Appendix-6-Amendment-C107-Mobil

Hobsons Bay City Council 12 April 2016 Ordinary Council Meeting Agenda

Appendix 6

Amendment C107 – Mobil Altona Refinery – Proposed Removal of Heritage Overlay

Amendment C107 Altona Refinery 351-381 Millers Road, Altona

Hobsons Bay Planning

Scheme

Amendment C107

THE ALTONA REFINERY Millers Road, Altona

Amendment C107 Altona Refinery 351-381 Millers Road, Altona Executive Summary The Amendment applies to land recognised as the Mobil Refinery in Altona (the site) at 351-381 Millers Road in Altona North. The amendment applies only to part of the land situated north of Kororoit Creek Road, bounded by Millers Road to the west, Kororoit Creek Road to the south and the rail line to the north and east (the site).

The site is currently zoned Special Use 2 (SUZ2) and is affected by Heritage Overlay 202 (HO202), the Industrial Heritage Places Policy and the Industry Policy in the Hobsons Bay Planning Scheme.

The heritage overlay currently triggers the requirement for a planning permit for all buildings and works, including demolition, new buildings and routine maintenance and repairs. When the heritage overlay was first applied to the site in 2003, the intent was to prepare an ‘incorporated document’ to identify the circumstances that did not require a permit. To date, the incorporated has not been prepared.

Mobil have raised ongoing concerns about the effect that the heritage overlay has on triggering permit applications for works that would not require a permit under the Special Use 2 Zone. Mobil have requested Amendment C107 to the Hobsons Bay Planning Scheme to remove the Heritage Overlay from the Altona Refinery

Mobil have submitted the Altona Refinery Conservation Management Plan (CMP) in support of their application. The CMP concludes that it is the ongoing use of the refinery that is the most important conservation objective, rather than the retention of individual elements of heritage fabric. It highlights that the removal of elements of heritage fabric is appropriate and necessary to support the ongoing use of the refinery.

It is recommended that the conclusion of the CMP be supported, however it should be supported through the removal of the heritage overlay rather than an incorporated plan. Indeed, Council’s own Industrial Heritage Places Policy is based on the same ‘conservation by use’ principle and the assessment of planning permit applications using the current planning framework has repeatedly shown that the removal of heritage fabric in the Altona Refinery is considered necessary and appropriate to facilitate the historical use of the site, ensure its future viability and to achieve a balance between economic and conservation objectives.

The Amendment also corrects a minor error to the Schedule to the Special Use Zone.

The proposal has been assessed against the strategic assessment guidelines outlined in Ministerial Direction 11. The heritage overlay and an incorporated plan are no longer required to achieve conservation objectives at the Altona Refinery. In conclusion, it is recommended that Hobsons Bay City Council seek authorisation from the Minister to prepare and exhibit Planning Scheme Amendment C107 to the Hobsons Bay Planning Scheme to remove the Heritage Overlay form the land.

2 Amendment C107 Altona Refinery 351-381 Millers Road, Altona Contents Executive Summary ...... 2 Contents ...... 3 The Subject Site and Surrounds ...... 4 EXISTING LAND USE ...... 4 Map 1 – Locality Plan ...... 5 Existing Planning Controls ...... 6 ZONING ...... 6 Map 2 – Zoning Map ...... 7 PARTICULAR PROVISIONS ...... 9 OVERLAYS ...... 9 Map 3 – Heritage Overlay (HO202) ...... 11 LOCAL POLICY ...... 12 Industry Policy ‐ Clause 22.02 of the Hobsons Bay Planning Scheme ...... 12 Industrial Heritage Places Policy ‐ Clause 22.01‐11 of eth Hobsons Bay Planning Scheme ...... 12 REFERENCE DOCUMENTS ...... 14 Hobsons Bay Heritage Study Amended 2014 ...... 14 Industrial Land Management Strategy June 2008 (ILMS) ...... 16 The Industrial Development Design Guidelines 2008 ...... 16 Background ...... 17 INTRODUCTION OF HERITAGE CONTROLS ON THE ALTONA REFINERY ...... 17 PLANNING PERMITS ...... 18 Photo 1 – Canteen and Auditorium – demolished 2015...... 20 Photo 2 – Thermofor Catalytic Cracker – to be demolished 2016 ...... 20 Photo 3 – Administration Building – demolished 2014 ...... 20 CONSERVATION MANAGEMENT PLAN ...... 21 Photo 4 – Administrative Building Millers Road ‐ front ...... 22 Photo 5 – Administrative Building Millers Road ‐ rear ...... 22 Analysis ...... 23 Conclusion...... 24

3 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

The Subject Site and Surrounds

1. Amendment C107 applies to land recognised as the Mobil Refinery in Altona. The amendment applies only to part of the land situated north of Kororoit Creek Road, bounded by Millers Road to the west, Kororoit Creek Road to the south and the rail line to the north and east.

2. The site address is 351-381 Millers Road, Altona. The land is legally described as Lot 5 TP850733, Lot 1 TP534082 and the eastern portion of Lot 9 TP850733.

3. The site has an approximate width of 413m and depth of 462m, with an approximate area of 19ha. The site has a relatively flat topography.

4. The site fronts two main arterial roads, Millers Road and Kororoit Road.

5. The Refinery’s main operations are focused on the site. Mobil has broader land holdings in the area, directly adjacent to the site. The adjacent properties to the east and to the northeast comprise of a fuel storage tank farm, industrial and fuel processing buildings and ancillary piping/transmission lines. The property to the north is a service station, a staff car park and vacant land with vehicle access achieved from both Kororoit Creek Road and Millers Road.

6. The location and boundaries of the site are shown on Map 1 on page 5.

EXISTING LAND USE

7. The site was originally used for the production of lubricants and bitumen from 1949 and then became one of the key petroleum fuel plant (refinery) in Australia in 1954.

8. The site is owned and operated by the Mobil Refining Australia Pty Ltd, a subsidiary of ExxonMobil who is the largest publicly traded international oil and gas company.

9. The refinery is an industry of State significance located in a core industrial precinct of Hobsons Bay. The Refinery supplies half of Victoria's fuel needs, playing a very important role in Victoria’s fuel supply chain and transport system. It produces around 12 million litres of refined products per day (enough to fuel 300,000 cars).

10. The refinery operates 24 hours a day, 365 days a year processing crude oil into the full range of petroleum products, including unleaded petrol (60 per cent), diesel (30 per cent) and jet fuel (per cent).

4 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

Map 1 – Locality Plan

5 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

11. The refining process involves imported crude oil arriving via tanker at Gellibrand wharf in Williamstown and then being transported to the refinery via pipeline or tanker or Victorian crude oil being transported by pipeline from the Gippsland/Bass Strait oil and gas fields. At the refinery, the crude oil goes through various processes and then the refined products are pumped into storage tanks to await distribution. There are almost 100 storage tanks at the Altona Refinery.

12. Around 90 per cent of products are then transported by pipeline from the refinery to Mobil Yarraville terminal and other oil company terminals for distribution by road throughout Victoria and into parts of South Australia and New South Wales. Jet fuel is transported directly from the refinery to Somerton, where it is then provided to Melbourne Airport. The refinery supplies LPG as feedstock to the nearby Altona chemical complex, which in turn supplies feedstocks to other petrochemical manufacturing plants at Altona. These plants produce the raw materials from which a multitude of consumer products are made including adhesives, plastics, film, wire insulation, car batteries and tyres.

13. The refinery has invested $300 million in maintenance/improvements since 2008 and is planning to invest another $90 million in the facilities in the next three years.

14. The Altona refinery current employs more than 350 people, with around forty per cent living in nearby suburbs.

15. Mobil provides funding support to local schools, hospitals, environmental projects and community organisations.

16. The Altona Refinery Community Liaison Committee, including representatives of Hobsons Bay City Council, local residents and refinery management, meets four times a year and meetings are open to all interested people in the local area. A newsletter is distributed to over 20,000 households to coincide with the meetings. At the meetings, Mobil reports on the refinery’s operations and environmental and safety performance and provides updates on progress achieved to meet targets and initiatives.

Existing Planning Controls

ZONING

17. The site is zoned Special Use Zone Schedule 2 Petroleum Refining Area (SUZ2) in the Hobsons Bay Planning Scheme, as shown in Map 2 on page 7.

6 Amendment C107 Altona Refinery 351-381 Millers Road, Altona Map 2 – Zoning Map

18. The provisions for the Special Use 2 Zone are contained in Clause 37.01-2 of the Hobsons Bay Planning Scheme.

19. The purpose of the Special Use 2 Zone is:

to provide for the operation and modernisation of the petroleum refining industry in a manner that does not affect the safety and amenity of nearby residential areas

to provide for the orderly and proper development of the area and for adequate landscaping to reduce the visual impact of the refinery

20. The only permitted major land uses on this land are a petroleum refinery, car park and service station. All other land uses are prohibited.

21. For the purposes of the Special Use 2 Zone, a petroleum refinery is defined as an industry using plant, equipment and facilities for the conversion of crude oil and other feed stocks into finished or intermediate petroleum products and by-products. This includes facilities for the receipt of crude oil and other feed stocks, facilities for the storage of crude oils, intermediate and finished products and by-products, pumping, pipeline and distribution facilities, units for the removal and control of impurities and by-products, waste treatment facilities, utilities including steam raising and electrical generating equipment, control

7 Amendment C107 Altona Refinery 351-381 Millers Road, Altona rooms, laboratories, research facilities, administration, warehousing, maintenance, training and amenity buildings and facilities and other associated works.

22. The use of the land for a petroleum refinery is exempt from the standard and reduced parking requirements of Clause 52.06 of the Hobsons Bay Planning Scheme if parking is provided on the site to the satisfaction of the responsible authority.

