Australian Convict Sites Strategic Management Framework

Australian Convict Sites Strategic Management Framework 2 Australian Convict Sites Strategic Management Framework Ministers’ Message

The Australian Convict Sites is made up of 11 places Australian Government, together with the New South in New South Wales, Tasmania, Western Australia and Wales, Tasmanian, Western Australian and Norfolk Island Norfolk Island. While each place has important heritage governments, will work together to ensure the integrity of value in its own right, the broader significance of the serial the Australian Convict Sites heritage values are protected nomination becomes evident when the sites are viewed as a and conserved so future generations can enjoy them. whole. Each place makes a special contribution to the story of global convictism. Together they form an outstanding The Australian Convict Sites – Strategic Management representation of the forced migration of convicts and Framework (the Framework) is a key part of the co-operative movement of people that occurred in virtually all parts of management by the five governments to protect, conserve the globe. and present the Australian Convict Sites. It recognises the important role existing statutory regimes have in While the themes arise from the Australian experience protecting the individual sites and defines strategies for of convictism, they are ones of outstanding universal developing a common appreciation and protection of their significance. The nominated places reflect elements of the World Heritage values across the community. global experience of convictism. They also demonstrate unique aspects of convictism. The convict system evolved The Framework is based on a tiered or cascading model of in exceptional ways due to the unusual conditions, responsibility in accordance with existing governance at the challenges and opportunities present in Australia. local, state and national level. The Environment Protection and Heritage Council, a ministerial council, also plays an As the State party to the convention concerning the important strategic role in protecting the World Heritage protection of the World, Commonwealth and National values. Our endorsement of the Framework demonstrates Heritage, the Australian Government ensures that the strong commitment by our respective governments to effective and active measures are taken to protect, the cooperative management of the Australian Convict conserve, present and share the heritage values of our Sites in the years to come. World Heritage properties. In Australia these obligations are met through co-operative and legislative arrangements between the Australian Government, State and Territory governments and property owners/managers. The

The Hon Peter Garrett MP The Hon Vicky Jack The Hon Michelle Roberts MLA Australian Government Minister Norfolk Island Minister for the Western Australian Minister for for the Environment, Heritage Environment, Education and Housing and Works on behalf of the and the Arts on behalf of the Social Welfare on behalf of the State of Western Australia Australian Government Territory of Norfolk Island

The Hon Paula Wriedt MHA The Hon Frank Sartor Tasmanian Minister for Tourism, New South Wales Minister for Arts and the Environment on Planning on behalf of the State of behalf of the State of Tasmania New South Wales

Australian Convict Sites Strategic Management Framework 3 Contents

INTRODUCTION 5 Purpose of the Framework 5

WORLD HERITAGE 7 The World Heritage Convention 7 Ownership and control 7 Management obligations 7 World Heritage values 8

MANAGEMENT CONTEXT 9 Legislation 9 Planning approach 9

STRATEGIC MANAGEMENT 12 Objectives 12 Management arrangements 12 Administration and consultation arrangements 13 Cooperative opportunities 18 Implementation and review 19

Appendices 20 Appendix 1 - Australian World Heritage management principles 20 Appendix 2 – Roles and responsibilities 22

