Port Arthur Visitor Centre and Site Entry Precinct Heritage Impact
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Email [email protected] Phone 0412 673 548 Address PO Box 479 Lindfield NSW 2070 Australia Port Arthur Visitor Centre and Site Entry Precinct Heritage Impact Assessment August 2016 mackaystrategic.com.au ABN 26 602 859 414 1 Contents 1. Background .............................................................................................................................................................. 3 2. Heritage Impact Assessment Brief ........................................................................................................................... 3 3. Methodology ........................................................................................................................................................... 4 4. The Place .................................................................................................................................................................. 7 5. The Project ............................................................................................................................................................... 8 6. Statutory Context .................................................................................................................................................. 16 7. Heritage Values and Cultural Significance ............................................................................................................. 20 8. Analysis of Issues and Impacts ............................................................................................................................... 22 9. Effect on Heritage Values and Cultural Significance .............................................................................................. 33 10. Compliance ............................................................................................................................................................ 34 11. Mitigative Measures ............................................................................................................................................. 36 12. Recommendations and Conclusion ...................................................................................................................... 38 Annexures ....................................................................................................................................................................... 42 Annexure A: Australian Convict Sites: Statement of Outstanding Universal Value Annexure B: Port Arthur Historic Site National Heritage List – Summary Statement of Significance and Official Values Annexure C: Port Arthur Historic Site: Statutory Management Plan – Summary Statements of Heritage Value Annexure D: Port Arthur Historic Site: Tasmanian Heritage Register – Official Summary Statement of State Heritage Values Annexure E: Port Arthur Historic Site: heritage values and cultural significance matrix Annexure F: Port Arthur Visitor Centre Redevelopment: projects drawings prepared by Rosevear Stephenson Annexure G: Port Arthur Visitor Centre Redevelopment: Architecture Modelling and Site View Analysis prepared by Rosevear Stephenson] Annexure H: Documents Consulted Annexure I: National Heritage Management Principles Annexure J: Acknowledgements mackaystrategic.com.au ABN 26 602 859 414 2 1. Background Prof Richard Mackay, AM of Mackay Strategic Pty Ltd has been engaged by the Port Arthur Historic Site Management Authority (PAHSMA) to prepare a Heritage Impact Assessment (HIA) for the proposed Redevelopment of The Port Arthur Visitor Centre and Site Entry Precinct (the Project). PAHSMA is responsible for the management of visitor services and conservation for three of the sites listed as part of the Australian Convict Sites World Heritage Property: Port Arthur Historic Site – Arthur Highway, Port Arthur, Tasmania; Coal Mines Historic Site – Saltwater River, Tasmania; and Cascades Female Factory – Degraves Street, Hobart, Tasmania. The Authority’s Vision is: to conserve, manage and promote the Port Arthur Historic Sites as cultural tourism places of international significance1. The existing Visitor Centre at Port Arthur was designed in the 1990s, and no longer reflects the needs and expectations of visitors, nor the operational requirements of PAHSMA. In October 2014 the PAHSMA Board determined that a redevelopment study of the Visitor Centre and site entry precinct should be undertaken, comprising a staged masterplanning exercise, during which a range of options were identified and analysed. In February 2016 the PAHSMA Board determined that the existing Visitor Centre should be redeveloped and in April 2016 a preferred scheme (the Project) was selected. 2. Heritage Impact Assessment Brief The brief for this Heritage Impact Assessment requires evaluation of the potential impacts of the Project on the heritage values of the Port Arthur Historic Site, together with any recommendations as to mitigating measures for aspects of the proposal which present potential risk. The HIA will form part of statutory applications to local, state and Commonwealth agencies. The HIA should particularly consider implications arising from World Heritage listing and issues arising from the status of the site as part of the Australian Convict Sites World Heritage Property and its inclusion on the National Heritage List and Tasmanian Heritage Register. PAHSMA proposes to refer the Project to the Commonwealth Department of the Environment to seek confirmation that the Project is not a ‘controlled action’ within the meaning of the Environment Protection Biodiversity Conservation Act 1999 (Cwth) (EPBC Act) and to seek works approval under the Historic Cultural Heritage Act 1995 (Tas) (HCH Act), through an application for development consent to Tasman Council. 1 See: http://portarthur.org.au/pahsma/about‐us/ mackaystrategic.com.au ABN 26 602 859 414 3 3. Methodology Consistent with the Statutory Management Plan for the Port Arthur Historic Sites, this HIA recognises that the outstanding heritage values of the place imposes an overarching conservation obligation: In order to achieve the long‐term conservation of the Port Arthur Historic Sites and retention of identified heritage values, the primacy of conservation over other management objectives must be recognised2, and that decisions need to be based on a proper understanding of heritage values: All management decisions that have the potential to affect the heritage values of the Port Arthur Historic Sites must be founded on a clear understanding of those values. The heritage impact of decisions must be stated and evaluated as part of the decision‐making process3. This approach embodies the principles and processes of the Burra Charter4 and is consistent with statutory assessment frameworks provided in the relevant legislation, such as the EPBC Act and the HCH Act. It is also consistent with the Guidance on Heritage Impact Assessments for Cultural World Heritage Properties, published by ICOMOS in conjunction with the World Heritage Centre5. The Project predominantly affects a relatively new building, constructed in the late 1990s to provide visitor services. While this building is itself not identified as having heritage values, it is now part of the overall landscape setting for the Port Arthur Historic Site. The Port Arthur Landscape Management Plan recognises the interrelationship between the place and its landscape setting: The setting for the Port Arthur Historic site is an important aspect of its cultural significance. In a cultural landscape sense, the setting is not separate from the Historic Site. Inappropriate development or activities within the wider setting of the Historic site have capacity to significantly impact on the historical character of the site and a diminished visitors experiences6. This HIA therefore takes a holistic values‐based approach, considering both potential physical impacts, such as possible removal of archaeological features or changes to significant vegetation, as well as less‐tangible 2 Port Arthur Historic Sites Statutory Management Plan: Overarching Principles page 95 3 Port Arthur Historic Sites Statutory Management Plan: Overarching Principles page 96 4 The Australia ICOMOS Charter for Places of Cultural Significance, 2013 5 ICOMOS, 2011. Guidance on Heritage Impact Assessments for Cultural World Heritage Properties. A publication of the International Council on Monuments and Sites. ICOMOS, Paris, France, in collaboration with the World Heritage Centre. 6 Port After Historic site Landscape Management Plan 2000, page 90 mackaystrategic.com.au ABN 26 602 859 414 4 aspects such as views to and from, visitor experiences, the nature of the nearby Memorial Garden and interpretation opportunities. 3.1 Approach to different heritage values assessments There are a range of different listing citations, statements of significance and assessments of heritage value for the Port Arthur Historic Site. Those of particular relevance to this HIA include the Statement of Outstanding Universal Value for the Australian Convict Sites World Heritage Property, the Australian National Heritage List Summary Statement of Significance and Official Values, the Tasmanian Heritage Register Official Summary Statement of Heritage values and the Summary Statement of Significance from the Port Arthur Historic Sites Statutory Management Plan. All of these assessments are provided in annexes to this HIA. Owing to different conventions and statutory requirements, they do not apply a uniform set