23. A permit is required to construct a building or construct or carry out works. This does not apply to a building or works which:

 provide or alter plumbing and electrical services  involve the minor rearrangement of car parking areas and landscaping provided that these areas are not diminished  rearrange, alter or renew plant if the areas of plant external to existing buildings is not increased  are a temporary shed or structure, not exceeding 100 square metres in floor area, which is outside driveway, car parking, loading or landscaping areas  any works carried out by a public authority or a municipal council in association with the development of new plant or buildings  comply with a direction or licence under the Dangerous Goods Act 1985 or a Waste Discharge Licence, Works Approval or Pollution Abatement Notice under the Environment Protection Act 1970

24. Before deciding on an application to construct a building or construct or carry out works, the responsible authority must consider a range of matters including:

 the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies  views of the Environment Protection Authority, the Department of Natural Resources and Environment, the Minister administering the Dangerous Goods Act 1985 and the relevant waterway management authority (about any works proposed in the flood plain of Kororoit Creek)  drainage of land  adequacy of information supplied  availability of services  the layout of the site and design of buildings including methods of minimising the visual impact of the refinery on nearby residential areas, Kororoit Creek Road, Millers Road, Kororoit Creek, Altona Coastal Park and Cherry Lake  the layout of the site and design of buildings including the relationship of the buildings and works to the street and adjoining properties and the set backs from Millers Road and Kororoit Creek Road

8 Amendment C107 Altona Refinery 351-381 Millers Road, Altona PARTICULAR PROVISIONS

25. Other permit exemptions, potentially relevant to the Altona Refinery are listed in Clause 62.02 of the Hobsons Bay Planning Scheme and include:

 buildings or works, which provide for fire protection under relevant legislation  gardening  buildings or works which are a modification necessary to comply with a direction under the Dangerous Goods Act 1985 or the Occupational Health and Safety Act 2004 or a Waste Discharge Licence, Works Approval or Pollution Abatement Notice under the Environment Protection Act 1970  buildings and works associated with a telecommunications facility if the requirements of Clause 52.19 are met  a temporary shed or temporary structure for construction purposes, or a temporary portable land sales office located on the land for sale  oil pipelines  repairs and routine maintenance to an existing building or works  removal, destruction or lopping of trees and the removal of vegetation  demolition or removal of a building or works unless a permit is specifically required for demolition or removal

26. Advertising signs within the Special Use 2 Zone are Category 2. Advertising sign provisions are at clause 52.05 of the Hobsons Bay Planning Scheme. Category 2 provides for adequate identification signs and signs that are appropriate to office and industrial areas, with a limited level of advertising control. A planning permit is not required for a business identification sign or pole sign provided that the total advertisement area of all signs to each premises does not exceed 8 square metres (sqm) (excluding a direction sign). A permit is also not required for a direction sign and an internally illuminated sign, provided the advertisement area must does not exceed 1.5 sqm and the sign is more than 30 metres from a residential zone or pedestrian or traffic lights. All other signs require a planning permit. No signs are prohibited.

OVERLAYS

27. The purpose of the Heritage Overlay is:

 to conserve and enhance heritage places of natural or cultural significance  to conserve and enhance those elements which contribute to the significance of heritage places  to ensure that development does not adversely affect the significance of heritage places

28. The Heritage Overlay overrides any exemptions in the Special Use 2 Zone and triggers the requirement for a planning permit to undertake most development activities, including:

9 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

 subdivide land  demolish or remove a building  construct a building or construct or carry out works, including a fence, externally altering a building by structural work, rendering, sandblasting or in any other way, constructing or displaying a sign, externally painting an unpainted surface, externally paint a building if the painting constitutes an advertisement, carry out works, repairs and routine maintenance which change the appearance of a heritage place or which are not undertaken to the same details, specifications and materials

29. Before deciding upon an application in the Heritage Overlay, Council must consider:

 the State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies.  the significance of the heritage place and whether the proposal will adversely affect the natural or cultural significance of the place  any applicable statement of significance, heritage study and any applicable conservation policy  whether the location, bulk, form or appearance of the proposed building will adversely affect the significance of the heritage place  whether the location, bulk, form and appearance of the proposed building is in keeping with the character and appearance of adjacent buildings and the heritage place  whether the demolition, removal or external alteration will adversely affect the significance of the heritage place  whether the proposed works will adversely affect the significance, character or appearance of the heritage place  whether the proposed subdivision will adversely affect the significance of the heritage place  whether the proposed subdivision may result in development, which will adversely affect the significance, character or appearance of the heritage place  whether the proposed sign will adversely affect the significance, character or appearance of the heritage place  whether the lopping or development will adversely affect the health, appearance or significance of the tree

30. The site is covered by a Heritage Overlay as shown on the Planning Scheme Map No.9 as HO202. The extent of the Heritage Overlay is shown on map 3 on page 13. The provisions for the Heritage Overlay are contained in Clause 43.01 of the Hobsons Bay Planning Scheme and the relevant schedule. The Altona Refinery is listed in the schedule to the Heritage Overlay as the Standard Vacuum Refining Company Complex (former). The schedule to the overlay provides further provisions for the overlay which may be applied to individual overlays. This overlay states:

10 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

 external paint controls  internal alteration controls  tree controls do not apply  buildings or fences are not exempt under clause 43.01.3  prohibited uses may not be permitted  the refinery is not included on the Victorian Heritage Register as being of state significance or recorded as an Aboriginal heritage place  there are currently no incorporated plans under Clause 43.01-2

Map 3 – Heritage Overlay (HO202)

11 Amendment C107 Altona Refinery 351-381 Millers Road, Altona LOCAL POLICY

Industry Policy - Clause 22.02 of the Hobsons Bay Planning Scheme

31. This policy applies to all land in the Industrial 1 Zone, Industrial 3 Zone, Mixed Use Zone and Special Use Zone Schedules 2, 3, 4 and 5, including the subject site.

32. The policy basis notes that the extensive areas of industrial land in Hobsons Bay is of vital economic importance to the municipality and the State of Victoria and that Council has a responsibility to the State and the region to help ensure the continuing viability of major industries within its borders. Major industries are substantial employers and are vital elements in Victoria’s economic prosperity.

33. The policy notes that the use and development of this industrial land is also of great importance in determining the physical and environmental character of the municipality and that it is particularly important that large industries play a major role in ensuring that their locality is visually attractive.

34. It is policy to:

 have regard to the Hobsons Bay Industrial Land Management Strategy June 2008 and the Hobsons Bay Industrial Development Design Guidelines June 2008 when considering any applications for subdivision, use and/or development in any of the zones to which this policy applies  require applications to be accompanied by an of the use of the site, including the likely type and frequency of heavy vehicles, the proposed routes to access the site and the anticipated level of car parking that will be generated by the use of the site  ensure that the orientation of the site, landscaping and layout of new development is designed to enhance the amenity of the area, reduce energy use and optimises natural ventilation, daylight and solar access  ensure landscaping is provided within frontage and side setbacks to the street, to outdoor car parking areas and where appropriate, along rear and side boundaries to the satisfaction of the responsible authority  encourage quality architectural design within new industrial developments to enhance the character and visual amenity of Hobsons Bay

Industrial Heritage Places Policy - Clause 22.01-11 of the Hobsons Bay Planning Scheme

35. This policy applies to land zoned Industrial 1, Industrial 3 or Special Use that is included within the Heritage Overlay, including the subject site.

36. The policy notes that a dominant theme in the development of Hobsons Bay has been the growth of industry with some of Victoria’s most significant industrial heritage now found

12 Amendment C107 Altona Refinery 351-381 Millers Road, Altona within the city. Industries associated with engineering and fuels including coal, gas, electricity and petroleum have been dominant in Hobsons Bay over a long period of time.

37. The policy notes that the conservation of industrial heritage places presents specific management issues, as it is often the use of the site that is of primary historical significance. While fabric such as buildings or plant contributes to the significance of industrial heritage places by illustrating development over time, the on-going replacement and upgrading of this fabric is often an integral part of the operation of the use. The policy highlights that ‘Conservation by use’ is an important heritage principle and on this basis, there may be circumstances where it may be appropriate to permit the removal or alteration of fabric if it will facilitate the historic use of a site and ensure its future viability.

38. The objectives of the Industrial Heritage Places Policy are:

 to ensure the continued viability of industrial heritage places for the uses and processes historically carried out on the site as an essential part of their significance and conservation  to increase awareness about the importance of industrial heritage in the municipality.  to ensure that heritage issues are given appropriate consideration at an early stage when making decisions about the future use and development of industrial sites  to retain the distinctive cultural heritage significance of industrial heritage places which is derived from: o the traditional and on-going use of industrial heritage places over a long period o the important influence of the industrial heritage places on the economic and social development of the city o the sheer size and extent of nineteenth century industries in Newport and Spotswood, which demonstrates not only their local economic importance, but also their importance to the economy of Victoria o the probable national significance of the Newport, Spotswood and North Altona region as one of the most historically important centres in relation to the development of the petroleum and petrochemical industries in Australia o the surviving examples of early industrial building types, plant and equipment o the associated infrastructure such as railways, pipe-lines, roads and wharves that are essential in understanding the complex historical interrelationships that occurred in the development of industries (particularly the petroleum and petrochemical industries) in the area

39. The Industrial Heritage Places Policy requires applications for development to have regard to:

 the continued viability of the historic use of the site  the balance between achievement of conservation objectives and economic viability, and occupational health and safety

13 Amendment C107 Altona Refinery 351-381 Millers Road, Altona  the conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment  the retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it  keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority

40. It is policy that before deciding on an application the Responsible Authority consider, as appropriate:

 whether the proposed buildings, works or demolition will support the viability of the historic industrial use carried out on the site  whether there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation  whether the proposed interpretation will provide adequate information about the historic use and development of the site.

