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AlteringHeritage Assets

Heritage Council

Policy No. 2(1)

(1) Policy No. 1 of the Heritage Council of NSWconcerns conservation orders.

(2) Places includes heritage conservation areas, sites,precincts, gardens, landscapes and areas ofarchaeological potential.

INTRODUCTIONThe purpose of this policy is to guide people whoown or manage an item of heritage significanceand who are seeking approval from their localcouncil or the Heritage Council to alter it.

HERITAGE ASSETSPlaces(2), buildings, structures, relics and otherworks are listed on heritage registers not simplybecause they are old or aesthetically pleasing, butfor a variety of reasons —

‘Tusculum’, Potts Point. A modern extension of aheritage building can be successful if carefully designedin terms of proportions and form. The Royal AustralianInstitute of Architects (NSW) added this modern officebuilding to the rear of its heritage property. Photo:Patr ick Bingham-Hall .

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• they are associated with phases of our historyor with persons or events of great importance

• are rare• they have been constructed with unusual

technical skill, or• they are fine examples of a valuable group of

i tems.

The new Parliament House in Canberra, forexample, would qualify for heritage listingirrespective of its architectural merit, as wouldthe La Perouse landing site in Botany Bay, or theAboriginal settlement of the same area.

HERITAGE VALUESThe Heritage Council has adopted four mainheritage values — historical, aesthetic, social(contemporary community esteem) and research/technical significance. Places could be fineexamples of their type, or rare within a local,regional or state context. Many places qualify forlisting under more than one heritage value and inmore than one context. Places are often alteredover time, and these alterations themselves mightbe significant.

Criteria for assessing the significance of Aboriginalsites and natural heritage are being developed.Contact the National Parks and Wildlife Servicefor guidance when dealing with such places.

HERITAGE ASSESSMENT CRITERIAWhen considering alterations to a listed heritageitem it is important to understand both thereasons why it is significant and the criteria usedto assess it. Each of the four heritage values havedifferent qualifying criteria. These factorsdetermine how an item can be changed withoutnegatively affecting its heritage value, and whattype of heritage management is appropriate.

ASSESSING PROPOSED ALTERATIONSAs significance varies from one place to another,it is not possible to make universal statementssummarising which changes are acceptable andthose which are not. Each proposal to alter anitem must be assessed on its merits.

A grand house, significant because it is the finestexample of the work of a leading architect of itsperiod, will have quite different constraints onalteration from that of a worker’s cottage of thesame period, which is significant because it was

the long-term residence of a famous writer. Abuilding that is a rare, intact example of the‘Californian bungalow’ style will lose thatsignificance if a large, second storey is added. Arow of 19th century warehouses with heritagestreetscape value will lose that significance if atwenty-storey office block is built two metresbehind one of the facades.

If a place is listed as a heritage item, all its partsare intrinsic to its significance. Though parts of aheritage site may have different levels ofsignificance (for example, outhouses and a rurallandscape on a country estate may be more, orless, significant than the main homestead)without them all, the significance of the wholeplace could be compromised. The significance ofan historic industrial site would be diminished ifall the industrial relics are removed. Nineteenthcentury commercial buildings lose significance ifonly the street elevations are retained.

York House, Sydney is among significant city buildingsthat are being adapted for re-use to capitalise on theirheritage value whilst providing modern accommodationand facilities. It forms part of an historic streetscape of19th century commercial buildings terminated by aview of Sydney Town Hall. Proposals are beingconsidered that retain its interior construction and rearaddress to an historic laneway while allowing someadditional floors. Photo: Stuart Humphreys.

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ADAPTIVE REUSEMany heritage items can be altered or extendedwithout unduly compromising their importance.Indeed, it is possible to enhance or reinforce theirsignificance by an adaptive reuse that involvessympathetic alterations and additions. This isoften necessary to ensure their survival. TheQueen Victoria Building, the Capitol Theatre andEveleigh Railway Workshops in Sydney are goodexamples of successful adaptation for reuse.

In general, the success or failure of alterations andadditions in heritage terms is directly related tothe degree to which the design acknowledges andretains the significance of the place.