4 Australian Convict Sites Strategic Management Framework INTRODUCTION

The Australian Convict Sites is made up of 11 places: and presentation of the sites within national and state in New South Wales - Old Government House and institutional frameworks. The Framework describes how Domain, Hyde Park Barracks, Old Great North Road, the management system for the Australian Convict Sites, Cockatoo Island Convict Site; in Tasmania - Brickendon- as described in the World Heritage nomination dossier, Woolmers Estates, Darlington, Cascades Female Factory, will be delivered. The management and governance Port Arthur Historic Site, Coal Mines Historic Site; in arrangements in the dossier provide the foundation Western Australia – Fremantle Prison and on Norfolk to this Framework. Island – Kingston and Arthur’s Vale Historic Area (refer to Map 1). Each place is included on respective State and The Framework also charts the commitment of managers Territory heritage lists or registers which provide statutory of individual places to the long-term management, protection. They are also included in the Australian presentation and transmission of the World Heritage Government’s National Heritage List, which recognises values of the Australian Convict Sites. The Framework is places of outstanding heritage value to the nation. part of the overall planning for the Australian Convict Sites These places are considered as matters of national and does not contain detailed management policies for environmental significance under the Environment the individual places; these are included in the individual Protection and Biodiversity Conservation Act 1999, one conservation management plans. of the strongest environmental laws in the world. The signatories to this Framework will work cooperatively World Heritage listing is the highest level of international to share information and develop appropriate strategies recognition that may be afforded to a place, acknowledging for the benefit of the Australian Convict Sites listing. its outstanding universal values and importance to all Cooperative opportunities may include the development humankind. In nominating the Australian Convict Sites of promotional and visitor activities as well as common for listing, the Australian Government, on behalf of interpretative resources, research and information the Australian people, accepts its obligation to identify, exchange and pooling of expertise and resources for protect, conserve, rehabilitate and present the possible conservation. The aim is to support the listing as a whole World Heritage values of the property to current and and foster a better appreciation of Australia’s convict past. future generations. The Australian Government and State Under this Framework the respective State and Territory and Territory governments have overarching responsibility agencies and owners/managers will continue to undertake for the legislative framework and governance arrangements regulatory and day-to-day management, but with a greater for the Australian Convict Sites. The day-to-day level of coordination and consistency. By agreeing to the management of the individual places continues to content of this document, governments have made a be the responsibility of owners/managers. commitment to abide by its principles and to implement the strategies outlined. These will be put into effect by Purpose of the Framework the relevant governments through decisions made by the Environment Protection and Heritage Council, The Australian Convict Sites – Strategic Management government policies, statutory plans and other planning Framework (the Framework) has been prepared to instruments. complement existing legislative structures and other regimes to address Australia’s international responsibilities under the Convention Concerning the Protection of the World Cultural and Natural Heritage (the World Heritage Convention). It will ensure the appropriate layering of arrangements for the ongoing protection, management

Australian Convict Sites Strategic Management Framework 5 Northern Territory

Queensland

Western Australia

Norfolk Island South Australia 1

New South Wales 11 10 2 Australian 4 Capital Territory 3

Victoria

Tasmania 5 Legend 7 9 6 1. Kingston and Arthur’s Vale Historic Area (KAVHA) (1788-1814 and 1824-55) 2. Old Government House and Domain (1788-1856) 8 3. Hyde Park Barracks (1819-48) 4. Cockatoo Island Convict Site (1839-69) 5. Brickendon-Woolmers Estates (1820-50s) 6. Darlington Probation Station (1825–32; 1842–50) 7. Port Arthur Historic Site (1830–77) 8. Coal Mines Historic Site (1833–48) 9. Cascades Female Factory (1828–56) 10. Old Great North Road (1828-35) 11. Fremantle Prison (1852–86)

6 Australian Convict Sites Strategic Management Framework WORLD HERITAGE

The World Heritage Management obligations Convention The Australian Government manages its World Heritage properties in accordance with the duties and obligations The World Heritage Convention was established under the auspices of the United Nations in 1972. It aims to of States parties. Article 5 of the World Heritage Convention promote cooperation among nations to protect the world’s stipulates that: natural and cultural heritage. Australia’s ratification of the To ensure that effective and active measures are taken Convention in 1974 made it one of the first countries to for the protection, conservation and presentation of the commit to identifying, protecting, conserving, presenting cultural and natural heritage situated on its territory, each and transmitting the values of World Heritage sites. State Party to this Convention shall endeavour, in so far as The Convention is administered by the World Heritage possible, and as appropriate for each country: Committee, which is made up of 21 nations elected from • to adopt a general policy which aims to give the the signatories to the Convention. In October 2007 the cultural and natural heritage a function in the life of Australian Government was elected to the Committee for the community and to integrate the protection of that a four-year term. Under the Convention a list of properties heritage into comprehensive planning programmes; having outstanding universal value has been established. Only the national government of a country party to the • to set up within its territories, where such services do Convention (the State Party) may nominate an area or site not exist, one or more services for the protection, within its area of jurisdiction for World Heritage listing. conservation and presentation of the cultural The Australian Government works in close co-operation and natural heritage with an appropriate staff and with State and Territory governments to ensure it meets its possessing the means to discharge their functions; international obligations. • to develop scientific and technical studies and research A nominated area or site must be of outstanding universal and to work out such operating methods as will make value and meet at least one of the ten specified criteria (see the State capable of counteracting the dangers that http://whc.unesco.org/en/criteria/) to be included on the threaten its cultural or natural heritage; World Heritage List. The Australian Convict Sites has been nominated under criteria (iv) and (vi) of the World • to take the appropriate legal, scientific, technical, Heritage Convention (see possible World Heritage values administrative and financial measures necessary for the below). There are 17 World Heritage areas in Australia and identification, protection, conservation, presentation 851 throughout the world at the time of publication of this and rehabilitation of this heritage; and document. • to foster the establishment or development of national or regional centres for training in the protection, Ownership and control conservation and presentation of the cultural and World Heritage listing does not affect ownership natural heritage and to encourage scientific research rights or control of the convict sites. The individual in this field. properties remain under relevant State, Territory and While UNESCO does not determine the management of Commonwealth jurisdictions (see also Management listed properties, it does require periodic reporting about Context). The Australian Government does however the state of conservation of World Heritage properties and have an international obligation, should the nomination can liaise with State Parties regarding possible concerns. be successful, to protect, conserve, present and transmit to future generations the World Heritage values of the property. The responsible Australian Government agency is the Department of the Environment, Water, Heritage and the Arts.

