Heritage Impact Assessment
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Sub Base Platypus, North Sydney Torpedo Factory Renewal Project HERITAGE IMPACT ASSESSMENT Source: Harbour Trust, 2020 Prepared for: Sydney Harbour Federation Trust Prepared by: Lucas, Stapleton, Johnson and Partners Pty. Ltd. The Trust Building, Suite 303/155 King Street Sydney NSW 2000 Telephone: (02) 9357 4811 FINAL ISSUE Date: 9th November 2020 © Lucas, Stapleton, Johnson and Partners Pty. Ltd. 2020 Issue Date Reviewed by Approved Draft Issue 23/09/2020 SJ SJ Issue 22/10/2020 SHFT Issue 04/11/2020 SHFT Final Issue 09/11/2020 LSJ LSJ Executive Summary This Heritage Impact Statement analyses the potential heritage impact of a proposal for works to the Torpedo Factory, located at Sub Base Platypus, North Sydney. The proposal involves the demolition of the multi-level, harbour facing portion and part of the High Street portion of the Torpedo Factory building in order to provide additional public space for community use and amenity as part of the greater adaption of the site. The aims and visions for Sub Base Platypus are outlined in the Management Plan: Platypus, North Sydney (2016) and the amended Draft Management Plan: Platypus, North Sydney (2020), which incorporates the current proposal. Sub Base Platypus, North Sydney (Platypus) is a former gas works (1877-1932), torpedo factory (1942-1999) and submarine base (1967-1999), that is now under the care and management of the Sydney Harbour Federation Trust (The Harbour Trust), a Commonwealth government agency. Today, Sub Base Platypus functions in part as a public park with buildings and facilities adapted for a range of cultural, recreational, community and commercial uses, with car parking. Sub Base Platypus is not included on the Commonwealth Heritage List, however it has been identified as possessing potential Commonwealth Heritage values as per the (former) HMAS Platypus Conservation Management Plan 2008, prepared by Clive Lucas, Stapleton & Partners. Sub Base Platypus is not listed on the State Heritage Register. Sub Base Platypus is listed as a heritage item in Schedule 5 of the North Sydney Local Environment Plan (LEP) 2013, as “Gasworks remains, HMAS Platypus”, 1 Kiara Close, North Sydney & 118-138 High Street, North Sydney, Item no. I0859. This report has been prepared by Lucas, Stapleton, Johnson & Partners (LSJ) on behalf of the Sydney Harbour Federation Trust (Harbour Trust), as the proponent. The purpose of this report is to identify the site’s heritage values, assess the potential heritage impacts of the proposal, and provide guidelines and measures for appropriate mitigation of potential impacts in relation to the identified Commonwealth Heritage Values of the place. The assessment has been informed by the Harbour Trust’s Comprehensive Plan, the Platypus Management Plans (current and draft) and the (former) HMAS Platypus North Sydney Conservation Management Plan (CMP) for the site. The report has been prepared in accordance with the principles of the Australia ICOMOS Charter for Places of Cultural Significance (The Burra Charter) and the Commonwealth Heritage Principles in accordance with the Environmental Protection and Biodiversity Conservation Act (EPBC Act) 1999. Outcomes Based on the assessment of potential heritage impacts undertaken for this report, in our opinion, the proposal to substantially demolish the Torpedo Factory at Sub Base Platypus, North Sydney will have negative impacts on the cultural significance of the building and the place as a whole. Although the (former) HMAS Platypus North Sydney Conservation Management Plan 2008 allows for the removal of buildings and fabric graded as being of Some significance, such as the Torpedo Factory, this is qualified by the requirement that removal is only considered appropriate if the removal of the building is found to be “necessary for community amenity or commercial necessity” (Policy 8 of the CMP 2008). The Harbour Trust, in taking into account the community’s feedback, considers that the current proposal is necessary for community amenity through the provision of additional public open space whilst retaining and interpreting heritage fabric. The proposal will substantially increase the amount of open landscaped area provided for at Platypus, complementing the existing parklands at the northern end of the site. The proposal will also increase the green connection between Platypus and Kesterton Park to the south, offering further public benefit. In our opinion, the proposal will result in the loss of significant fabric, a diminishment of the potential historical and social Commonwealth Heritage Values of the place, a dilution of the robust industrial/maritime/defence character that defines Platypus and will reduce the ability to interpret the significant history of the Torpedo Establishment era of the place. As such, the proposed action is considered as having a significant impact on the environment (specifically, the heritage values) of the place, within the meaning of the Environmental Protection and Biodiversity Act 1999. It is