A STATEMENT OF HERITAGE SIGNIFICANCEBefore planning alterations or other changes toheritage items, it is necessary to first understandthe reasons for its heritage status. Why is itsignificant? What is its historical context andhistory of its development? Is it a fine example ofan important class of items? Does the communityvalue the place? Does it inform us about ourcultural identity?

A statement of heritage significance is central todeveloping a conservation and developmentstrategy, known as conservation managementplan (see below). Each aspect of significance leadsto obligations or constraints that need to beconsidered when planning any changes. Often astatement of significance will have been preparedas part of the heritage listing process. If this isnot the case, or if the listing is not thoroughenough in its analysis, it is advisable to prepare acomprehensive statement of significance forapproval by the consent authority (usually a localcouncil but in some cases, the Heritage Council).This can save a great deal of time and frustration.You may need professional assistance from aheritage consultant or the local council heritageadvisor to prepare the statement.

A CONSERVATION POLICYOnce the statement of heritage significance hasbeen completed and approved, it is advisable toprepare a conservation policy. This looks at theopportunities and constraints arising fromsignificance and indicates how changes can bemade while still conserving and enhancing thatsignificance. A further step is to prepareimplementation or management guidelines forthe future development of the asset (optionsinclude maintenance plans, adaptive reuse orsympathetic additions).

THE CONSERVATION MANAGEMENT PLANTaken together, the statement of significance,conservation policy and management guidelinesform what is known as a conservation managementplan. [The term conservation management plan ispreferred by the Heritage Council, but isinterchangeable with conservation plan.]

Frederick Ash Building, Newcastle, is managed at astate level because of its historical significance as arare surviving example of 19th century retailwarehouse. It is also a fine example of the work ofarchitect Frederick Menkens. Discussions on its futurecentred on an application for partial demolition as partof Newcastle City Council’s proposed redevelopmentof the whole block as a new civic focus for the city.The Heritage Council's preferred option was for ascheme (recommended in the conservation plan) thatretained the entire building. Through discussion ascheme was developed to the satisfaction of all parties.

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This need not be an expensive exercise. It could,in fact, save a great deal of time and money byindicating the best opportunities for capitalisingon the value of a heritage asset, and in obtainingthe early agreement of approval authorities andthe community to policies that allowsympathetic changes.

The Heritage Council will not considerapplications for extensive alterations to an itemof major heritage significance unless it hasalready approved a conservation managementplan. (This refers to items that have beenidentified in an environmental planninginstrument or approved heritage study as beingsignificant in a regional or state context, andthose covered by an interim or permanentconservation orders.) Alterations or new worksthat have a major negative impact on theheritage significance of such items are usuallynot approved.

A STATEMENT OF HERITAGE IMPACTOwners can capitalise on their heritage asset, orthe character of the heritage conservation area,through sympathetic changes or additions thatconserve or enhance heritage significance. It isadvisable to prepare and have endorsed aconservation policy or conservation managementplan, before submitting a proposal. For anyproposal to alter a heritage asset, a statement of

heritage impact is required to accompany yourdevelopment application, showing how theproposal has taken these conservation policiesand management guidelines into account. Thiswill save time and money and ensure the speedyassessment of your submission.

FURTHER INFORMATIONThe following publications are available from theDepartment of Urban Affairs and Planning’sInformation Centre located on the ground level,Governor Macquarie Tower, corner Phillip andBent Streets, Sydney; phone (02) 9391 2222,fax (02) 9391 2333.

Heritage Office & Department of Urban Affairsand Planning 1996, Conservation ManagementDocuments, NSW Heritage Manual, HO/DUAP,Sydney.

Heritage Office & Department of Urban Affairsand Planning 1996, Heritage Assessments, NSWHeritage Manual, HO/DUAP, Sydney.

Heritage Office & Department of Urban Affairsand Planning 1996, Statements of HeritageImpact, NSW Heritage Manual, HO/DUAP,Sydney.

Note: The Heritage Council’s previous FacadesPolicy is now withdrawn.