Advice on legislation or legal policy issues contained in this paper is provided for use in parliamentary debate and for related parliamentary purposes. This paper is not professional legal opinion.
Briefing Paper No. 14/2002 by Stewart Smith
Page Content
Drought is an intrinsic part of the Australian landscape. There is no universal
definition of drought, one suggestion is that drought is a prolonged,
abnormally dry period when there is not enough water for users' normal needs.
Drought is not simply low rainfall, for then much of inland Australia would be
in perpetual drought. The National Drought Policy Review Task Force noted that
an objective, scientific definition of drought has proved difficult to
standardise on a regional or industry basis because of the complexity of
considerations involved. Instead, the Task Force noted that in an agricultural
context, drought represents one of the uncertainties farmers face in
maintaining the volume and quality of production. It finally adopted the
following working definition of drought: "drought represents the risk that
existing agricultural activity may not be sustainable, given spatial and
temporal variations in rainfall and other climatic conditions."
Australia has one of the most variable rainfall climates in the world, and
severe drought affects some part of Australia about once every 18 years.
However, intervals between severe droughts have varied from four to 38 years.
Whilst there are many causes for these fluctuations, the most influential is
the climate phenomenon called the Southern Oscillation. This is a major air
pressure shift between the Asian and east Pacific regions whose best known
extremes are El Nino events. Many, but not all, droughts over eastern and
northern Australia are the result of an El Nino event.
Contemporary drought policies have as their basis the findings of the 1989
Commonwealth commissioned Drought Policy Review Task Force. The Task Force was
established following a Commonwealth decision to remove drought funding from
the Natural Disaster Relief Arrangements from 1 July 1989. The Task Force was
critical of the inclusion of drought under natural disasters relief schemes,
where the focus became not on the variability of climate, and the ability to
cope with it, but the conditions under which government assistance could become
available. The Task Force recommended that a national drought policy should
focus attention on the respective roles of producers and governments in
implementing a self-reliant, risk management approach to drought. A new
National Drought Policy was ratified by state and commonwealth governments in
1992. The three principles of the Policy are to: encourage primary producers
and other sections of rural Australia to adopt self-reliant approaches to
managing climatic variability; maintain and protect Australia's agricultural
and environmental resource base during periods of extreme climatic stress; and
ensure early recovery of agricultural and rural industries, consistent with
long term sustainable levels.
Federal involvement in drought relief is determined on the basis of exceptional
circumstances. State Government relief commences after an area has been drought
declared for a period of six months. The current drought now affects 92 percent
of the State, and debate has focused on how to 'drought-proof' the nation.