noted that the Harbour Trust will be referring the proposal to the Minister in accordance with the requirements of the EPBC Act. Opportunities exist to mitigate, in part, the impacts of the proposal within the detailed design documentation via the implementation of interpretation devices and strategies, including (but not limited to): Incorporating as many vestiges of the Torpedo Factory building as possible into the design of the proposed open, landscaped terraces. Retaining physical evidence of the building’s footprint to interpret the full extent of the building. Undertaking further research into the working lives of former employees of the Torpedo Factory (including oral histories), to increase knowledge about the use of the building and social aspects of working at the Torpedo Establishment. LUCAS STAPLETON JOHNSON & PARTNERS PTY LTD Contents Executive Summary i 1. Introduction 5 1.1. Report Authors 6 1.2. Methodology 6 1.3. Terminology & Abbreviations 6 1.4. Limitations 6 1.5. The Site 6 1.5.1. Torpedo Factory 7 2. Historical Development 15 2.1. Historical Context 15 2.2. Outline Chronology 15 3. Significance of the Place 20 3.1. Heritage Status 20 3.2. Statements of Significance 21 3.2.1. (former) HMAS Platypus Conservation Management Plan 2008 21 3.2.2. Register of the National Estate 22 3.3. Significance of Components 22 3.4. Archaeological Potential 23 4. The Proposal 25 4.1. The Harbour Trust’s Design Intent and Objectives for the Torpedo Factory 26 4.1.1. Summary of Proposal 26 4.1.2. Alternative Proposals 29 5. Heritage Impact Assessment 30 5.1. Assessment Methodology 30 5.2. Heritage Impact Assessments 31 5.2.1. Assessment 1: Environment Protection & Biodiversity Conservation (EPBC) Act 1999 31 5.2.2. Assessment 2: Assessment against the potential Commonwealth Heritage values 32 5.2.3. Assessment 3: Assessment against the Conservation Policies 35 5.2.4. Assessment 4: North Sydney Local Environmental Plan 2013 40 5.3. Conclusion 41 5.3.1. Opportunities and Recommendations 42 Platypus Renewal Project Heritage Impact Assessment iii LUCAS STAPLETON JOHNSON & PARTNERS PTY LTD Torpedo Factory Renewal Project, Sub Base Platypus iv Heritage Impact Assessment LUCAS STAPLETON JOHNSON & PARTNERS PTY LTD 1. Introduction This Heritage Impact Statement analyses the potential heritage impact of a proposal for works to the Torpedo Factory, located at Sub Base Platypus, North Sydney. The proposal involves the demolition of the multi-level, harbour facing portion and part of the High Street portion of the Torpedo Factory building in order to provide additional public space for community use and amenity as part of the greater adaption of the site. The aims and visions for Sub Base Platypus are outlined in the Management Plan: Platypus, North Sydney (2016) and the amended Draft Management Plan: Platypus, North Sydney (2020), which incorporates the current proposal. Sub Base Platypus, North Sydney (Platypus) is a former gas works (1877-1932), torpedo factory (1942-1999) and submarine base (1967-1999), that is now under the care and management of the Sydney Harbour Federation Trust (The Trust), a Commonwealth government agency. Today, Platypus functions in part as a waterfront public park with some commercial uses and onsite car parking. Platypus is not included on the Commonwealth Heritage List, however it has been identified as possessing potential Commonwealth Heritage values as per the (former) HMAS Platypus Conservation Management Plan 2008, prepared by Clive Lucas, Stapleton & Partners. Places that are owned or leased by the Commonwealth, as is the case with Platypus are still protected under the Environmental Protection and Biodiversity Conservation Act 1999 (EPBC Act). Sub Base Platypus is not listed on the State Heritage Register. Sub Base Platypus is listed as a heritage item in Schedule 5 of the North Sydney Local Environment Plan (LEP) 2013, as “Gasworks remains, HMAS Platypus”, 1 Kiara Close, North Sydney & 118-138 High Street, North Sydney, Item no. I0859. In December 2016 the Harbour Trust adopted a statutory Management Plan for the Platypus site, North Sydney and in 2020 the Harbour Trust prepared a draft amendment to the Management Plan 2016 (the Draft Management Plan 2020) to provide for the current proposal for the renewal of the Torpedo Factory. The overall aims of the Plan are to: Create a waterfront urban park; Protect, manage and interpret the site’s heritage values; Maximise public access to the site; Revive the site with a mix of new uses that are compatible with the site’s character and constraints; and Protect local environment and amenity. Some of the key aims within the Plan have already been implemented and the Commonwealth Government is providing a further $11.4 million in funding for the Harbour Trust towards the Sub Base Platypus Renewal Project. The purpose of this Heritage Impact Assessment is to identify the site’s heritage values, examine the relevant potential impacts of the proposed works in the context of the relevant planning framework, and identify appropriate measures to mitigate potential impacts.