Commonwealth New Building Project Referral_wbgs Submission
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PUBLICCOMMENTONREFERRAL
DEPARTMENTOFFINANCE&DEREGULATION
CONSTITUTIONAVENUE,PARKES,ACT
CONSTRUCTIONOFANEWOFFICEBUILDING
Referenceno.2009/4814
SubmissiontotheApprovals&WildlifeDivisionDepartmentoftheEnvironment,Water,Heritage&theArts
9April2009
ProfessorJamesWeirick,President
WalterBurleyGriffinSocietyInc.140EdinburghRoad
Castlecrag,NSW2068
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TABLEOFCONTENTS
2
TABLEOFCONTENTS
1.0TheSignificantImpactoftheProposal 32.0TheProponentsMitigatingMeasuresacriticalresponse 53.0CentralNationalAreaHeritagePlanning
&thePrecautionaryPrinciple 16
4.0Conclusions&Recommendation 20Appendix1:TheWalterBurleyGriffinSocietyInc 21
Appendix2:
Biographical
profile
Professor
James
Weirick
22
ThisSubmissionwaspreparedbyProfessorJamesWeirickonbehalfoftheManagement
CommitteeoftheWalterBurleyGriffinSocietyInc.
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1.0 THESIGNIFICANTIMPACTSOFTHEPROPOSAL
4
geographicextentoftheimpactswouldbesevereinthecontextofthesymbolic
centreofCanberra:theimpactswouldbeeffectivelypermanentandirreversible;
theywouldbemediumtolargescale,andmoderatetohighintensity.
1.11 TheprojectwasfundedbytheCommonwealthGovernmentinthe20062007Budget;theMinisterforFinance&DeregulationannouncedtheappointmentoftheManagingContractorinOctober2008constructionoftheproject,ifapproved,can
beconsideredlikely.
1.12 AsfurtherdiscussedinSection2.0(below),thebulk,scale,visibilityandcomplexityoftheprojectwouldinvolve:
theerectionofasubstantialbuildingcomplexadjacenttoandwithinimportantsightlinesofaheritageplaceinconsistentwiththeheritagevalues
oftheplace;
substantiallydiminishtheheritagevalueoftheheritageplaceforacommunityorgroupforwhichitissignificanttheAustralianpeople;and substantiallyalterthesettingoftheheritageplaceinamannerwhichisinconsistentwiththeheritagevaluesoftheplace.
1.13 TheimpactoftheCommonwealthNewBuildingProject,ifapproved,wouldbesignificanttherefore,atthisstageofthereferral,theprojectshouldbedeclareda
controlledaction,andbesubjecttoacomprehensiveassessment,consultationand
approvalprocessundertheEPBCAct.
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2.0 MITIGATINGMEASURESACRITICALRESPONSE
5
2.0TheProponentsMitigatingMeasuresacriticalresponse
2.1 Inthissubmission,theWalterBurleyGriffinSociety(WBGS)willhighlightkeyissuesofconcernwithrespecttoheritageconservationandreservetherightto
makeamorecomprehensivesubmission,ifandwhentheNewCommonwealth
BuildingProjectisdeclaredacontrolledactionandfurtherpublicconsultationisinitiated.
2.2ThereferraldocumentsubmittedtoDEWHAbytheproponent theSection49ProjectBranch,Property&ConstructionDivision,DepartmentofFinance&
Deregulation(DFD)containsthefollowingstatement:
AHeritageImpactAssessment(HIA)hasbeenpreparedbyaConservation
ArchitectandPlanner....Insummary,theHeritageImpactAssessmentreport
concludesthattheprojectwillnothaveasignificantoradverseimpactonheritage
values,since
the
proposed
architectural
response
to
the
site,
and
the
proposed
landscape
designmitigationmeasuresaresufficienttopreventsuchimpactsoccurring.1
2.3TheheritagevaluesaffectedbytheproposedNewCommonwealthBuildingareindicatedbythefollowingextractsfromtheStatementsofSignificanceonthe
AustralianHeritageDatabase.
2.4AustralianWarMemorial(AWM)andtheMemorialParade,AnzacParade:OfficialValues
Criterion:AEvents,Processes
TheAWMisanoutstandingnationalmuseumandmemorial,asexpressed
throughthemainbuilding,thecourtyardfabric,interiorspaces,theSculpture
Gardenandthecollections. TheAWMwasestablishedasadirectconsequence
oftheFirstWorldWar,oneoftheseminaleventsinAustralianhistory. It
embodiedthevisionofCharlesBeanOfficialFirstWorldWarcorrespondent
thatthewarwouldbeinstrumentalincreatingasenseofnationhoodanda
distinctlyAustralianidentity. Theinstitutionplaysapivotalroleinhelping
Australianstocommemorateandunderstandthesacrificeandlossof
Australiansduringwar.
TheAWMtogetherwithAnzacParadeisanimportantnationalicon. Itsmajorfeaturesinclude:themainbuilding;themedievalstonelionsattheentrance;the
ceremoniallandscapeincludingtheLonePinetree;anddisplaysand
sculptures. TheAWMandAnzacParadearemajorvenuesfornational
1DepartmentofFinance&Deregulation,ReferralofProposedAction:CommonwealthNew
BuildingProject,p.17.
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2.0 MITIGATINGMEASURESACRITICALRESPONSE
6
commemorativeservicesandeventssuchastheANZACDaymarch.
AnzacParade,aspartoftheParliamentaryVistaandanextensionoftheAWM,
ispartofoneofthemajordesignedlandscapesofAustralia. Aceremonialspace
ofthisgrandeurisuniqueinAustralia.