REFERENCE DOCUMENTS

41. The following documents are referred to in the Municipal Strategy Statement, Industry Policy and the Industrial Heritage Places Policy and their content is required to be considered in any application to develop land at the Altona Refinery:

Hobsons Bay Heritage Study Amended 2014

42. The Heritage Study documents the themes that have shaped the municipality over the last 165 years and identifies 33 precincts and 275 places of heritage significance in Hobsons Bay and provides the strategic basis for the application of statutory controls via the Heritage Overlay, heritage policies and guidelines to protect, conserve and management the municipality’s heritage assets.

43. The Heritage Study contains a citation for the Altona Refinery (described as the former Vaccuum Oil Company Complex). The Study identifies the Altona Refinery, comprising buildings and plant generally constructed between 1949 – 1960 at 351-381 Millers Road in Altona North, as having local historical, social, technical and aesthetic significance to the City of Hobsons Bay.

44. Historically, it is significant for its strong associations with the development of the oil industry in Australia as one of the oldest continuously operating oil refineries in the country. It is also significant as a major refinery and office complex that illustrates the immense industrial expansion of the City and Victoria in the post World War 2 period. The size of the complex had a significant impact on the economy of the State of Victoria and led to the establishment of a petro-chemical complex within this area with a number of

14 Amendment C107 Altona Refinery 351-381 Millers Road, Altona associated firms such as Australian Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex have associations with the important architectural firm of Stephenson & Turner.

45. Socially, it is significant for its strong associations with the local community as one of the first major industries in the Altona area and one of the largest employers over a long period. It is also significant for its associations with the development of the labour movement in Australia through the introduction of the concept of collective bargaining techniques, which were first used at this site.

46. Technically, it is significant for early plant and equipment such as the Thermofor Catalytic Cracking Plant, which is unique in the State.

47. Aesthetically, although altered, the c.1955 office block is significant as a good example of modernist design that illustrates the progressive nature of the Standard-Vacuum company and investment made in the establishment of the complex at the time.

48. The citation describes the complex as including the following buildings:

 the refinery itself comprising various equipment, pipes, tanks and stacks, all set out on a rectilinear grid between the railway, Millers Road and Kororoit Creek Road. It includes the 248 feet high Thermofor Catalytic Cracking Plant (now decommissioned), which is thought to be the last vertical catalytic cracker in Australia  the auditorium, canteen and locker building, located at the north-east corner of Kororoit Creek Road and Millers Road, which has a flat roof, is clad with cream bricks and has aluminium framed windows with green glass panels. This is one of the buildings designed by Stephenson & Turner  the former office/laboratory building (now the medical centre), which is a concrete block with a hip roof building facing Millers Road  the former Administration buildings, designed by Stephenson & Turner, on the south west corner of the Millers-Kororoit Creek Roads intersection. This building was pictured in the guide to architecture in Victoria, which was produced by the RVIA for the 1956 Olympics. This building has since been changed by a general renovation in recent times  a tank farm on the south side of Kororoit Creek Road. The number of tanks has been greatly expanded since the 1940s

49. The Study found that the integrity of the plant is high to its 1940s-50s development stages and thus it is perhaps the most complete complex of its kind in the region from this key era.

15 Amendment C107 Altona Refinery 351-381 Millers Road, Altona Industrial Land Management Strategy June 2008 (ILMS)

50. The ILMS is referred to in the Municipal Strategic Statement and the Industry Policy at Clause 22.02 of the Hobsons Bay Planning Scheme and are used to assess an application to development land at the Altona Refinery in the Special Use 2 Zone.

51. The ILMS classifies the Altona Refinery as a ‘core industrial area’. Core industrial areas are defined as major concentrations of industry, which are relatively unconstrained by residential or other sensitive uses. These areas will be protected and provide opportunities for new growth, including the expansion of existing industries. Non-industrial protrusions into these areas are not supported and rezoning of land to non-industrial zones will not be permitted.

52. The Altona Refinery is identified as precinct 10 in the ILMS. The strategic objectives for precinct 10 are to:

 support the ongoing operation of the Core Petroleum Refining Industry in Altona.  improve the quality of the precincts appearance, with good levels of peripheral landscaping.  maintain the open, natural habitat nature of the land at the southwest corner.  improve the appearance of the gateway location.  minimise the visual impact of the structures within the refinery  reduce impacts on residential amenity and the environment  encourage incremental improvements to the visual and natural environment in the vicinity of the refinery.  improve the landscaped buffer around the perimeter of the refinery  maintain monochromatic painting of storage tanks

53. The desired outcome is described as a Core Industrial area housing Petroleum Refining activities, with improved interfaces to all abuttal’s, and reduced amenity and environmental impacts’.

The Industrial Development Design Guidelines 2008

54. The Industrial Development Design Guidelines (IDDG) are referred to in the Industry Policy at Clause 22.02 of the Hobsons Bay Planning Scheme and would be required to be used to assess an application for development of land at the Altona Refinery in the Special Use 2 Zone.

55. The objectives of the IDDG’s are:

 to ensure that the strategies and objectives for industry in Hobsons Bay, expressed in the Guidelines, the Strategy, Municipal Strategic Statement and the local policies, are

16 Amendment C107 Altona Refinery 351-381 Millers Road, Altona given effect in the determination of applications for industrial land uses and developments  to ensure that the objectives for each industrial precinct in the Strategy are given effect in the determination of applications for land uses and developments  to achieve high quality urban design and architecture that accords with Clause 19.03, (Design and Built Form) of the Hobsons Bay Planning Scheme  to improve the appearance and amenity of industrial areas  to enhance the liveability, amenity and safety of the City  to promote environmentally sustainable design

56. The IDDG’s provide guidance on the following matters:

 site layout and built form  traffic and car parking  site access  loading and services areas  road network  landscaping  storage  container storage  waste lighting  fencing  water sensitive urban design  energy Efficient urban design  sustainable building materials.

57. In relation to the Altona Refinery (Industrial Precinct 10), the guidelines recommend a building setback of 20m from Kororoit Creek Road and 9m from other roads and a landscaping setback of 30m from the railway line, 50m from adjoining industrial zones and 9m from all roads.

Background

INTRODUCTION OF HERITAGE CONTROLS ON THE ALTONA REFINERY

58. The Altona Refinery was first identified as being of local heritage significance in 2001 in Stage 1 of the Hobsons Bay Heritage Study (referred to as the Altona, Laverton, & Newport Districts Heritage Study).

17 Amendment C107 Altona Refinery 351-381 Millers Road, Altona 59. The Study recommended that the Refinery’s heritage assets be given statutory protection through the application of the heritage overlay in the Hobsons Bay Planning Scheme.

60. The Heritage overlay was first applied to the Altona Refinery site in 2003, through Amendment C17 to the Hobsons Bay Planning Scheme. The heritage overlay applied in 2003 was known as HO149. The heritage overlay was renumbered to HO202, as part of Amendment C34 in 2006.

61. Mobil objected to the application of heritage controls through Amendment C17 during the exhibition period in 2002, raising concerns about the potential impact of the application of the heritage overlay on the on-going viability of the refinery.

62. An Independent Planning Panel considered Mobil’s objection to Amendment C17 in 2002. The Panel recommended that:

 the extent of exhibited HO149 is supported  the amendment be modified to include an Incorporated Document to limit the extent of the discretionary powers created by clause 43.01 to the fabric of those buildings and those works whose local heritage fabric has been established by rigorous research. The Incorporated Document should be drawn narrowly in the first instance to ensure that the discretion is not applied to buildings and works that do not have a clearly established local heritage  the Statement of Significance should be amended to exclude reference to the office block across the intersection (not in the heritage overlay) and to emphasis the value of the ongoing operation of the refinery in support of the site’s heritage values

63. Council adopted Amendment C17 on March 2003 and resolved to prepare an Incorporated Document for the Altona Refinery, as recommended by the Panel at a later stage.

PLANNING PERMITS

64. Between 2003 and 2014, Mobil have obtained a planning permit from Council to demolish the following heritage fabric that was identified in the Hobsons Bay Heritage Study:

 the auditorium and canteen (demolition completed)  the thermofor catalytic cracker (demolition planned for 2016)  administration building (demolition completed)

65. The heritage fabric that has been permitted to be removed to date has all been large highly visible buildings or plant. Although they contribute to the heritage value of the Refinery, the removal of these structures will ensure the ongoing viability of the historic use of the property, thereby preserving the heritage significance of the entire site.

18 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

66. Photographs of the heritage fabric permitted to be removed since the introduction of the heritage overlay in 2003 are provided in page 22. A condition of all permits was the requirement to prepare a photographic archival record of the removed heritage fabric.

67. Mobil has raised ongoing concerns about the need to obtain permits to do essential works, due to the heritage overlay.

19 Amendment C107 Altona Refinery 351-381 Millers Road, Altona

Photographs of heritage fabric permitted to be removed since the introduction of heritage controls in 2003

Photo 1 – Canteen and Auditorium – demolished 2015

Photo 2 – Thermofor Catalytic Cracker – to be demolished 2016

Photo 3 – Administration Building – demolished 2014

20 Amendment C107 Altona Refinery 351-381 Millers Road, Altona CONSERVATION MANAGEMENT PLAN

68. In 2015, Mobil engaged Biosis Pty Ltd to prepare the Altona Refinery Conservation Management Plan (CMP). A copy of the CMP is provided in Appendix 1.

69. The CMP provides an assessment of the cultural heritage values on the Altona Refinery and recommendations for future management. It contains conservation policy to provide direction and guidelines for conservation and adaptation or redevelopment of the site and its component parts, in a manner that addresses the significant elements. This is in the context of an operating facility, which requires on-going modification and change to the physical fabric.

70. The CMP identifies the following 11 elements as being of primary significance:

 administrative building  switch and compressor house  storage tanks  distillery and bitumen plant  lubricating oil warehouse  drum filling building  thermofor catalytic cracker (TCC)  amenities (canteen and auditorium)  no.3 changeroom  warehouse / fire station  cooling towers

71. The CMP identified the following six individual elements as being of contributory significance:

 solulizer  laboratory  boiler house  mechanical workshop  horton spheres  fluidised catalytic cracker

72. The location of individual significant elements are shown in the map within the CMP.

73. The CMP outlines how each of the significant elements are currently being used, their condition and planned use. In summary, much of the historical fabric is considered to be redundant, needs to be upgraded or removed, doesn’t have any prospects for adaptive reuse, has asbestos, not fit for use, or is taking up space that could be used for new plant.

