACT. 8th February 1980
4. Carbon Monoxide levels on Northbourne Avenue, 24 August 1972. Dr Neil Daly, Position Paper on Exhaust Emissions in Canberra, 22 December 1972
5. Comparison of daily (weekday hourly averages) Carbon Monoxide levels, Los Angeles, Detroit and Canberra, 1972. Dr Neil Daly, Position Paper on Exhaust Emissions in Canberra, 22 December 1972
6. Memorandum from Secretary for the Department of Construction to the Secretary for the Department of the Capital Territory commenting on economic factors impeding introduction of pollution control legislation. 21 September 1978
7. Newspaper advertisement seeking submissions on inquiry into proposed pollution control legislation. Canberra Times, 4 February 1984

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