Australian Convict Sites Strategic Management Framework 7 (vi) be directly or tangibly associated with World Heritage values events or living traditions, with ideas, or The 11 individual places all contribute to the nomination’s with beliefs, with artistic and literary works outstanding universal values. of outstanding universal significance.

The Australian Convict Sites has been nominated for the Australian Convict Sites are of outstanding inscription on the World Heritage List under two of the universal significance for their association with global criteria: developments in ideas and beliefs about punishment and reform of the criminal elements of humanity in (iv) be an outstanding example of a type of the modern era. These included: building, architectural or technological ensemble or landscape which illustrates • consolidation and expansion of the transportation (a) significant stage(s) in human history. system as one of the dominant models of punishment of crime by European powers in Collectively, the Australian Convict Sites are an the 19th century; and outstanding example of an architectural ensemble which illustrate a significant stage in human • emergence of new forms of punishment’ history, that of the forced migration of convicts. including the shift from corporal punishment to Through these buildings the Australian Convict Sites psychological punishment, and the development of demonstrate the main features of the global systems of segregated prisons for female and juvenile criminals; transportation and convictism. These were: and

• use of transportation as a strategic tool to expand • influence of transportation on the rise of national the home state’s sphere of influence. Many state penitentiary system in Europe. powers used convicts to build new colonies in order to expand their economic, military and political influence across the world;

• use of transportation by nation states as a mechanism for the control of law and order. The establishment of penal colonies to punish criminal offenders and deter crime in the home state was an immediate and long-term objective of transportation systems; and

• use of transportation by state powers to reform the criminal elements of humanity. Penal systems were introduced to rehabilitate criminals into productive citizens and integrate them into the new colonies or for their return to the home state.