21 Amendment C107 Altona Refinery 351-381 Millers Road, Altona 74. At this stage, Mobil has indicated that future demolition of the following elements of primary significance is considered likely:

 distillery and bitumen plan  no.1 and no.2 cooling towers  some of the storage tanks  administration building on Millers Road (refer to Photo 1 )

Photo 4 – Administrative Building Millers Road - front

Photo 5 – Administrative Building Millers Road - rear

75. The CMP sets the following conservation policies for the Altona Refinery:

 setting and curtilage  views, vistas and visual relationships  new buildings and works  landscaping

22 Amendment C107 Altona Refinery 351-381 Millers Road, Altona  archival recording and documentation  interpretation

76. The CMP states that the requirements for the preparation of archival records have been partly achieved through the preparation of the CMP. Mobil has advised that they will provide a photographic recording of all structures to the satisfaction of Council prior to the Amendment being submitted to the Minister for approval.

77. A draft incorporated plan for the Altona Refinery was prepared by Mobil for discussion with Council officers in 2015. The proposed Incorporated Plan would have allowed the alteration and removal of all heritage fabric, without a planning permit so long as Mobil prepared and submitted photographic records of the fabric that was to be removed. The proposed incorporated plan was effectively a back door demolition permit. This is not an appropriate way to use an Incorporated Plan and is contrary to the objective of the Heritage overlay. Council must ensure that the Victorian Planning Provisions are used appropriately.

Analysis

78. Even with the heritage overlay, Council’s Industrial Heritage Places and Economic Development policies in the Hobsons Bay Planning Scheme provide a framework that supports the demolish of heritage fabric at the Altona Refinery if considered under future planning permit applications.

79. It is policy to support the Altona Refinery as an industry of state significance in a core industrial area in Hobsons Bay. Council’s Industry Heritage Policy has a ‘conservation by use’ basis, as recommended in the CMP that recognises the need to achieve a balance between conservation objectives and economic viability and occupational health and safety.

80. Clarifying the policy that heritage fabric at the Refinery can be removed, means that statutory protection under the heritage overlay or through an Incorporated Plan are no longer required. The heritage overlay tool is used to limit change and removal of heritage fabric.

81. Exxon Mobil operates in a fast paced global economic market, competing with other larger refineries in the Asia-Pacific region. Its key strategy to staying competitive is through continuous improvements/upgrades to facilities and plant. Exxon Mobil have plans for improvements worth $80 million in the next three years.

82. Exxon Mobil have advised that the heritage overlay, triggering a permit for all buildings and works, in the context of their budgeting cycles, can reduce Mobil’s ability to compete for funding for these works, particularly in terms of being ‘project ready’.

83. The underlying Special Use 2 Zone still requires Mobil to obtain a permit to construct a building and carry out works, with some exceptions including:

23 Amendment C107 Altona Refinery 351-381 Millers Road, Altona  alterations to plumbing or electrical services  minor rearrangement of car parking areas and landscaping  rearrange, alter or renew plan if the areas of plant external to existing buildings is not increased  a temporary shed or structure not over 100sqm  pipelines and works to comply with a direction or licence under certain OH&S legislation

84. This still allows Council as the Responsible Authority to control the visual amenity of the Refinery to ensure it is consistent with the purpose of the Special Use 2 Zone, particularly in relation to the protection of the visual amenity of the area.

85. The CMP contains a thorough analysis of the history of the Altona refinery and additional photographs of heritage fabric.

86. Mobil have agreed to photograph all of the fabric within the refinery that has been identified as having heritage values before the completion of the Amendment process.

87. In addition, the changes to the buildings and works exemptions under Clause 4.0 in Schedule 2 to the Special Use Zone should by supported. This clause incorrectly references ‘other exemptions are listed in Clause 62.01’. This clause relates to uses not requiring a permit rather than buildings and works not requiring a permit. Reference to this clause has been deleted from the schedule as clause 62.01 applied irrespectively.

Conclusion

88. The conservation of the refinery can be achieved without the need for statutory protection by way of the heritage overlay or an incorporated plan. Council’s Industry Heritage Policy has a ‘conservation by use’ basis, as recommended in the CMP that recognises the need to achieve a balance between conservation objectives and economic viability and occupational health and safety. Although the CMP recommends an Incorporated Plan as the mechanism to implement the CMP, a more appropriate method of conservation by use is to remove the heritage overlay from the site to allow the Refinery to operate free from heritage requirements. An appropriate archival photographic record of the heritage fabric will be completed prior to the amendment being sent to the Minister for Planning for approval.

24 Appendix 1

Altona Refinery Conservation Management Plan

Prepared for Exxon Mobil

2015

AUSTRALIAN CAPITAL TERRITORY Report to: Exxon Mobil

Canberra Prepared by: Gary Vines Floor 1, Unit 3, 38 Essington Street Biosis project no.: 18706 Mitchell ACT 2911 File name: 18706.AltonaRefineryCMPv5.docx Phone: (02) 6241 2333 Fax: (03) 9646 9242 Citation: Vines, G., 2015, Altona Refinery Conservation Management Plan, Email: [email protected] for Exxon Mobil

NEW SOUTH WALES

Sydney Document Control Unit 14, 119 McEvoy Street Alexandria NSW 2015 Version Internal reviewer Date issued Phone: (02) 9690 2777 Fax: (02) 9690 2577 Draft version 01 GV 12/9/2014 Email: [email protected] Version 01 MT 7/1/2015 Wollongong Version 02 GV 16/2/2015 8 Tate Street Wollongong NSW 2500 Version 03 GV 28/8/2015

Phone: (02) 4229 5222 Final GV 9/8/2015 Fax: (02) 4229 5500 Email: [email protected] Acknowledgements QUEENSLAND

Brisbane Suite 4 First Floor, 72 Wickham Street Tara Horsnell - Altona Refinery Fortitude Valley QLD 4006 Debbie Dodd – Exxon Mobil archives Phone: (07) 3831 7400 Sonazi Sallay – Exxon Mobil archives Fax: (07) 3831 7411 Email: [email protected] Katie Murphy - Tract Consultants Pty Ltd Kendal Houghton – Biosis Pty Ltd VICTORIA Liza McColl – Hobsons Bay City Ballarat 506 Macarthur Street Ballarat VIC 3350

Phone: (03) 5331 7000 Fax: (03) 5331 7033 Email: [email protected]

Melbourne (Head Office) 38 Bertie Street Port Melbourne VIC 3207

Phone: (03) 9646 9499  Biosis Pty Ltd Fax: (03) 9646 9242 This document is and shall remain the property of Biosis Pty Ltd. The document may only be used Email: [email protected] for the purposes for which it was commissioned and in accordance with the Terms of the Engagement for the commission. Unauthorised use of this document in any form whatsoever is Wangaratta prohibited. 16 Templeton Street Wangaratta VIC 3677 Disclaimer:

Phone: (03) 5721 9453 Biosis Pty Ltd has completed this assessment in accordance with the relevant federal, state and Fax: (03) 5721 9454 local legislation and current industry best practice. The company accepts no liability for any Email: [email protected] damages or loss incurred as a result of reliance placed upon the report content or for any purpose other than that for which it was intended.

Summary

This report documents an assessment of the cultural heritage values of the Altona Petroleum Refinery, which was established by Standard Vacuum Oil Company in the years immediately after World War II. Initially constructed as part of a move to make Australia more self-sufficient in petroleum production, the refinery went on to play a major role in the expansion of motoring and oil production. The first plant was primarily for bitumen and lubricating oil, but in the 1950s petroleum production was greatly expanded with the construction of the Thermofor Catalytic Cracker (TCC). Subsequent expansions have seen adaptation to different crude sources such as Gippsland Crude, a wider variety of product such as LPG, and supply of product to the Altona Petrochemical Complex. The refinery underwent a major expansion in the 1990s with the replacement of the TCC with the Fluidised Catalytic Cracker (FCC).

The purpose of the present study is therefore to document the history of the site, provide a physical description and statement of significance, and make recommendations for future management.

The conservation policy has been developed on the basis of the assessment of the cultural heritage significance of the Altona Refinery. The purpose of the conservation policy is to provide direction and guidelines for conservation and adaptation or redevelopment of the site and its component parts, in a manner that addresses the significant elements. This is in the context of an operating facility which requires on-going modification and change to the physical fabric. Accordingly, the directions and guidelines included here should be considered in determining future strategies and outcomes for the Altona Refinery.