TheAWMandthememorialsalongAnzacParaderepresentchangingconcepts
ofcommemorationinAustralia,influencedbythearmedforcesandcommunity
groups. TheHallofMemorywiththeTomboftheUnknownAustralianSoldier,
andaspectsofitssettingarenotable.
Criterion:BRarity
AnzacParade,aspartoftheParliamentaryVistaandasanextensionofthe
AWM,ispartofoneofthemajorculturallandscapesofAustralia. Thegrandeur
oftheceremonialspaceisnotfoundelsewhereinAustralia. AnzacParadeis
nationallyimportant
for
its
public
and
commemorative
functions.
Criterion:EAestheticcharacteristics
TheAWMinitssettingisofoutstandingimportanceforitsaesthetic
characteristics,valuedasaplaceofgreatbeautybytheAustraliancommunity
andveterangroups(asrepresentedbytheReturned&ServicesLeagueof
Australia). Theplacehasevokedstrongemotionalandartisticresponsesfrom
Australianandoverseasvisitors. Themainbuildingandthesurrounding
landscape,theHallofMemory,theRollofHonour,ANZACHallandthe
collectionsactasremindersofimportanteventsandpeopleinAustraliashistory
andtriggerdisturbingandpoignantresponsesfromthevastmajorityofvisitors.
TheAWMtogetherwithAnzacParadeformanimportantnationallandmark
thatishighlyvaluedbytheAustraliancommunity. AspartoftheParliamentary
Vista,theAWMmakesamajorcontributiontotheprincipalviewsfromboth
ParliamentHousesandMountAinslie. ViewsfromAnzacParadetotheHallof
Memory,andfromtheHallofMemoryalongthelandaxisareoutstanding. Its
prominentpositionisimportantduetoitsrelativevisualisolationontheGriffin
landaxis,amidthebackdropoftheforestedslopesofMountAinslie. Thevisual
impactoftheAWMwhenviewedfromParliamentHouseandotherpointsalong
GriffinslandaxisincludingMountAinslie;andthefabricofAnzacParade
includingthememorials,plantingsandlightingisfarmoredistinctiveanddramaticcomparedtotheotherprincipalwarmemorialsinAustralia.
Criterion:GSocialvalue
TheAWMisthenationalwarmuseumandnationalshrine,andtogetherwith
AnzacPark,hasspecialassociationsfortheAustraliancommunity,particularly
veteransandtheirfamilies. ThesespecialassociationsarereinforcedonANZAC
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DayandatceremoniesspecifictoparticularmemorialsonAnzacParade. The
AWMandtheAnzacParadememorialsarethenationsmajorfocalpointfor
commemorationincludingtheANZACDaymarchandotherceremoniesand
events. Thesevaluesareexpressedthrough:theAWMbuilding(includingthe
HallofMemory);thecollection;thesurroundinglandscape(includingthe
SculptureGarden);andAnzacParadeincludingthememorials.
TheAWMisthenationalwarmuseumandnationalshrine,andtogetherwith
AnzacPark,hasspecialassociationsfortheAustraliancommunity,particularly
veteransandtheirfamilies. ThesespecialassociationsarereinforcedonANZAC
DayandatceremoniesspecifictoparticularmemorialsonAnzacParade. The
AWMandtheAnzacParadememorialsarethenationsmajorfocalpointfor
commemorationincludingtheANZACDaymarchandotherceremoniesand
events. Thesevaluesareexpressedthrough:theAWMbuilding(includingthe
HallofMemory);thecollection;thesurroundinglandscape(includingthe
SculptureGarden);
and
Anzac
Parade
including
the
memorials.
Description
Planningcontext:
GriffinsplansforthecentralnationalareaofCanberraincludedabasic
frameworkwhichsurvivestothepresent. Analignmentoflandandwateraxes
andavenuesdefinedGriffinscityplan. Theaxestogetherwiththetriangle
boundedbyCommonwealthAvenue,ConstitutionAvenueandKingsAvenue
werethebasicelementsthatestablishedCanberrasgeometricdesign
pattern. ThedesignrepresentedGriffinsinterpretationofdemocracyand
createdthreeurbancentresconnectedbyitsmainavenues:CapitalHillasthe
placeforthepeople;MountVernonasthemunicipalcentre;andMountPleasant
asthemarketcentre. Thenorthernavenue,ConstitutionAvenue,wasthe
municipalaxis. TheAWMislocatedatthenorthernendofthelandaxis,the
majorplanningaxisthatrunsfromParliamentHouse,throughFederationMall
andParkesPlaceandalongAnzacParadetoMountAinslie. TheAWMhasan
elevatedpositionattheendofAnzacParadeandisframedbyMountAinsliein
thebackground. ItisapowerfulformwithintheaxiallandscapeofCanberra
(Pearson&Crocket1995:4244;Freeman,2004:4). Australianplannershave
followedGriffinsvisionbutwithminorchangesintermsofimpacttoreflect
historicaleventsandAustralianpoliticalandsociallife.