8 Australian Convict Sites Strategic Management Framework MANAGEMENT CONTEXT

Legislation Planning approach Australia is one of only a few countries worldwide that This Framework is part of the overall planning regime has enacted legislation to implement its obligations for the Australian Convict Sites. It seeks to ensure under the World Heritage Convention. The Environment management of all the properties included in the listing Protection and Biodiversity Conservation Act 1999 (EPBC is consistent, coordinated and complementary. It has Act) came into effect in 2000 and provides a direct link to been prepared by the Convicts Nomination Steering Australia’s obligations under the World Heritage Convention. Committee for the Australian Government, New South The Environment Protection and Biodiversity Conservation Wales, Norfolk Island, Tasmania and Western Australian Regulations 2000 (the Regulations) prescribe the Australian governments to provide direction and guidance to World Heritage management principles, which the the managing agencies/owners in the formulation of Australian Government and its agencies must take all their policies and in the development of other planning reasonable steps to comply with (see Appendix 1). instruments. It also provides a commitment by all parties to manage and protect the World Heritage values to meet World Heritage listing means a property is protected as a Australia’s obligations under the World Heritage Convention. matter of national environmental significance under the EPBC Act. In managing the property, owners/managers The Australian Government, in conjunction with are obliged to take into account the World Heritage values the States and Territories, is examining governance of the property and must seek approval when making arrangements for the World Heritage properties under decisions affecting those values. the auspices of the Environment Protection and Heritage [Ministerial] Council (EPHC). This body is assessing The EPBC Act already applies through National and options for Advisory Committee arrangements and Commonwealth Heritage listing and will have further mechanisms for improved outcomes at individual World application to the Australian Convict Sites, should it be Heritage properties, including a model for cooperative inscribed on the World Heritage List. Under the EPBC funding arrangements. Funding arrangements for Act a proposal that has, will have or is likely to have a Australia’s World Heritage properties will take into significant impact on the World Heritage values of a account the respective obligations of the Australian property must be referred to the Australian Government and State and Territory governments, and the social and Environment Minister for a decision on whether or economic impacts of World Heritage properties on not approval is required. The EPBC Act places the regional, state and national economies. responsibility on the person who takes or is considering taking an action to ensure it will not have a significant Preparation of the Framework has been guided by impact on the World Heritage values. Substantial civil and information in the documents prepared for the World criminal penalties apply for breaches of the EPBC Act. Heritage nomination of the Australian Convict Sites, existing management arrangements and government The possible World Heritage values of the Australian policies and consultation with the management agencies/ Convict Sites and the proposed buffer zones are owners and the community. safeguarded through a robust protection and management system. Each property is currently subject to a range of Consultations with local communities were held at each State and Territory protection legislation, including State of the 11 sites in the development of the nomination. and Territory regional planning controls. There are also In addition expert groups and planning officials were a number of planning mechanisms in place that provide consulted on the nomination and the proposed protection at the local level. management arrangement for the 11 sites.

An outline of the primary legislative context that applies to the places in each State and Territory is presented in Figure 1.

Australian Convict Sites Strategic Management Framework 9 Figure 1: Legislative context

New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Legislation Environment Protection and Biodiversity Conservation Act 1999

Sydney Harbour Federation Trust Act 2001

Planning Act Planning and State or Environmental Planning and Assessment Act 1979 2002 Land Use Planning and Approvals Act 1993 Development Territory Act 2005 (Provincial) Legislation Heritage Act Heritage of Heritage Act 1977 2002 Historic Cultural Heritage Act 1995 Western Australia Act 1990

National Trust Historic National Parks Public of Australia Houses and Wildlife Act Reserves (NSW) Act Act 1980 1974 Act 1997 National Parks and Reserves Management Act 2002 1990

Parramatta Park Port Arthur Historic Site (Old Government Management Authority Act 1987 House) Act 1967

Parramatta Park Trust Act 2001

Local Sydney Sydney Local Gosford Norfolk Tasman Planning Scheme 1979 Glamorgan City of Hobart Northern City of Legislation Regional Environment Interim Island Plan Spring Bay Planning Midlands Fremantle Environment Plan 2005 Development 2002 Planning Scheme 1982 Planning Local Planning Plan no 28 Order Scheme1994 Scheme 1995 Scheme No 4 Parramatta (IDO 122) 2007 1999

10 Australian Convict Sites Strategic Management Framework New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Legislation Environment Protection and Biodiversity Conservation Act 1999

Sydney Harbour Federation Trust Act 2001

National Trust Historic National Parks Public of Australia Houses and Wildlife Act Reserves (NSW) Act Act 1980 1974 Act 1997 National Parks and Reserves Management Act 2002 1990

Parramatta Park Port Arthur Historic Site (Old Government Management Authority Act 1987 House) Act 1967