Table of Contents

Summary ...... i

Table of Contents ...... ii

1 Introduction ...... 1

1.1 Background ...... 1 1.2 Study Area ...... 1 1.3 Heritage Listing and Legislative Obligations ...... 4 1.4 Consultation ...... 6 1.5 Methodology ...... 6 1.6 Limitations of the Study ...... 6

2 Historic Background ...... 7

2.1 Origins of oil refining ...... 7 2.2 Oil and Petrol in Australia ...... 8 2.3 Vacuum Oil Company ...... 10 2.4 Vacuum Oil in Yarraville ...... 11 2.5 Establishment of Altona Refinery (1946-49) ...... 15 2.6 Expansion and renewal (1950s) ...... 19 2.7 Expansion (1960s-90s) ...... 29 2.8 Recent Developments ...... 31 2.9 Chronology...... 33

3 Description of the Study Area ...... 35

3.1 Landscape context ...... 35 3.2 Buildings and Plant 1946-9 ...... 35 3.2.1 Administrative Building later Health Centre...... 35 3.2.2 Switch House ...... 37 3.2.3 Distillery and Bitumen Plant ...... 38 3.2.4 Lubricating oil warehouse ...... 41 3.2.5 Drum filling building ...... 42 3.2.6 Demolished structures ...... 43 3.3 Buildings and Plant 1950-56 ...... 44 3.3.1 Amenities buildings ...... 44 3.3.2 Boiler house ...... 45 3.3.3 Thermofor Catalytic Cracker ...... 45 3.3.4 Mechanical workshop ...... 46 3.3.5 Warehouse – fire station ...... 47 3.3.6 Laboratory ...... 47 3.3.7 Solutizer ...... 48 3.3.8 Cooling Towers ...... 48 3.3.9 Horton Spheres ...... 49

3.3.10 Other building and plant ...... 51 3.4 1960s and later additions ...... 51 3.4.1 Fluidised Catalytic Cracker ...... 52

4 Comparative Assessment ...... 53

5 Significance ...... 60

5.1 Existing statements of significance ...... 60 5.2 Assessment against criteria ...... 61 5.3 Significant Elements ...... 63

6 Conservation Policies Guidelines and Actions ...... 66

6.1 Purpose of the conservation policy ...... 66 6.2 Terminology and Methods ...... 66 6.3 Statutory Requirements ...... 67 6.4 Opportunities and Constraints resulting from Significance ...... 67 6.4.1 Need for the works ...... 67 6.4.2 Management ...... 68 6.4.3 Community and Public Stakeholders ...... 70 6.4.4 Future operation of the refinery ...... 70 6.5 Conservation Policies ...... 71 6.5.1 Conservation Works ...... 72 6.5.2 Repairs & Maintenance ...... 72 6.5.3 Exteriors ...... 72 6.5.4 Interiors ...... 73 6.5.5 Setting & Curtilage ...... 73 6.5.6 Views, Vistas and Visual relationships ...... 73 6.5.7 New Buildings & Works ...... 73 6.5.8 Landscaping ...... 73 6.5.9 Archival recording and documentation ...... 73 6.5.10 Interpretation ...... 74 6.5.11 Archaeological investigation...... 75 6.5.12 Updating Heritage Listings ...... 75 6.5.13 Implementation and Review of the Conservation Policy ...... 75

7 Bibliography ...... 76

Appendices ...... 78

Appendix A Hobsons Bay Council Letter from Council 15.07.14 Alternative mechanisms to permits ...... 78 Appendix B Draft Letter from Council 10 August 2014 Planning scheme Amendment ...... 1 Appendix C: Burra Charter ...... 10

Figures

Figure 1: Location of study area (in red)...... 2 Figure 2: Site plan, Altona Refinery Source: Courtesy Mobil...... 3 Figure 3: Plan of extent of existing Heritage Overlay control ...... 5 Figure 4: Drivers, Vacuum Oil Company Depot, Yarraville ...... 10 Figure 5: Model of New Works for Vacuum Oil Company, The Argus 8 Jul 1925 ...... 13 Figure 6: Construction of Vacuum Company Oil depot, Yarraville, Victoria ca. 1929. This later view is probably for an additional storage tank...... 13 Figure 7: Various logos used by Standard Vacuum and its successors ...... 15 Figure 8: Model of the completed Refinery in 1950...... 16 Figure 9: Aerial view of refinery 1952 ...... 17 Figure 10: Tank Farm, store and lube oil building under construction...... 17 Figure 11: Distillation tower from the slop tanks nearing completion...... 17 Figure 12: Left to right – boiler house, transformer and switch house, amenities in front, office behind, and stores buildings (COR refinery in distance) 17 Feb 1949...... 18 Figure 13: Operational flow diagram for original plant processes ...... 18 Figure 14: Construction of the TCC 1954, photo Sievers, Wolfgang National Library, nla.pic-vn3419110 ...... 20 Figure 15: Process diagram with new TCC and final products ...... 21 Figure 16: Model of proposed Altona Refinery expansion (Exxon Mobil Archives) ...... 22 Figure 17: Aerial View of Altona Refinery Feb 1953, showing preparations for construction of TCC and new tanks ...... 23 Figure 18: Plan of newly expanded refinery showing original and new structures...... 23 Figure 19: Standard Vacuum Oil Refining Company Ltd, Refinery, Altona, Victoria. Aerial View of General Development, 1952 ...... 24 Figure 20: Brief article on new office building by Stephenson & Turner...... 25 Figure 21: Plaque unveiled 4 April 1955 opening ceremony, and the dignitaries touring the plant ...... 25 Figure 22: Altona Refinery 1955, by Charles William Bud (1919-1989) ...... 26 Figure 23: Construction of cooling tower 1954, Sievers, Wolfgang, National Library of Australia, nla.pic-an24882807 ...... 27 Figure 24: View of Mobil Altona Refinery showing Horton Spheres and TCC, 1956 Sievers, Wolfgang, National Library of Australia, nla.pic-an24876126 ...... 27 Figure 25: Refinery by night 1956 1954, Photo Sievers, Wolfgang, National Library of Australianla.pic-an24883930 ...... 28 Figure 26: Staff of the Altona refinery, Victoria in 1954. Photo Sievers, Wolfgang, National Library .nla.pic-an24876601 ... 28 Figure 27: Refinery from the Air in the 1950s – TCC operating and first of the cooling towers in place ...... 29 Figure 28: Altona Refinery in the 1960s (Wolfgang Sievers photo State Library Victoria) ...... 30 Figure 29: Automated control room in the 1960s (Wolfgang Sievers Photo, State Library Victoria) ...... 31 Figure 30: Fluid Catalytic Cracker being transported through the Western Suburbs to the refinery site ...... 32 Figure 31: Gatehouse (demolished) with former Administration building behind 6 Dec 1949 (Exxon Mobil Archives) ...... 36 Figure 32: Administrative Building under construction 9 Dec. 1948. (Exxon Mobil Archives Photo Album 35/23) ...... 36 Figure 33: Administration building from the south east...... 37 Figure 34: Administration building from Millers Road ...... 37 Figure 35: Switch and compressor house with (demolished) boiler house behind 18/1/1948 (Exxon Mobil Archives album 39/44) ...... 38 Figure 36: Compressor and Switch gear building, 2015 ...... 38 Figure 37: Pipe Still 27/7/1949 (Exxon Mobil Archives Albums 46/6) ...... 39 Figure 38: Vacuum distillation tower under construction 27/7/1949 (Exxon Mobil Archives Albums 46/26) ...... 39 Figure 39: Location of No 1 Crude unit reused for later plant, 2014 ...... 40 Figure 40: Storage Tanks and pipe gantry from original Bitumen plant, 2014 ...... 40 Figure 41: Bitumen tanks and rail loading gantries from the north, 2015 ...... 41 Figure 42: Lube. Oil building under construction 27/7/1949 (Exxon Mobil Archives Albums 46[28) ...... 41

Figure 43: Lube Oil Warehouse from the Millers Road bridge, 2014...... 42 Figure 44: Bitumen Drum filling building with rail loading at top, 2014 ...... 42 Figure 45: Lube oil packing building, 2014 ...... 43 Figure 46: Wagon Loading/Tanker filling station (demolished) 15 Dec 1949 (Exxon Mobil Archives, album No22) ...... 43 Figure 47: Amenities building – auditorium and canteen from the south west, 2015 ...... 44 Figure 48: Canteen interior looking east, 2014 ...... 44 Figure 49: Auditorium interior facing south east, 2014 ...... 45 Figure 50: 1950s Boilerhouse and water tank on left, 1948 Switch house centre, 1950s laboratory on right...... 45 Figure 51: TCC in the 1960s (Exxon Mobil Archives) ...... 46 Figure 52: Mechanical Workshop in 2014 showing recladding...... 46 Figure 53: Prefabricated warehouse building...... 47 Figure 54: Laboratory building from the north east, 2015...... 47 Figure 55: Remaining Solutizer plant looking west, 2014 ...... 48 Figure 56: Amenities building (Area 3 change room) adjacent to solutizer, 2015 ...... 48 Figure 57: Cooling Tower No 2...... 49 Figure 58: Three Horton Spheres for storage of LPG, 2014...... 50 Figure 59: Group of air force personnel 8 December 1955 in front of Horton Spheres - identified as Standard-Vacuum Refining Company Pty Ltd, Essendon, but probably Altona (Museum Victoria Reg. No: MM 51251) ...... 50 Figure 60: Fluidised Catalytic Cracker ...... 52 Figure 61: Yarraville Terminal (Bing bird's eye images), 2012 ...... 54 Figure 62: Lubricant blending tower and offices at BP Newport terminal, 2012 ...... 55 Figure 63: Storage and works sheds at Shell Newport Terminal, 2012 ...... 55 Figure 64: Pump house at BP Newport terminal, 2010 ...... 56 Figure 65: Brick stores building Esso oil depot, Simcock Ave Spotswood, 2010 (demolished c2014) ...... 56 Figure 66: Concrete building Caltex Newport Terminal, 2010 ...... 56 Figure 67: Shell terminal Newport (photo Sievers, SLV H2004.49/83) (demolished) c1980 ...... 57 Figure 68: Former commonwealth Oil Refinery office building Altona North, 2008 ...... 57 Figure 69: Altona Petrochemical Complex, (Technology in Australia 1977-1988)...... 58 Figure 70: Longford Gas Plant ...... 58 Figure 71: Catalytic Cracker at Shell Refinery Geelong during construction (State Library Victoria) ...... 59 Figure 72: Locations of significant elements and management actions ...... 65 Figure 73: Altona Refinery view from Kororoit Creek Road, Jessie Deane, 2013...... 70 Figure 74: Example of industrial land reuse - Landschaftspark Duisburg-Nord...... 71

Tables

Table 1: Refineries in Australia ...... 53 Table 2: individual significant elements ...... 63 Table 3: Management of primary significant buildings and structures ...... 68

1 Introduction

1.1 Background

Exxon Mobil has commissioned Biosis Pty Ltd to undertake a heritage assessment and prepare a Conservation Management Plan for the Altona Refinery, with the objective of assisting management of statutory approvals for future works which may impact heritage values of the site.