AnzacParade:
AnzacParadeisoneofthemajorculturallandscapesofAustralia. Itisabroad
ceremonialavenuenamedinhonouroftheAustralianandNewZealandArmy
Corps.SetalongthelandaxisakeyfeatureofGriffins1912planitstretches
fromnearthenorthshoreofLakeBurleyGriffintothefootoftheAWM,along
thelineofsightfromParliamentHouse. Alongeachsideoftheroadisarowof
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11memorialscommemoratingspecificmilitarycampaignsorservices. Theyare
mostlysculpturesinavarietyofstylesrangingfromnaturalisticto
Modernist. ThememorialsrelatetoAnzacParadeandAnzacPark:bothsidesof
AnzacParadeareboundedbyAnzacPark;thetreecovered,slopinggrassystrips
attheinterfaceoftheparadeandtheparkfeature10symmetricallyplaced
apronspreparedfornationalmemorials. AnzacParadeisadistinguishablelandmark,particularlyfromMountAinslie. Theredgravel(somesay
symbolisingblood)andthemixedplantingsofAustralianbluegumsandNew
ZealandHebespecieslinktheparliamentaryzonetothenorthernlakeshore.2
2.5TheParliamentHouseVista:TheParliamentHouseVistaisthecentraldesignedlandscapeofCanberra,that
expressesthecoreoftheWalterBurleyGriffindesignvisionforCanberra.Itis
highlysignificantforitssymbolicrepresentationofthedemocraticinterchange
betweenthe
people
and
their
elected
representatives
and
its
use
of
the
natural
landformstogenerateastrongplanninggeometry.Itexpressesamasterly
synthesisandorderingoftopographicalfeaturesandadministrativefunctionsto
meettheneedsofanationalcapital.Thevistalandscapeembracesthecentral
landaxisandpartofthewateraxisandmostoftheParliamentaryTriangle
includingtheareaknownastheParliamentaryZone.Thesignificance
incorporatesWalterBurleyGriffinsvisionforthearea,asthefocusof
Commonwealthparliamentaryandgovernmentalactivityaswellasnational
culturallife.Thisvisionhasbeenpartlyrealisedandtheplaceisthesettingfor
major,government,judicialandculturalinstitutions.Thenorthernextentofthe
vistaofAnzacParadeandtheAustralianWarMemorial,despitedifferingfrom
theoriginalplan,aresignificantformemorialpurposesdevelopedinresponseto
theneedsofthepeople.Despitebeingmodifiedtoalesserdegreeto
accommodatetheimpactofwarsonAustralians,theVistanowpresentsasa
philosophicalconceptexpressedinurbanplanning,landscapeandarchitecture,
toachieveagrandvisionofasymbolic,unifiedandvisuallydramaticplace.3
2.6TheNewCommonwealthOfficeBuildingisaproposaltobuildalarge,visuallyprominentstructureinahighprofilelocationadjoiningthesetwosignificant
heritageplaces.
2.7Theproponent(DFD)acknowledgesthatheritageimpactswilloccur,buttheseimpactswillbemitigated.
2.8TheWBGScontendsthattheimpactswillnotbemitigatedbythemeasuresoutlinedintheDFDreferraldocument.
2NationalHeritageListing,AustralianHeritageDatabase,PlaceID:105889(extract).3CommonwealthHeritageList,AustralianHeritageDatabase,PlaceID:105466(extract).
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2.9Forconvenience,therelevantmitigationmeasuresidentifiedbytheproponentarenumbered(1)to(7)inthefollowinglist:
(1) observanceoftheNationalCapitalAuthority(NCA)heightrestrictionsandotherurbandesignguidelinesinherentintheMasterPlanforConstitutionAvenueandAnzacParade(AppendixT8totheNationalCapitalPlan);
(2)thearchitecturalsimplicityandhorizontalityofthefacadestothe
ConstitutionAvenueandParkesWayelevationstothebuilding;
(3)additionalplantingwithintheParkesWayroadreservationtomatchexisting
nativeplantingsalongParkesWay;
(4)lowlevelandinformalnativeplantingsoftheproposedbermsattheParkes
Wayboundary
(within
the
site);
(5)anapproximately40metresetbackoftheproposedbuildingfromtheexisting
alignmentofConstitutionAvenueandapproximately35metresetbackfrom
thepotentialduplicationofConstitutionAvenue;
(6)theConstitutionAvenueplantingsofoaksbereinforcedandinterventions
resultingfromthenewdevelopmentbeamelioratedbynewplantingswithin
oradjacenttotheConstitutionAvenueroadreserve;
(7)landscapingtheroofofthecarparkingstructureandbermsadjacentto
ParkesWay.4
2.10 Mitigationmeasure(1)claimsthattheheritageimpactsoftheCommonwealthNewBuildingProjecthavebeenmitigatedbyobservanceoftheNationalCapital
Authority(NCA)heightrestrictionsandotherurbandesignguidelinesinherentin
theMasterPlanforConstitutionAvenueandAnzacParade(AppendixT8tothe
NationalCapitalPlan).
2.11 Comment:TheschemedoesnotconformtotheNCAurbandesignguidelinesinherentintheMasterPlanforConstitutionAvenueandAnzacParade.
2.12 TheMasterPlanforConstitutionAvenuewasgivenstatutoryforcethroughAmendment60totheNationalCapitalPlan,approvedon30November2006.
4 DFR, Referral, pp.17-18.
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2.13 TheMasterPlanissupportedbyUrbanDesignGuidelinesforthesiteoftheCommonwealthNewBuildingProject,preparedbytheNationalCapitalAuthority
inMay2006.5
2.14 BoththestatutoryMasterPlanandtheUrbanDesignGuidelinesmandateadevelopmentpatternforSection49Parkesbasedonperimeterblockbuildingsdirectlyfrontingthesurroundingstreets:ConstitutionAvenue,BlameyCrescent
(extension);ParkesWay;andWendoureeDrive.