Parramatta Park Trust Act 2001

Australian Convict Sites Strategic Management Framework 11 STRATEGIC MANAGEMENT

• to manage the broad range of heritage values, both Objectives World Heritage and non-World Heritage, ensuring World Heritage status is the highest level of recognition that achieving the long-term conservation of the afforded to a heritage place. It places an important property’s World Heritage values is the overriding responsibility on Australia to apply the highest standards principle. of management practice. While there are a number of convict sites that contribute Management objectives for the Australian Convict Sites to the convict story in Australia, only a small number have been derived from the World Heritage Convention of places meet the stringent UNESCO requirements and its Operational Guidelines, which together provide the and represent key elements of global convictism as well basis for management and guidance in the formulation as demonstrating the unique features of the Australian of operational management strategies. These objectives convict story. In the event the Australian Convict Sites are consistent with, and complemented by, the Australian is inscribed on the World Heritage List the Australian World Heritage management principles set out in the Government and the State and Territory governments Environment Protection and Biodiversity Conservation will work together to develop effective cooperative Regulations 2000. cross-promotional campaigns that cover important convict sites, not included in the World Heritage place, Strategic objectives for management of the Australian in the respective States and Territory. Convict Sites are: • to manage the sites in a way that supports, sustains and Management arrangements transmits their identity as a serial listing where each of the parts contributes to the whole; The Australian Convict Sites consists of 11 sites across three States and one Territory. The individual places are • to identify, protect, conserve, present, transmit to controlled and managed under various management and present and future generations the possible World statutory regimes that provide specific legal protection, and Heritage values of the sites; that protection is translated into protective measures under management plans and associated programs. • to integrate the protection and management of the sites into a comprehensive planning program; This Framework provides an overarching structure to meet the obligations for the protection and management of • to give the sites a function in the life of the local the Australian Convict Sites as set out in the Operational Australian and global communities; Guidelines:

• to strengthen appreciation and respect for World • outstanding universal value, the condition of Heritage values, particularly through research, integrity and/authenticity at the time of inscription educational and information programs and keeping is maintained or enhanced in the future; the community informed about the management and condition of the World Heritage values of the sites; • adequate long-term legislative, regulatory, institutional and/or traditional protection and management is in • to take the appropriate scientific, technical, legal, place to ensure their safeguarding; administrative and financial measures necessary for implementing these objectives; • legislative and regulatory measures at national and local levels provide for the conservation of the • to provide for continuing community and technical property and protection against development and input in managing the sites; and change that might negatively impact the outstanding universal value, or the integrity and/or authenticity of the property;

12 Australian Convict Sites Strategic Management Framework • boundaries of places are clearly delineated; The Environment Protection and Heritage Council (EPHC) is an inter-governmental council of environment • wherever necessary for the proper conservation of the ministers. The Department of the Environment, Water, property, an adequate buffer zone is provided to give a Heritage and the Arts supports the Minister for the complementary legal protection to the property; and Environment in his role as chair of the EPHC. One of the • each nominated property has an appropriate functions of the EPHC is to provide a national Ministerial management plan that specifies how the outstanding forum for World Heritage matters. Should the Australian universal value of the property should be preserved, Convict Sites be inscribed on the World Heritage List, the preferably through participatory means. EPHC will be responsible for the strategic resolution of World Heritage issues and provide advice and direction to The management regime for the Australian Convict the ACSSC. Sites is structured through a number of governing bodies and through the individual conservation management A number of principles will guide owners/managers in plans for the places that make up the proposed Australian meeting the strategic objectives for the management of Convict Sites World Heritage property. The conservation the Australian Convicts Sites: management plans developed to accompany the • a collaborative approach will benefit the Australian nomination have been prepared to meet the Environment Convict Sites as a whole; Protection and Biodiversity Conservation Act 1999 standards for National and World Heritage management plans. • cooperative management arrangements and The plans also satisfy the various State and Territory mechanisms across the serial sites will enhance regulatory requirements. outcomes at individual properties;

Figure 2 shows the interaction between the Australian • a risk management approach will recognise each site Convict Sites - Strategic Management Framework and the is an integral part of the proposed serial listing; individual management plans. • there will be no additional layers of management planning;

Administration and • individual sites will enhance information sharing and consultation arrangements establish co-operative mechanisms for information exchange; The proposed Australian Convicts Sites will be administered through a system of governing bodies: those • grant programs where appropriate will acknowledge concerned with the management and operational aspects eligibility of historic World Heritage properties in of specific places at the State and Territory level as well their criteria and guidelines; as those with management of the property as a whole, including a national strategic approach to World Heritage • a collegiate approach to proposals and initiatives governance (see Figure 3). relevant to all sites is encouraged, eg for research and tourism; and In 2006 all participating governments in Australia agreed to establish a Convict Nomination Steering Committee • cooperative funding arrangements will take into (CNSC) of senior agency officials from each of the account the social and economic impacts of World State and Territory governments, as well as the Australian Heritage properties on regional, state and national Government, to develop policy directions and cooperative economies and draw upon research, planning and management of the possible World Heritage property. tourism marketing data. One of the primary roles of the CNSC has been to oversee the formulation of this Framework. A new committee, the Australian Convict Sites Steering Committee (ACSSC), will implement the Framework (see Appendix 2).

