Commonwealth New Building Project Referral_wbgs Submission

8/14/2019 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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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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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.


18/22


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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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)..


21/22

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.


22/22

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.

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