2.15 TheNCAsConstitutionAvenueMasterPlanaimstocreateanurbanenvironmentofintense,active,spatiallydefinedstreets.
2.16 TheCommonwealthNewBuildingProjectdoesnotconformtothisdevelopmentpatternitisdesignedasastandalonestructure,setbackfromthesurrounding
streetsasanobjectinspaceonthemodelofasignaturebuildinginasuburban
businesspark.
2.17 ThefirstCommonwealthGovernmentschemepreparedunderAmendment60totheNationalCapitalPlanproposestobreakthecontrolsoftheNCAConstitution
AvenueMasterPlaninafundamentalway.
2.18 Ifapproved,theCommonwealthNewBuildingwillrendertheNCAConstitutionAvenueMasterPlanmeaninglessitwillreducerealestate
developmentinthemostvisuallysensitivelocationincentralCanberratoaprocess
ofsitebysitedealmaking.
2.19 TheresultwillbeadisorderlygaggleofindividualdevelopmentsalongConstitutionAvenue/ParkesWaywhichwilldestroythebalanced,symmetrical
urbanpatternproposedintheGriffinPlanandmaintainedtodateinthePortal
Buildings,whichframetheLandAxisandvistatotheAustralianWarMemorialand
MountAinsliealongAnzacParade.
2.20 Mitigatingmeasure(2)advancedbytheproponentoftheCommonwealthNewBuildingProjectisthearchitecturalsimplicityandhorizontalityofthefacadestothe
ConstitutionAvenueandParkesWayelevationstothebuilding.
2.21 Thebuildingdoesnotdemonstratearchitecturalsimplicityitisahighlysculpturalcomposition,whichfeaturesauniquecurvedpresentationtoParkesWay
combinedwithcantilevers,outriggersandangledfinsthatemphasiseitsobjectin
spaceambitionsonallsides.
5NCA,ConstitutionEast,ParkesUrbanDesignGuidelines, TheAuthority, Canberra,May2006.
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2.29 TheproponentclaimsthattheimpactoftheCommonwealthNewBuildingprojectontheParliamentHouseVistawillbefurtherreducedbymitigating
measure(4):lowlevelandinformalnativeplantingsoftheproposedbermsatthe
ParkesWayboundary(withinthesite).
2.30 Comment:EarthshapingandshrubplantingsalongthesouthernboundaryofSection49Parkeswillnotreducetheheight,bulkandscaleoftheCommonwealth
NewBuildingProjectinthelargerlandscapeofcentralCanberra.
2.31 Thesefeatures,whichformpartofanunspecifiedsystemofperimetersecurityforthebuildingcomplex,areessentiallysmallscaledevices.Theyrepresenta
dramaticandirreversibledeparturefromthestreetscapeprinciplesofAmendment
60totheNationalCapitalPlanbutapartfromunderminingtheintegrityofthis
MasterPlanbycreatingsignificantbarriersandinactivezonesatpedestrianscale,
theyhave
no
relevance
in
relation
to
the
heritage
impact
of
the
proposal
in
visual
terms,andquitethereverseinsymbolicterms,asbarrierstothecreationofopen,
democraticspace.
2.32 Onthenorthernsideofthecomplex,theproponentclaimsthattheheritageimpactoftheCommonwealthNewBuildingProjectwillbereducedbymitigating
measure(5):anapproximately40metresetbackoftheproposedbuildingfromthe
existingalignmentofConstitutionAvenueandapproximately35metresetbackfrom
thepotentialduplicationofConstitutionAvenue.
2.33 Comment:ThissetbackwillnotreducetheheritageimpactoftheCommonwealthNewBuildingProjectinrelationtotheAustralianWarMemorial,
AnzacParadeortheParliamentHouseVistaasthecriticalissueonthenorthernside
relatestothepresenceofthisexcessivelylarge,isolatedstructureasaninsistent
elementinthevistafromthesummitofMountAinslie.
2.34 Fromthisdistanceandangle,thebuildingsetbackfromConstitutionAvenuewillbeirrelevantbuttheheight,length,bulkandscaleofthebuildingcomplex
willbehighlyvisibleanddestructiveoftheaxiality,balanceandsymbolicstrength
oftheCanberraLandAxis.
2.35 TheproposedsetbackonConstitutionAvenuefurtherdeniesanddenigratestheprinciplesthattheNCAhassoughttoachievewithAmendment60totheNational
CapitalPlan,asfarastheconceptofanactive,eleganturbanboulevardisconcerned.
2.36 Indeed,theCommonwealthNewBuildingProjectmakesamockeryoftheNCAsmuchpromotedartistsimpressionsofConstitutionAvenue,whichshowan
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intenseurbanscenelinedwithParisianstylestreetcafs,activenightanddayasifit
wastheBoulevardSaintGermain.
2.37 Thesetbackappearstobeafunctionalcomponentoftheperimetersecuritysystemassuch,itworksactivelyagainsttheheritagesignificanceofConstitution
AvenueastheMunicipalAxisoftheGriffinPlan,whichshouldbeaplacetocelebrateandsupporttheeverydaylifeofthecity.
2.38 Mitigatingmeasure(6)seekstoaddressthenegativeimpactsoftheCommonwealthNewBuildingProjectonitsnorthernsideonthebasisthatthe
ConstitutionAvenueplantingsofoaksbereinforcedandinterventionsresulting
fromthenewdevelopmentbeamelioratedbynewplantingswithinoradjacentto
theConstitutionAvenueroadreserve.
2.39 Comment:Thesemeasureswillnotmitigateheritageimpactoftheproposal.After
30
40
years,
the
slow
growing
English
Oaks
on
Constitution
Avenue
(Quercus
robur)havestruggledtoreachaheightof15metres.6Theproposedheightofthe
CommonwealthNewBuildingisapproximately25metres.