The Conservation Management Plan describes the heritage values and physical condition of the place, and sets out a conservation policy for managing impacts and change.

1.2 Study Area

The Study Area encompasses the Mobil Altona Refinery to the extent of the land covered by Heritage Overlay (HO202). This large site, located within the Special Use Zone – Schedule 2 (SUZ2), extends north east from the intersection of Millers and Kororoit Creek Roads in Altona and was developed in a number of stages, commencing in 1946 in the western part of the current site. The refinery proper is bounded by Millers Road to the west, Kororoit Creek Road to the south, the Werribee railway line to the north and Altona railway line to the east.

The location of the study area is shown in Figure 1.

© Biosis 2012 – Leaders in Ecology and Heritage Consulting 1 West Gate Fwy Lee St Harris St Clematis Av Moresby St Duosa Rd Gadsden St Glade Av Langshaw St Marigold Av Brunel St Whittlesea Carthy St Beuron Rd !

Knapp St !Sunbury Binns St Misten Av Irwin Av Edward Av Kyle Rd New St Saltley St

Truman St !Melton

Estelle Ct Valerian Av Mahon Av

Huxtable Av Delphin Av Craig Ct

Dean Ct Begonia Av Amaranth Av Lilydale J ! o Paxton St h Hill St Lawrence Ct Blackshaws Rd Ringwood Vernon St Dohertys Rd n Melbourne ! St ! Rymill Ct Neal Ct Marsh St Walker Cl Netta St The Broadway May St Altona P Cleghorn Av Jeffrey Av Werribee Monteith St a ! rk North S B t ! r St u e Dandenong ! c k v A e

Mcarthurs Rd s Du S n t i l !

Fifth Av l

Seventh Av o Angus Av First Av

C Second Av Mills St

Sutton Av Borrack Sq Cresser St

Graham St Macdonald Av

Hansen St Gordon St Charlotte St Ginifer Av t tSt Ma Hearn S ra rgaret S ra t Blair Ct McintoshA Rd Cooper Av M axw Savige St Luly St Mason St ell Dolman Lane B Av L o ak Amber Ct x e Bunting Ct Abbeygate St sD

The Gateway Chambers Rd Ct r

r D Prentice St

Blomberg Rd l Fourth Av Leslie St

p Joel Av Barnes Rd a Av M Prismall St Sixth Av ld Oak Ct na o Clyde St Douglas St R W Carmen St Mills St Laurie St in Toll Dr d Woods St s o

B r C

r r

y Allan St Grieves St a n Monmouth St

A Gilligan Rd Millers Rd v

Blenheim Rd Basil St Severn St

Ross Rd Thorpe St

t S Jubilee St Rosshire Rd

o Kororoit Creek P Railway Pde Macaulay St Maddox Rd Aku na Dr Millers Rd Albemarle St Wa n y

Fink St p

m d K i o Bentley St v ro K ro B it Drake C Churchill St HOBSONS r Orange St eek Rd BAY CITY Willsmore St

Byron St

r Southey St Ganton Ct

Racecourse Rd k

r Darbyshire St

a Seaview Pde Ponting St

P o Waterfront Pl n ch Te Maddox Rd Gray R eser R O W Y Waters Dr ve Rd C h e r r y Cherry Creek L a k e Noordenne Av

Martin Ct v A s Jurga Ct e

S m Altona Rd im Ja Bluegum Dr m t Stirling Av Cambridge Sto C n s r n D o Sussex St s Fisher Ct t Chifley Av

Fresno St Pollard Ct Cain Ct Wa Civic Pde

Seaholme Av

Parkside Cr

Gloucester Ct t Mcbain St S

Bent St Sargood St n Railway St South Davies St o Mount St ti Seves St Wattle Gr Bayview St a St Waratah St

Pier St Blyth St

St Beach St

n nade e e Legend u Surf St Q Joiner Lane Study Area Esplanade

Figure 1: Location of the Study Area - Mobil Altona Refinery, Altona North, Victoria 0 200 400 600 800 Matter: 18706, Biosis Pty Ltd Date: 08 January 2015, ± Metres Ballarat, Brisbane, Canberra, Melbourne, Checked by: GV, Drawn by: SKM, Last edited by: smitchell Sydney, Wangaratta & Wollongong Location:P:\18700s\18706\Mapping\18706_F1_Locality.mxd Scale 1:20,000 @ A4, GDA 1994 MGA Zone 55 2

Figure 2: Site plan, Altona Refinery Source: Courtesy Mobil

1.3 Heritage Listing and Legislative Obligations

The Altona Refinery complex was first recognised as a site with heritage significance (under the then name of Petroleum Refineries Australia (PRA) Altona) along with a number of other early twentieth century sites relating to the oil industry in Melbourne’s inner western suburbs, in the Western Region Industrial Heritage Study undertaken in 1988-9.1 The refinery was not assessed in detail in this study but was included in Appendix E, Locational Index to Sites, in which it was given a Level D significance ranking, which was considered in this study to be of local significance.

The refinery was listed in Stage 1 of the Altona, Laverton & Newport Districts Heritage Study (2001) which provided a review for the newly amalgamated Hobsons Bay council area.2 It was further investigated as part of Stage 2 of the study. As a result of this investigation, the following statement of significance was prepared:

Mobil Refining Australia offices and refinery complex, former Standard Vacuum petroleum is significant to the Western Region:

 as a major refinery and office complex within the industrial history of the City and part of the State’s post WW2 industrial expansion (criterion A4);

 for the recognition of the office block as a good example of design in the 1956 architecture guide (criterion E1); and

 for significant plant such as the Thermofor Cracking Plant which is unique in the State (criterion F1).

On the basis of this assessment, the refinery was recommended for heritage overlay protection pursuant to the Hobsons Bay Planning Scheme (initially as HO149). Interim heritage controls were implemented and the proposed amendment was then considered by a Ministerial panel and advisory committee.

In 2002, a submission was made on behalf of the owners to the panel and advisory committee in reference to the Hobsons Bay Planning Scheme Amendment C17, on the proposed inclusion of Mobil’s Yarraville Terminal & Altona Refinery in the schedule to the heritage overlay.3

The submission proposed a statement of significance as follows:

The former Standard-Vacuum Refining Company's (now Mobil) refinery at Altona as a whole is of historical, social and technological/scientific significance, in the context of the twentieth century history and development of Altona and Melbourne's western suburbs generally, and the growth and evolution of oil refining in Victoria.

From the time it was brought on stream in 1955, the Altona refinery has had an enormous impact on the economic and physical development of Altona and surrounding suburbs. The refinery has additionally been a major employer in the area and continues to be so. As one of two operating oil refineries in Victoria, the Altona site has also made a major contribution to the oil industry in the State.

1 Gary Vines and Andrew Ward Western Region Industrial Heritage Study, Melbourne's Living Museum of the West, 1989 2 Hobsons Bay heritage study, Graeme Butler and Associates, David Helms Heritage Planning and Management (Firm) Hobsons Bay (Vic.), 2003-2004. Infralib: 720.99451 WIL 3 Allom Lovell & Associates Conservation Architects, 2002, Hobsons Bay Planning Scheme Amendment C17, Submission To The Panel And Advisory Committee on The Proposed Inclusion of Mobil’s Yarraville Terminal & Altona Refinery in The Schedule to the Heritage Overlay, prepared for URS Australia, on Behalf of Mobil Refining Australia

The refinery is also a site where the significance predominantly derives from the process as a whole, and not from the individual elements, although some of these, such as the TCC (which was the only catalytic cracking plant of this specific type to be commissioned in Australia), are also of great interest.”

The panel report for Amendment C17 supported the extent of the exhibited HO149 (which encompassed the entire refinery site on the north east of the Miller Road and Kororoit Creek Intersection), and further recommended that:

The amendment should be modified to include an Incorporated Document that excludes all of the areas of the site from any requirement for a planning permit for buildings and works pursuant to Clause 43.01.

The Statement of Significance should be amended to exclude reference to the office block across the intersection (not in the Heritage Overlay) and to emphasis the value of the ongoing operation of the refinery in support of the site’s heritage values.

The Panel's report is not binding on the Council or the Minister but it must be taken into consideration before the Council of the Minister makes a decision. If the Council does not adopt a recommendation of the Panel it must give reasons why not. A permanent heritage overlay was implemented under Amendment C17, but the council did not accept all of the recommendation of the Panel in relation to the Mobil Site. The Minister approved the amendment on this basis.

The extent of the heritage overlay control is shown on Figure 3, and is further described in the explanatory note contained in the schedule to the overlay, which is as follows:

Whole site with emphasis on fabric from the 1949-53 era, specifically the offices complex facing Millers Road and the Thermofor Catalytic Cracking Plant plus land within nominally 10m of the former offices and plant.

Figure 3: Plan of extent of existing Heritage Overlay control

1.4 Consultation

Consultation during the assessment was undertaken with the client, Mobil Australia, and Council planning department representatives. The latter endeavoured to establish council expectations in respect of the form of a potential incorporated document and permit exemptions. During this consultation the council supported the development of an incorporated document to manage the process of upgrade and change to the plant. Council resolved to prepare an Incorporated Document as part of C17; however, because of a lack of Council resources, Mobil was advised to prepare the document. During preparation of the document, Council advised that an incorporated document is not the appropriate regulatory mechanism to have in place to manage the heritage value of the Refinery and this report has instead been prepared to document the significance of the Refinery and to support a planning scheme amendment to remove the heritage overlay.

Altona Refinery is owned and operated by Mobil Refining Australia Pty Ltd, an affiliate of Exxon Mobil Corporation. The terms Corporation, Company, affiliate, ExxonMobil, Mobil, Esso, our, we and its as used in this material may refer to Exxon Mobil Corporation, to one of its affiliates or to any one or more of the foregoing. The shorter terms are used merely for convenience and simplicity.