Australian Convict Sites Strategic Management Framework 13 Figure 2: Management system

New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Planning Australian Convict Sites – Strategic Management Framework (2008)

State or Old Hyde Park Old Great Cockatoo Kingston and Port Arthur (included in) Maria Island – Cascades Brickendon Fremantle Territory Government Barracks North Road Island Arthur’s Vale Historic Sites Port Arthur Darlington Female Factory Conservation Prison (Provincial) House and Management Dharug Management Historic Area Statutory Historic Sites Settlement & Conservation Management Conservation Planning Domain, Plan (2007) National Park Plan (2008) Management Management Statutory Point Lesueur Management Plan (2008) Management Parramatta Management Plan (2008) Plan (2007) Management Conservation Plan (2007) Woolmers Plan (2007) Park Plan (2008) Plan (2007) Management Conservation Management Plan (2007) Management Plan (2007) Plan (2008)

14 Australian Convict Sites Strategic Management Framework New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Planning Australian Convict Sites – Strategic Management Framework (2008)

Australian Convict Sites Strategic Management Framework 15 Figure 3: Governance arrangements

New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Governance Environment Protection and Heritage Council

Australian Convict Sites Steering Committee (Australian Government, Norfolk Island, WA, Tas & NSW ofﬁcials)

State or Territory (Provincial) Tasmanian Convict Sites Working group Governance

Local National Trust Historic National Sydney Kingston and Port Arthur Historic Site National Parks Female Factory Woolmers Fremantle Governance of Australia Houses Parks Regional Harbour Arthur’s Vale Management Authority Board Advisory Historic Site Foundation Prison Advisory (NSW) Trust Board Advisory Federation Management Committee Board (applies to Committee Parramatta Committee Trust Board Board Woolmers only) Park Trust

16 Australian Convict Sites Strategic Management Framework New South Wales Norfolk Tasmania Western Island Australia

Convict Sites Old Government Hyde Park Old Great Cockatoo KAVHA Port Arthur Coal Mines Darlington Cascades Brickendon- Fremantle House Barracks North Road Island Woolmers Prison

National Governance Environment Protection and Heritage Council

Australian Convict Sites Steering Committee (Australian Government, Norfolk Island, WA, Tas & NSW ofﬁcials)

State or Territory (Provincial) Tasmanian Convict Sites Working group Governance

Australian Convict Sites Strategic Management Framework 17 Cooperative opportunities Benefits of such networks may include: • longer-term sustainability of heritage places; The Australian Convict Sites Steering Committee (ACSSC) will investigate and consider a range of • collaborative partnerships to share resources, provide opportunities to conserve and present the Australian savings and maximise audience reach; Convict Sites. The ACSSC will also explore options to connect with companion sites. • using community expertise and support to develop networks, leading to employment and tourism opportunities; Promotion and interpretation • empowering communities to take greater ownership Inclusion of the Australian Convict Sites on the World of their special places; Heritage List will lead to greater international exposure for the places included within the listing; however it will also • preserving, interpreting and telling the story of a create promotional opportunities for the local, regional place and the people who occupied it, providing an and broader communities near those places. important element of community cohesion; and

Once inscribed the Australian Convict Sites has the • enhancing the preservation and interpretation potential to develop a national heritage trail linking of State and Territory cultural heritage. convict sites at the national, regional and local level. By linking authentic heritage experiences, a trail would make it easier for visitors to explore a region and get a real sense Research and information sharing of its history. Development of a comprehensive visitor Encourage ACSSC and site managers to share information information and interpretation strategy for the Australian in records, databases, archives, diaries, archaeological Convict Sites will enhance visitor experience, where materials, and facilitate transcription of records and the market demands are towards more learning and engaging conservation and presentation of objects and materials experiences rather than just visiting places. associated with the convict history of the place.