2.40 ThebuildingwillbehighlyvisiblefromthesummitofMountAinslieasafunctionofitsheight;itsexceptionallength;andthephysicalextentofitsroofscape,
risingabovetheurbanforestofinnerCanberra.
2.41 TheHeritageImpactStatementpreparedbytheproponentsheritageconsultantsacknowledgesthatinrelationtotheAustralianWarMemorialandMemorialParade,
thedevelopmentwill ...beseenfromtheGriffinlandaxis,particularlyfromthe
MountAinslieviewpoint.Thebuildingwillbeclearlyseenfromthatviewpoint.7
2.42 Theheritageconsultantsreportthengoesontosay,however,itsimpactswillnotbedissimilartotheimpactsoftheEastandWestportalbuildings.
2.43 ThevisualimpactoftheCommonwealthNewBuildingProjectwillbedissimilartothevisualimpactofthePortalBuildings.Inheightandbulk,thesecarefully
calibratedworksfromtheNCDCeraformamatchingpairofcivicdesignelements,
whichflankanddefinetheGriffinLandAxisandperformaclearcivicroleinthe
ceremoniallandscapeofcentralCanberra.Asportals,theyformthegatewaytothe
MemorialParadeandframetheallimportantvistafromParliamentHousetotheAustralianWarMemorial.
6LesterFirthAssociates,TheGriffinLegacyConstitutionAvenueUrbanDesignStudy:StreetTree
Assessment,ReporttotheNationalCapitalAuthority,TheConsultants,Canberra,February2007,
pp.6,8.7DFDReferralDocument,AttachmentA,HeritageImpactAssessment,p.4:4.
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2.44 TheCommonwealthNewBuildingProjectisdesignedasanisolated,insistent,asymmetricalstructurewhichperformsnocivicroleintheceremoniallandscapeof
centralCanberraindeeditissooutofplace,thattheproponentfeelsobligedto
makeeveryefforttohideit.
2.45 Theextenttowhichanasymmetrical,discordantelementaffectsthevistafromMountAinsliecanbejudgedbyrecenttreatmentofthePortalBuildings.Although
theyremainsimilarinheightandbulk,theAnzacParkWestBuildingunderwent
extensiverefurbishmentbytheDepartmentofFinance&Deregulationin20052007
thenorthernfaadewascompletelyreconstructedwithanaggressivemetaland
glasspanelsystemreplacingthebalancedproportionsoftheoriginalmasonry
faade.Theseworksareclearlyvisibleinthebrightsunlightandclearairof
CanberrafromthesummitofMountAinslieanddiminishthemonumentalstrength
oftheCanberraLandAxis.
2.46 TheeffectoftheCommonwealthNewBuildingProjectwillbeconsiderablygreaterthanthis.2.47 Mitigatingmeasure(7)involvesminorworks:landscapingtheroofofthecarparkingstructureandbermsadjacenttoParkesWay.
2.48 Comment:Theseworkswillnotmitigatetheheritageimpactoftheheight,bulkandscaleoftheCommonwealthNewBuildingProjectasanelementinthelarger
landscapeofcentralCanberra.
2.49 Shrubplantingsandbermswillscreenthebrightworkofcarsparkedaroundthestandalonebuildingbutwilldonothingtoscreentheoverallmassofthe
ParliamentaryZonepresentationofthecomplex.
2.50 TheproponentsuppliessupportingillustrativematerialwiththeReferralDocument,whichincludesimagesoftherecentlycompletedLawFacultyatthe
UniversityofSydneytoindicatethedesignexpressionoftheCommonwealthNew
BuildingProject.
2.51 ConstructedonthenorthernboundaryoftheUniversityadjoiningVictoriaPark,CamperdownthenewLawFacultyissimilarinheighttotheCommonwealthNew
BuildingProjectitstandsapproximately27metresaboveVictoriaPark(tothelineoftheroofparapet).However,theofficefaadeoftheLawFacultyisonlyhalfthe
length(104metres)oftheParliamentaryZonepresentationoftheproposed
Canberrabuilding,whichofapproved,willextend200metresalongthebaseofthe
ParliamentaryTriangle.
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2.52 Shrubplantingsandbermswilldonothingtoreducethevisualimpactofthisstructure.
2.53 TheUniversityofSydneyLawFacultywasdesignedastheresultofaninternationalcompetition,onwhichtheauthorofthissubmissionservedasa
memberoftheDesignJury.
2.54 TheLawFacultyisnotableforthecivicandsymbolicroleitplaysintheUniversityofSydneycampusplanitformsanewuniversityquadranglewith
JamesBarnetsnineteenthcenturyGothicrevivalFacultyofMedicineandthe
hithertounlovedFisherLibrarystack;itconnectstohighvolumeteachingspacesin
theEasternAuditorium/Carslawcomplex;itintegratespedestrianmovement
throughthepublicspacesoftheUniversitywithanewstructuredcarparkandthe
landscapeofVictoriaPark;itstandsasabeaconandarostrumbetweenthe
Universityandthecity.
2.55 TheCommonwealthNewBuildingProjectisdesignedtoplaynocivicandsymbolicroleinthecentreoftheNationalCapital.Quitethereverse;itssuburban
officeparkpresentationanditsproposeduses,isolatedbyperimetersecurity
measures,dissipatetheNCAsattempttocreatevibrantstreetsandactiveurban
spaces.