1.5 Methodology

The historic heritage assessments are based on the following general methodology:

 Review of statutory and non-statutory heritage lists and registers, to identify the location and significance of heritage items, places, and archaeological sites in the vicinity of the Study Area: – National Heritage List (NHL); – Commonwealth Heritage List (CHL); – Victorian Heritage Register (VHR); – Victorian Heritage Inventory (VHI); – Hobsons Bay Planning Policy and heritage overlay – National Trust of Australia (Vic) Register; Register of the National Estate (RNE).  Desktop assessment of the environmental context and previous land use history of the Study Area including a review of the Hobsons Bay Heritage Study and other assessment documents;  Preparation of a thematic history of the Study Area, based on a review of relevant primary and secondary historical documentation, maps and photographs, including examination and copying of items from the Exxon Mobil archives;

 Site inspection of the refinery, photography and analysis, to confirm the location and condition of known and potential heritage items;

 Review of cultural heritage values (or heritage significance);  Assessment of the impacts of the proposed development on the cultural heritage values of items;

The assessments are consistent with the principles and guidelines of the Burra Charter (The Australia ICOMOS charter for the conservation of places of cultural significance).

1.6 Limitations of the Study

Access was provided to the refinery by Exxon Mobil for this study, including internal access to most buildings and plant. However, safety requirements precluded closer inspection of some parts of the site – this was not considered to have impacted on the results. No other limitations were present in undertaking the study.

2 Historic Background

2.1 Origins of oil refining

The origins of the modern oil industry can be traced to the development of distillation of Kerosene (a proprietary brand of paraffin) from crude oil in the mid nineteenth century. Oil fields were established in Azerbaijan, Poland, Romania the USA and Canada by the mid nineteenth century. Kerosene quickly replaced other oils used for lighting, including whale oil and coal tar. Crude oil was heated in a vertical chamber and the resulting compounds or 'fractions' were condensed at various points in the column. Fractional Distillation allowed separation of tar, lubricating oils, petroleum and diesel products. Initially the Kerosene component was seen as the main saleable product, but with the popularity of the automobile, the lighter petroleum product became more important, and so new techniques were developed to produce a greater proportion of this from the crude and other fractions.

Catalytic cracking (a process of breaking a long-chain of hydrocarbons into short ones) was developed in the early twentieth century to extract higher proportions of the more valuable fractions from oil. The first commercial process was developed in 1915 by Almer M. McAfee for the Gulf Refining Company with a batch process using aluminum chloride. However this was too costly to be adopted widely. In 1922, Houdry and Prudhomme first developed a catalytic process for converting lignite coal to gasoline. Houdry applied Fuller's earth, (a clay mineral containing aluminosilicates) as a catalyst in converting oil derived from lignite to gasoline and then applied the process to the catalysis of petroleum oils converting vaporized petroleum oil to gasoline. In 1930 Houdry moved his laboratory to Paulsboro, New Jersey at the invitation of the Vacuum Oil Company.4

In 1931, the Vacuum Oil Company merged with Standard Oil of New York (Socony) to form the Socony- Vacuum Oil Company. In 1933, a small Houdry unit processed 200 barrels per day of petroleum oil. The Houdry process was subsequently adopted in the 1930s by Socony-Vacuum and the Sun Oil Company to achieve 50 percent of the cracked product converted to gasoline compared with about 25 percent from the thermal cracking processes.

Initially only semi-batch processing was undertaken but Socony-Vacuum then achieved continuous operation with a moving-bed process known as Thermofor Catalytic Cracking (TCC), which used a bucket conveyor- elevator to move the catalyst from the regeneration kiln to the separate reactor section. A demonstration TCC unit was operating successfully at Socony-Vacuum's Paulsboro refinery in 1941 producing 500 barrels per day, and a full-scale commercial TCC unit processing 10,000 barrels per day came on stream in 1943 at the Beaumont, Texas refinery of Magnolia Oil Company, an affiliate of Socony-Vacuum. By the end of World War II in 1945, TCC units were producing 300,000 barrels per day.5

The Houdry TCC units have been claimed as a major factor in the winning of World War II by producing high- octane gasoline, which was critical for the more efficient higher compression ratio engines of the Spitfire and the Mustang used by the British and US air forces.6

The fluid catalytic cracking process was initially investigated in the 1920s by Standard Oil of New Jersey, but research was abandoned due to the economic depression years 1929 to 1939. In 1938, a consortium called

4 Eger Murphree and the Four Horsemen: FCC, Fluid Catalytic Cracking, http://nacatsoc.org/history/eger-murphree-and- the-four-horsemen-fcc-fluid-catalytic-cracking/ 5 "Houdry Process for Catalytic Cracking". American Chemical Society. http://www.acs.org/content/acs/en/education/whatischemistry/landmarks/houdry.html Retrieved 18 December, 2014. 6 Tim Palucka (Winter 2005). "The Wizard of Octane: Eugene Houdry". Invention & Technology 20 (3).

Catalytic Research Associates (CRA) comprising five oil companies (Standard Oil of New Jersey, Standard Oil of Indiana, Anglo-Iranian Oil, Texas Oil and Dutch Shell), two engineering-construction companies (M.W. Kellogg and Universal Oil Products) and a German chemical company (I.G. Farben) resumed the project. The Standard Oil of New Jersey (now Exxon-Mobil Company) developed the first fluidized catalytic cracking unit with pilot plant in the Baton Rouge, Louisiana Refinery commencing in 1940. This process employed a low velocity gas flowing through a powder to "lift" it enough to cause it to flow in a manner similar to a liquid. The first commercial fluid catalytic cracking plant (known as the Model I FCC) began processing 13,000 barrels per day of petroleum oil in the Baton Rouge Refinery in May 1942.7

2.2 Oil and Petrol in Australia

Oil products were imported into Australia in relatively large quantities from the late nineteenth century, initially to supply heating, lighting, motor fuels and lubricating oils, kerosene and other products. Product was shipped, stored, distributed and sold in ubiquitous metal containers; the 4 gallon kerosene tin becoming a standard.

By the 1890s, demand was such that several major British and American companies established centralised import depots and a network of local agencies: Shell (c. 1900), Vacuum Oil (1895) and the Standard Oil Co. (c.1900).8 The Vacuum-Colonial Company dominated the Australian oil import market for the first two decades of the twentieth century.

The need for greater efficiencies led to the creation of new bulk handling facilities at Shell's Gore Bay facility in Sydney and at an old wool store in Williamstown near Railway (Nelson) Pier, both in use in 1901. The Standard Oil Company established its own facility in Williamstown. 9 While other firms established branches in Australia, including Neptune in 1909 and the Texas Company (TEXACO) in 1918.10 Bulk shipments commenced at Gore Bay in 1903. However, the first bulk cargo of motor spirit arrived in 1914.11

A number of petroleum companies set up import and distribution facilities in the Spotswood-Yarraville area in the inter-war period including:

 Vacuum Oil Co., which constructed a substantial terminal on the river at Yarraville in 1924-5 (now Mobil’s Yarraville terminal)

 Alba Petroleum (later Ampol), a wholly Australian owned company, which constructed its storage compound on the west side of Douglas Parade (on both sides of the current Sun Avenue)

 The Atlantic Oil Co. (later Esso), in Simcock Avenue, Spotswood

 HC Sleigh, operating a series of tanks south of Sun Avenue in the late 1930s.12

7 Amos A. Avidan, Michael Edwards and Hartley Owen (Mobil Research and Development) (January 8, 1990). "Innovative Improvements Highlight FCC's Past and Future". Oil & Gas Journal 88 (2). 8 Shell Company of Australia Limited. Eighty Years at Newport. p. 1; the Sands and McDougall Melbourne Directory for 1901 lists the Vacuum and Standard Oil Companies, both of which hailed from the United States. 9 L Strahan. At the Edge of the Centre. p. 362-3 10 Murray, 2001. Pp.28-9 11 R Wilkinson, A Thirst For Burning. p. 171 12 The firm was established in Melbourne in 1895 and set up as an importer and distributor of petroleum products in 1913. Something of an innovator in the industry, by the 1920s HC Sleigh had opened 20 service stations in Melbourne with drive-in facilities later described as ‘35 years ahead of their time’. From the late 1940s it traded as Golden Fleece. R Wilkinson. A Thirst For Burning. p. 175.

 The British Imperial Oil Company Ltd (a subsidiary of Shell formed in 1905) bulk distribution terminal with the assistance of the Melbourne Harbour Trust, on the Yarra River at Newport between 1913 and 1915, with large holding tanks, pumping equipment and bulk distribution facilities.13

Use of motor cars in Australia expanded exponentially in the 1920s. Numbers of registered motor cars, trucks and bicycles In Victoria, doubled between 1917 and 1922 to 47,750 and was over 150,000 by 1928, with about three-quarters of these vehicles being housed in or near Melbourne.14

The fuel demands of this growth in motoring resulted in a considerable expansion of the oil and petroleum industry. In addition to bulk storage facilities and packing plants, two refineries were constructed in Australia. The first was the Commonwealth Oil Refineries (COR) in 1922 on a site near Kororoit Creek, Laverton and the second was built at Clyde, NSW, by John Fell & Co in 1926, which was purchased by Shell in 1927-28.

The Commonwealth Oil Refinery Co. was established as a joint venture between the Commonwealth Government and the Anglo-Persian Oil Co. with crude oil unloaded at a dedicated wharf and bulk storage tanks at Spotswood, then pumped through a pipeline to the refinery.