There are a number of possible projects that would assist Opportunities for joint research and information sharing in building an identifiable network of places including: including:

• development of common World Heritage branding, • an integrated research program and research priorities eg signage; on the historical development and interpretation of • web-based information and collaborative work pages convictism, including for the companion sites; with with links to related places and ‘virtual tours’; and regard to state, regional and local variations in and contributions to this development and interpretation; • on-site interpretation that connects to the other Australian Convict Sites as well as the companion • the establishment and maintenance of an image bank sites that tell the convict story in a region. of contemporary and historical images (including the companion sites) for research, educational and A national heritage trail centred on each of the places promotional purposes; included in the Australian Convict Sites would need to be underpinned by cooperative work between sites and jurisdictions to promote tourism, using shared resources and interpretive material where possible.

18 Australian Convict Sites Strategic Management Framework • the establishment and maintenance of a database of archaeological research and investigations Implementation and review undertaken, and the development of a coherent set Implementation of this Framework is the responsibility of of archaeological research design questions, including Australian Convict Sites Steering Committee (ACSSC). for the companion sites; and Responsibility for implementing the management plans for the individual places rests with the relevant State • the preparation of accurate historical statistical data and Territory agencies and the established governing on transportation, convicts and associated phenomena bodies. Implementation will depend on the provision of to help interpret and promote the group and adequate resources by the State, Territory and Australian companion sites. governments. This will be subject to negotiation by the Consideration should also be given to the coordinated Environment Protection and Heritage Council (EPHC). safekeeping of information. The Australian Convict Sites – Strategic Management Framework will be current for 10 years from the date Sharing resources/expertise of its approval by the signatory Ministers and will be reviewed after seven years. A 10-year timeframe has been Encourage site managers to consider ways of sharing selected for medium-term planning to provide a realistic resources and expertise on conservation activities. period within which the management responses can be The individual conservation management plans provide implemented and their effectiveness evaluated. In addition the basis and priority for conservation measures to be the review will identify reasons for lack of achievement or undertaken. However access to specialist skills and implementation; assess new information that might affect information on the progress and success of conservation management; and propose changes and new management work is likely to support the capacity and responsiveness actions where appropriate. of all site managers. Each of the existing plans for the individual places Possible projects include: will undergo a review process within seven years of the • Identify training needs in traditional skills, approval of this Framework. One aim is to ensure the plans conservation trades and professional development reflect the duties and obligations of signatories to the across the whole group, and advocate ways to address World Heritage Convention and to support cooperative these needs. management at strategic policy and operational levels. The reviews also provide an opportunity to incorporate • Consider scientific and technical studies and research any changes in international best practice on conservation that may assist in counteracting threats to the integrity and management. of the proposed World Heritage values of the Australian Convict Sites.

Under the EPHC collaborative work on climate change, develop policies to respond to the World Heritage Committee’s policy and strategy on heritage and climate change to protect the outstanding universal value, integrity and authenticity of the Australian Convict Sites from the adverse effects of climate change.

Australian Convict Sites Strategic Management Framework 19 Appendices

Appendix 1 - Australian World Heritage management principles (Environment Protection and Biodiversity Conservation Regulations 2000)

Schedule 5 Australian World Heritage management principles (regulation 10.01)

1 General principles 2 Management planning 1.01 the primary purpose of management of natural 2.01 At least 1 management plan should be prepared heritage and cultural heritage of a declared World for each declared World Heritage property. Heritage property must be, in accordance with Australia’s obligations under the World Heritage 2.02 A management plan for a declared World Heritage Convention, to identify, protect, conserve, present, property should: transmit to future generations and, if appropriate, (a) state the World Heritage values of the property rehabilitate the World Heritage values of the for which it is prepared; and property. (b) include adequate processes for public 1.02 the management should provide for public consultation on proposed elements of consultation on decisions and actions that may have a the plan; and significant impact on the property. (c) state what must be done to ensure that the 1.03 the management should make special provision, World Heritage values of the property are if appropriate, for the involvement in managing identified, conserved, protected, presented, the property of people who: transmitted to future generations and, if (a) have a particular interest in the property; and appropriate, rehabilitated; and