2.56 Ifapproved,themassandbulkoftheprojectwouldintrudeonthelandscapeofcentralCanberrabutitssilentandhermeticformsaredesignedtosaynothingtothe
democraticprinciplesoftheGriffinPlan,whichproposedgreatnationalinstitutions
inthisareatheNationalOpera,theSculptureGallery,theMuseumof
Archaeology.
2.57 InthesymboliclandscapeoftodaysCanberra,theinsistentandinsidiouspresenceofthisprojectonthenorthernsideofthelakewouldcommandand
undercutthepresenceoftheHighCourtonthesouthernlakeshore.
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3.0HERITAGEPLANNING&THEPRECAUTIONARYPRINCIPLE
16
3.0CentralNationalAreaHeritagePlanning&thePrecautionaryPrinciple
3.1TheHeritageImpactAssessment(HIA)submittedasAttachmentAtotheproponentsReferralDocumentendeavourstomakesenseofthecurrentstateof
heritageplanning&managementintheCentralNationalAreaofCanberra
however,theconfusing,incomplete,overlappingandinconsistentnatureofthismaterialisalltooevident.
3.2Giventhedraft,provisional,unendorsedstatusofthevariousConservationStudies,HeritageAssessmentsandHeritageManagementPlanspreparedfortheplethoraof
centralCanberraplacesnominatedfororincludedonvariousHeritageLists,the
WBGSurgestheadoptionofthePrecautionaryPrincipleintheassessmentofsuch
asignificantactionastheCommonwealthNewBuildingProject.
3.3ThelackofendorsedheritagedocumentsforthesymboliccentreofCanberraisanissue
of
major
concern.
3.4 InthecontextoftheCanberraNewBuildingProjectreferral,adoptionofthePrecautionaryPrincipleatthisstageoftheprocess,wouldentailcontrolledaction
designationandinitiationofacomprehensiveassessment,consultationandapproval
processundertheEPBCAct.
3.5 TheHIAhasreviewedtheParliamentHouseVistaHeritageManagementPlan(2008Draft);theAustralianWarMemorial&MemorialParadeNationalHeritage
ListStatementofSignificance;theParliamentHouseVistaPortalExtension
CommonwealthHeritageListStatementofSignificance;theRusssellPrecinct
HeritageAreaCommonwealthHeritageListStatementofSignificance;andthe
BlundellsCottageCommonwealthHeritageListStatementofSignificance.
3.6TheHIAhasnotreviewedthefollowingheritagedocuments: ParliamentHouseVistaHeritageManagementPlan,ExposureDraft(November2008)8;
LakeBurleyGriffinHeritageAssessmentandHeritageManagementPlan,ExposureDraft(March2009)9;
8DuncanMarshall,CraigBurton,AlistairGrinbergs,ChrisJohnston&JackieDonkinandwith
assistancefromRobertBoden,RobertFreestone&AlisonRowell,ExposureDraft:ParliamentHouse
VistaAreaHeritageManagementPlan,ReporttotheNationalCapitalAuthority,2vols,The
Consultants,Canberra,November2008.9GoddenMackayLogan,LakeBurleyGriffinHeritageAssessment,DraftReport,Preparedforthe
NationalCapitalAuthority,TheConsultants,Canberra,March2009;GoddenMackayLogan,Lake
BurleyGriffin&AdjacentLandsHeritageManagementPlan,,DraftReport,4vols,Preparedforthe
NationalCapitalAuthority,TheConsultants,Canberra,March2009.
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3.0HERITAGEPLANNING&THEPRECAUTIONARYPRINCIPLE
17
AustralianWarMemorial,DraftHeritageManagementPlan(July2008)10; AustralianWarMemorial,EasternPrecinctDevelopmentHeritageImpactStatement(November2008)11;
HighCourtofAustralia/NationalGalleryofAustraliaPrecinctHeritageManagementPlan(2008)12;
CentralParklandsHeritageAssessment(February2007)13; KingsAvenue/ParkesWay,AssessmentofHeritageImpact(September2008)14
3.7TheHIAhasnotreviewedtheNCAsHeritageStrategy.3.8AsaCommonwealthagencywhichownsandcontrolsheritageplaces,theNCAhasbeenobligatedtoprepareaHeritageStrategyunderSection341ZAoftheEPBCAct
andinaccordancewithRegulation10.03EandSchedule7CoftheEPBCRegulations.
3.9WorkontheNCAHeritageStrategybeganin2003andwascompletedin20052006.15 TheNCArecognisedtheneed:toidentifyandassesstheheritagevaluesofplacestheAuthorityownsor
manages,topreparearegisterofheritageplaces,andtoreporttotheMinisterfor
theEnvironmentandHeritage.Theheritagestrategywilleventuallyshowhow
managementofheritagevalueswillbepartoftheAuthorityscorporate
responsibilitiesandwillincludeaprogramforidentifyingandassessingplaces
underitsmanagement,preparingaregisterofheritageplaces,andpreparing
managementplansforplaceswithheritagevalues.Itwillalsoincludebudget
arrangementsformaintainingandmanagingheritageplaces,adescriptionofa
consultationandliaisonprocess,stafftraining,awarenesspromotion,and
measurestheAuthoritywilltaketomonitorandreportonthesuccessofits
heritagemanagementresponsibilities.16
10GoddenMackayLogan,DraftAustralianWarMemorialHeritageManagementPlan,Reporttothe
AustralianWarMemorial,TheConsultants,Canberra,July2008.11
GoddenMackayLogan,EasternPrecinctDevelopment,AustralianWarMemorial:HeritageImpact
Statement,ReporttotheAustralianWarMemorial,TheConsultants,Canberra,November200812
Michael
Pearson
&
others,
High
Court
of
Australia/National
Gallery
of
Australia
Precinct
Heritage
ManagementPlan,ReporttotheNationalCapitalAuthority,TheConsultants,Canberra.13DuncanMarshall,CentralParklandsHeritageAssessment,TheConsultant,Canberra,February
200714ArchitecturalProjectsPtyLtd,KingsAvenue/ParkesWayRoundabout,Canberra:Assessmentof
HeritageImpact,PreparedfortheNationalCapitalAuthority,TheConsultants,Darlington,
September2008.15NCA,AnnualReport20032004,pp.2021;NCA,AnnualReport20052006,p.17.16NCA,AnnualReport20032004,pp.2021.
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3.0HERITAGEPLANNING&THEPRECAUTIONARYPRINCIPLE
18
3.10 AsspecifiedinSchedule7C,Section1(f)oftheEPBCRegulations,aHeritageStrategypreparedundertheEPBCActmustincludeanoutlineofaprocessfor
resolutionofconflictarisingfromtheassessmentandmanagementof
CommonwealthHeritagevalues.
3.11 AclearconflictintheassessmentandmanagementofheritagevalueshasemergedintheHeritageImpactAssessmentoftheCommonwealthNewBuilding
Project.
3.12 TheproponentsheritageconsultantshaveplacedgreatemphasisontheheritagesignificanceoftheWilliamHolford/NCDCperiodofplanninganddesigninthe
developmentofCanberra,commentingthattheNCAGriffinLegacypaysonly
minimalattentiontothemid20thcenturyplanninglegacyasevidencedinthe
completionofParkesWayandassociatedplanning.17
3.13 Inshort,theproponentsheritageconsultantshaveattachedsignificancetothemodernistplanningconceptsofthemid20thcentury,whichledtoconstructionofamajorarterialroadParkesWayasaparkwayinaparklikesetting,flankedby
buildingsitesforisolated,standalonestructuressetbackfromthepropertylineina
naturalisticlandscape.
3.14 Sincethe1990s,theNCAhasstronglyadvocatedanewurbanistdevelopmentpatternbasedonstreets,blocksandcontinuousurbanfabricbuilttotheproperty
lineinthehopeofcreatingactivestreetsdefinedbybuildingsandformalavenue
plantings.
3.15 Thispatternformedthebasisofthe1994RussellDefencePrecinctMasterPlan18andwasfurtherdevelopedinthe2004GriffinLegacyreport,19andsubsequentGriffin
LegacyamendmentstotheNationalCapitalPlan,includingAmendment60
ConstitutionAvenue.
3.16 WiththeGriffinLegacyreport,theNCAsoughttodevelopaheritagerationaleforthenewurbanistpatternofrealestatedevelopment,basedontheworkofWalter
BurleyGriffin.
3.17 TheDepartmentofFinance&DeregulationhasadvancedaheritageargumentfortheCommonwealthNewBuildingProjectonthebasisofHolford/NCDCplanningprecepts,indefianceofthestatutorycontrolswhichrequireanew
urbanistpattern,generatedfromaformalistresponsetoGriffinsplanningprecepts.
17DFDReferral,AttachmentA,HIA,p.4:6,note16.18NCA,DraftRussellMasterPlanExplanatoryReport,TheAuthority,Canberra,August1994,19NCA,TheGriffinLegacy:Canberra,TheNationsCapitalinthe21stCentury,TheAuthority,
Canberra,2004.
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3.0HERITAGEPLANNING&THEPRECAUTIONARYPRINCIPLE
19
3.18 ThefutureofthesymboliccentreofCanberraridesontheoutcome.3.19 Neithertheproponent(DFD)northeNCAhasinvokedtheHeritageStrategyprocessfortheresolutionofconflictarisingfromtheassessmentandmanagement
ofCommonwealthHeritagevaluesmandatedbytheEPBCActandEPBCRegulations.
3.20 TheconflictmustberesolvedatthisstageoftheCommonwealthNewBuildingProjectreferral.
3.21 Thereforecontrolledactiondesignationisessential.
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4.0 CONCLUSIONS&RECOMMENDATION
20
4.0 Conclusions&Recommendation
4.1TheCommonwealthNewBuildingProjectproposedbytheDepartmentofFinance
andDeregulation(DFD)forconstructionatSection49Parkesisthelargestproject
plannedforthesymboliccentreofCanberrasincecompletionoftheNewandPermanentParliamentHousein1988.
4.2TheDFDprojectisamostsignificantaction,asdefinedundertheEnvironment
Protection&BiodiversityConservationAct(1999).
4.3Theimpactsoftheprojectwillbesignificant,particularlywithrespecttotheheritage
valuesoftheNationalCapital.
4.4TheproponentsReferralDocumentandHeritageImpactAssessmentacknowledge
thatsignificant
impacts
will
occur,
but
propose
mitigating
measures.
4.5AsoutlinedinSection2.0ofthissubmission(above),analysisofthesemeasures
demonstratesthattheywillnotmitigatetheheritageimpactoftheproposal.
4.6ThecurrentstateofheritageplanningandmanagementintheCentralNationalArea
ofCanberraissingularlyinadequate.
4.7Notoneconservationstudyorheritagemanagementplanrelevanttothe
CommonwealthNewBuildingProjectisformallyendorsedbytheAustralian
HeritageCouncilundertheEPBCAct.
4.8Theproponentsheritageconsultantshavenotreviewedkeyheritagereportsthat
havebearinguponthesubjectsiteandtheproposal.