(b) may be affected by the management of the (d) state mechanisms to deal with the impacts property. of actions that individually or cumulatively degrade, or threaten to degrade, the World 1.04 the management should provide for continuing Heritage values of the property; and community and technical input in managing the property. (e) provide that management actions for values, that are not World Heritage values, are consistent with the management of the World Heritage values of the property; and

20 Australian Convict Sites Strategic Management Framework (f) promote the integration of Commonwealth, 3 Environmental impact State or Territory and local government responsibilities for the property; and assessment and approval 3.01 this principle applies to the assessment of an action (g) provide for continuing monitoring and that is likely to have a significant impact on the World reporting on the state of the World Heritage Heritage values of a property (whether the action is to values of the property; and occur inside the property or not). (h) be reviewed at intervals of not more than 7 years. 3.02 Before the action is taken, the likely impact of the action on the World Heritage values of the property should be assessed under a statutory environmental impact assessment and approval process.

3.03 the assessment process should:

(a) identify the World Heritage values of the property that are likely to be affected by the action; and

(b) examine how the World Heritage values of the property might be affected; and

3.04 An action should not be approved if it would be inconsistent with the protection, conservation, presentation or transmission to future generations of the World Heritage values of the property.

3.05 Approval of the action should be subject to conditions that are necessary to ensure protection, conservation, presentation or transmission to future generations of the World Heritage values of the property.

3.06 the action should be monitored by the authority responsible for giving the approval (or another appropriate authority) and, if necessary, enforcement action should be taken to ensure compliance with the conditions of the approval.

Australian Convict Sites Strategic Management Framework 21 Appendix 2 – Roles and responsibilities

The Australian Convict Sites Steering Committee • to seek and take advice from the site advisory (ACSSC) committees as appropriate;

Terms of Reference • to resolve differences in points of view which may arise from time to time; and (i) the Australian Convict Sites Steering Committee (ACSSC) will, under the direction of the • coordinate policy between the Australian Environment Protection and Heritage Council Government, New South Wales, Tasmania, (EPHC), formulate and implement policies to Western Australia and Norfolk Island on all consistently and cooperatively manage the Australian matters concerning the Australian Convict Sites Convict Sites, at a strategic level, across State and World Heritage property. Territory boundaries in accordance with the goal of best practice management of Australia’s World the ACSSC will ensure the functions of the Heritage properties. Committee are consistent with the outcomes of the World Heritage Governance Review. (ii) the major functions of the ACSSC shall be:

• to implement the Framework;

• to develop and coordinate strategic policy for the Australian Convict Sites in relation to Australia’s obligations under the World Heritage Convention;

• to provide advice and recommendations to the EPHC on any matters relevant to the effective management of the Australian Convict Sites, in particular:

— management requirements and management planning,

— research and education;

— boundary modification;

— presentation and promotion;

— community consultation and liaison;

— risk management and

— financial matters.

22 Australian Convict Sites Strategic Management Framework Membership

It is anticipated the ACSSC will be made up of Australian, State and Norfolk Island government representatives and/or one representative of the place managers of each jurisdiction. It is expected the Chair will be appointed on a two-year basis and rotate through the States and Norfolk Island in alphabetical order.

Appointment

Government representatives shall be appointed as deemed appropriate by the relevant management agencies. Place manager appointments will rotate between sites when there is more than one in a State. It is the responsibility of the appointee to inform other place managers in that state of issues discussed at ACSSC.

Operation

The ACSSC shall operate according to the following procedures:

(i) a quorum, requiring the Chair (or delegate) and representatives from each State and Norfolk Island;

(ii) the ACSSC shall meet on an agreed basis, at least once in a calendar year (which may include meeting by teleconference or email) or as otherwise directed by the EPHC;

(iii) secretariat support shall be provided by the Australian Government;

(iv) meetings shall be held by rotation in the States and Norfolk Island, or elsewhere by agreement;

(v) the Chair of ACSSC will be appointed on an two-year basis and rotate through the States and Norfolk Island;

(vi) procedure for the conduct of business shall be, wherever possible, by consensus and resolution; there will be no provision for voting; and

(vii) governments shall bear the costs of their own representatives attending meetings of the ACSSC.

Australian Convict Sites Strategic Management Framework 23 24 Australian Convict Sites Strategic Management Framework