4.9Aclearconflictintheassessmentandmanagementofheritagevalueshasemergedin
theHeritageImpactAssessmentoftheCommonwealthNewBuildingProject.
Neithertheproponent(DFD)northeNCAhasinvokedtherequiredprovisioninthe
NCAsHeritageStrategytoresolvethisconflict.Resolutionmusttakeplaceatthe
currentstageofthereferralprocess.
4.10Recommendation:
The
Commonwealth
New
Building
Project
must
be
declaredacontrolledaction,andbesubjecttoacomprehensive
assessment,consultationandapprovalprocessundertheEnvironmentProtection&BiodiversityConservationAct(1999)..
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APPENDIX1THEWALTERBURLEYGRIFFINSOCIETYINC.
21
Appendix1: TheWalterBurleyGriffinSocietyIncorporated
Establishedin1988inSydney,theSocietynowinitstwentyfirstyear commemorates
thelivesandworksofWalterBurleyGriffinandMarionMahonyGriffinandpromotes
the ideals,vision and community life they fostered inAustralia.The Society aims to
promote a better understanding of the lives and works of the Griffins, promotingespecially the preservation and conservation of landscape designs, urban plans,
buildingsandotherworksdesignedbyorhavinganassociationwiththeGriffins.
TheSocietyhasseveralhundredmembersfromvariouspartsofAustraliaandUSA.The
CanberraChapterof theSocietywasestablished in2004.TheSociety isaffiliatedwith
theWalterBurleyGriffinSocietyofAmerica(establishedin1998).
CommitteeMembers20082009
Patron:ProfessorCarrickChambersAM
President:Professor
James
Weirick
Vicepresident:AkkyVonOgtrop
Treasurer:JohnKabos
Secretary:KerryMcKillop
Management Committee: Colleen Fry, Adrienne Kabos, Martin ODonoghue, James
Smallhorn, Professor Geoffrey Sherington, Michael Thomson, David Turner, Anne
Watson.
CanberraChapterCommittee
Chair:BrettOdgers
ViceChair:RosemarieWillett
Secretary:DrBruceKent
Treasurer:LukeWensing
Committeemembers:JohnStokes,DrAnnKent,BeverleyThomasLarson,KerriTaranto
Website
http://www.griffinsociety.org/ (Archivedby the National Library of Australia since
2006, http://protocat.nla.gov.au/Record/3821935)
ThissubmissionhasbeenpreparedbytheSocietyasacontributiontothepublicgood.
Neither the Society nor any individual committeemember of the Society,directly or
indirectly, stands to make any personal financial gain from this submission. ThesubmissionwaspreparedbyunpaidvolunteersandwasfundedbytheSocietyfromits
own resources andwasnot influencedby anyperson or organisation external to the
committeesoftheSociety.
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APPENDIX2PROFESSORJAMESWEIRICK,BIOGRAPHICALPROFILE
Appendix2: BiographicalProfileProfessorJamesWeirick
Professor James Weirick, President of the Society is the principal author of this
submission,advisedbyBrettOdgers,ChairoftheCanberraChapterandmembersofthe
ManagementCommittee.
JamesWeirickisProfessorofLandscapeArchitectureandDirector,UrbanDevelopment
&DesignProgram,FacultyoftheBuiltEnvironment,UniversityofNewSouthWales.
AgraduateofHarvardUniversity,ProfessorWeiricktaughtattheBostonArchitectural
Center, University of Massachusetts/Boston, University of Canberra and Royal
MelbourneInstituteofTechnology,priortohisappointmenttoUNSWin1991.Inrecent
years,hehas conducted internationalurbandesign studios inBeijing,Hangzhou and
Tokyo with the Graduate School of Landscape Architecture, Peking University; the
Departmentof
Architecture,
Zhejiang
University;
and
the
Graduate
School
of
Frontier
Sciences, The University of Tokyo. His research interests include the history of
architecture,landscapearchitectureandurbanism,withanemphasisonthepoliticsof
design,particularlytheworkofWalterBurleyGriffin,thehistoryofCanberra,andthe
urbanlandscapeofSydney.Heisactivelyengagedinissuesofcontemporaryurbanism
throughoutAustraliaasaneducator,critic,andcommentator.
Professor Weirick has served on the Environment Board of the Royal Australian
InstituteofArchitects(NSW);theParliamentaryZoneAdvisoryPanel,NationalCapital
Authority, Canberra; the Urban Design Advisory Committee, NSW Department of
UrbanAffairs& Planning; theGatewaysDesign Review Panel, City of Sydney; the
Campus2010DesignReviewPanel,UniversityofSydney;andtheDesignReviewPanel
of the SydneyOlympicParkAuthority.He currently serves on theDesignAdvisory
PaneloftheCityofSydney.
ProfessorWeirickhas served onmanydesign competitionjuries, including theNCA
competition for newLightingElementsonAnzacParade,Canberra; the international
competitionforthedesignofthenewFacultyofLawattheUniversityofSydney;and
CityofSydneyDesignExcellenceCompetitionsforredevelopmentoftheCarltonUnited
Brewery site, Broadway; theWestfield SydneyCentrepointProject; and theGoodsell
Building Redevelopment, Chifley Square.He received the Presidents Award of the
Australian InstituteofLandscapeArchitects (NSWGroup) in1999;andwasnamedaBuiltEnvironmentExemplarintheYearoftheBuiltEnvironment2004.
ProfessorWeirick hasbeen President of theWalter BurleyGriffin Society, Inc. since
2004,andpreviouslyservedasVicePresident,19932004.