Between 1939 and 1948 the Australian Government took complete control of the oil industry, introducing petrol rationing in October 1940, with drastic cuts made in April 1941.15 Rationing remained in force until 1950 with a pool system used to market all products under a single trade name, and each oil company being given a prescribed quota. While rationing resulted in stagnation of the industry, two further refineries focusing on bitumen distillation opened: BORAL Ltd, (from Bitumen and Oil Refining Australia) at Matraville New South Wales in 1948, and the Vacuum Oil Co. in Altona in 1949.16

With the lifting of petrol rationing, the 1950s became a boom period for the oil industry. In 1953 the total Australian market for refined petroleum products was around 43 million barrels, only 7 million barrels of which were refined locally. By 1958 Australia used about 71 million barrels, with 63 million refined locally.17 The Anglo-Iranian Oil Company (previously Anglo-Persian Oil Company) became a more significant player after it acquired the Commonwealth Government’s half share in Commonwealth Oil Refineries in 1954. Soon after changing its name to BP, it closed the former COR refinery on Kororoit Creek Road and constructed a new refinery at Kwinana near Perth. Other new refineries were constructed in Geelong by Shell and at Botany Bay by Caltex.18 In the 1960s further refineries were built in Bulwer Island Queensland (BP), Lytton Queensland (Caltex) and Port Stanvac South Australia (Standard Vacuum).19

Another major Victorian refinery was constructed by BP at Cribb Point, on Westernport Bay in 1966, while Shell’s Geelong refinery was also greatly expanded in the late 1960s, partly to process Bass Strait crude, which was lighter and contained less sulphur when compared with crude oil from the Middle East.20

13 Shell Company of Australia Limited. Eighty Years at Newport. p. 1; Melbourne Harbour Trust Jubilee History, pp. 297-298, Murray, R. Go Well: One Hundred Years of Shell in Australia, Hargreen Publishing Co, Melbourne 2001. 14 S Priestley, Making Their Mark. p. 140. 15 Australian Stats: Special Article, ‘Clothing, Food and Petrol rationing during World War 2’, Year Book Australia, 1945, www.pandora.nla.gov.au. 16 R Wilkinson. A Thirst For Burning. 2004. 17 R Wilkinson. A Thirst For Burning. p. 176. 18 Wilkinson 2004 p63 19 Vivida 2012. 20 R Wilkinson. A Thirst For Burning. p. 181.

Recent trends have seen reduction in the number of Australian refineries due to competition from Asia. Crib Point was closed from 1984 as it was uncompetitive and its focus on fuel oil was being undermined by natural gas.21 Shell announced closure of Clyde in 2011 and Caltex is converting Botany Bay to an import terminal. Shell in Geelong has also had plans to close, but was recently reprieved with the Swiss company Vitol purchasing the site.22

2.3 Vacuum Oil Company

The Vacuum Oil Company was established in Rochester, New York, USA in 1866. The company took its name from its oil refining process which heated crude oil in a partial vacuum as part of the distilling process. Vacuum Oil had begun operating in Australia by 1895, establishing an agency to sell imported oil products. Vacuum Oil dominated the Australian market thanks to strong marketing and sales. Its main competitor was the Dutch Shell Company. In 1908 Vacuum Oil amalgamated with the Colonial Oil Co and began marketing its kerosene and benzene. New products introduced in the 1910s and early 1920s included Plume Motor Spirit, Laurel Kerosene, and Voco Power Kerosene.23

In 1931, Vacuum Oil merged with the Standard Oil Company of New York, forming the new company of Socony-Vacuum but continued to trade in Australia as the Vacuum Oil Co. (this company eventually became known as Socony Mobil, then the Mobil Corporation).

As early as 1931, Vacuum had discussions with the Australian Government about the possibility of establishing a refinery in Melbourne, but discussions stalled over the issue of tariff protection, with World War II further delaying progress.24 Despite Socony-Vacuum Oil's strong market position, the company had limited access to oil fields in the area. However, the Standard Oil Company (of New Jersey) had extensive production interests in Indonesia and so in 1933, they inevitably merged their interests in the Australasian region to form the Standard-Vacuum Oil Company. This company continued trading under the earlier name of Vacuum Oil Company for its marketing operations.25

Figure 4: Drivers, Vacuum Oil Company Depot, Yarraville26

The Standard Vacuum Oil Company of the USA was dissolved in 1962 and became known in Australia as Mobil. At the same time another former Standard Oil subsidiary, the Atlantic Union Co. changed its name to

21 The Age, newspaper, 10 Feb. 1984, p.3. 22 Mark Hawthorne and Clay Lucas Geelong Shell refinery saved by new owner Vitol Sydney Morning Herald, February 21, 2014 23 A Pratt. National Handbook of Australia’s Industries. p. 295. 24 S Priestly. Altona - A Long View. pp. 213-214. 25 Standard-Vacuum Refining Company (Australia). Altona Story, unpaged. Undated. 26 Title taken from inscription on verso of mount in pencil: DRIVERS OF VACUUM OIL COMPANY AT YARRAVILLE, 1929/PRESENTED BY MR B.T.KANE, 1929 State Library Victoria no(s) H81.38/1

Esso. As a result a new company known as Petroleum Refineries (Australia) Proprietary Limited (PRA), jointly owned by Mobil (74%) and Esso (26%) ran the operations at the Altona refinery from 30 March 1962. At the same time, the oil refinery partners also established a chemical feedstock company, the Altona Petrochemical Company Ltd (APC), with plant located about 4 km to the west of the refinery.27

2.4 Vacuum Oil in Yarraville

Vacuum Oil was the first oil company in Australia, establishing a branch office in Queen Street, Melbourne, in February 1895, less than 30 years after Vacuum began in the United States. Mineral oil and kerosene had been imported prior to this, but was handled by local agents. The company records indicate that the first salesman for the firm, David Clarke, sold the first barrel of lubricating oil to a gold mining operation at Eaglehawk, near Bendigo.

Vacuum Oil was incorporated as a proprietary company in Victoria in March 1904. It produced a chart of "Recommendations to Motorists" covering about 200 makes of car in 1906, demonstrating its focus on the new form of transport. In 1908, Vacuum Oil merged with the Colonial Oil Co, which was marketing kerosene and motor spirit, to add to its specialty lubricants and in 1916, it introduced "Plume" and "Laurel" brands of motor oil.

Vacuum Oil expanded its distribution and retail facilities in Australia in the 1920s, as part of a wider push to meet the dramatically increasing demand for motor spirits and oils as Australia took to the private automobile and freight shifted from rail to road. Vacuum Oil purchased land on the Yarra River at Yarraville in about 1920 and in cooperation with the Melbourne Harbour Trust constructed a wharf for bulk carrier ships. Reclamation of low lying land near the Stony Creek Backwash was undertaken to provide space for the terminal site. Construction was undertaken in 1925 and 1930. The new facilities were announced as:

VACUUM OIL COMPANY. The Vacuum Oil Company has its works at Victoria Dock at present. They will shortly be moved to a site at the mouth of Stony Creek, on the Yarraville side. Sixteen acres of land have been secured for their works, and the Harbor Trust will carry out some reclamation work there. It is reported that most of the waterway between the Yarra and the Stony Creek bridge will be filled up to make more land available there.28

Bulk distribution of fuel and oil was seen as a critical requirement both to meet the rapidly increasing demand from cars and trucks, and bring down the price. In 1917 Vacuum commenced a form of bulk shipping with the first of a number of 100 gallon, horse-drawn, tank wagons. It may be assumed that Vacuum was one of the first companies to instigate bulk handling, because of its dominant role in Australia, and because other companies would soon make the change. This would be the most expensive development of the oil industry in Australia to date.

CHEAPER PETROL PROMISED DISTRIBUTION IN BULK. Expenditure of £2,000,000. Plans have been completed by the Vacuum Oil Company Proprietary Limited to distribute motor-spirit and kerosene in bulk throughout Australia instead of in tins and cases as at present. Bulk distribution has been

27 ExxonMobil University – Altona Refinery History. 28 VACUUM OIL COMPANY. (1924, January 26). Williamstown Chronicle (Vic.: 1856 - 1954), p. 2. Retrieved November 25, 2013, from http://nla.gov.au/nla.news-article69510612

proved successful in America, and it is promised that the change in method will reduce the price of motor-spirit to the Australian motorist by from 3d. to 6d. a gallon.29

The Yarraville terminal was part of a larger national reconstruction of the industry: Nearly £2,000,000 will be spent by the Vacuum Oil Company in buildings and equipment for motor spirits and kerosene in all the large cities of Australia. On a 40-acre site at Yarraville, manufacturing and storage warehouses, tin-making plant and bulk storage tanks will be erected. Arrangements have been completed for wharfage costing £40.000.30

Vacuum Oil's construction department were given the go ahead to develop the Yarraville and South Australia terminals. F G Cerexhe from the Sydney office was appointed Chief Construction Engineer, heading a number of staff in the William Street office. Following a visit to New York in connection with construction activities of the company, H. A. Kuehn, an engineer of Vacuum Oil Company in New York, provided advice and assistance in construction matters.31 Architects were appointed and a model was prepared of the proposed Yarraville development, which appears to have been followed closely by construction. The Argus described the new venture as follows:

Yarraville has been chosen by the Vacuum Oil Co. Pty. Ltd. as the site for a new bulk storage and distributing depot, the erection of which will be commenced shortly. The company has purchased 40 acres of land, and enormous tanks and large concrete buildings will be erected. A model of the buildings has been prepared by the architects, Messrs' Sydney Smith, Ogg, and Serpell. This model, which is made exactly to scale, is a comparatively new departure in Australian architecture, by studying it an excellent idea of the completed work may be obtained. These new works are being built as a part of the scheme for bulk distribution of oil which has been conceived by the directors of the Vacuum Oil Company.32

It appears that the main differences between the model of the proposed terminal and the final scheme included the reduction of the large area between the works and dock (subsequently dredged for widening and dock enlargement). A proposed loading bay building west of the lubricant stores, with a connecting pipe bridge, was also not built. The western half of the site was devoted to storage tanks.

Most buildings appear to have been constructed on thick concrete slabs – probably because of the filled nature of much of the site. The Queensland Cement & Lime Company was responsible for at least some of the paving and foundations.

29 CHEAPER PETROL PROMISED. (1925, July 7). The Argus (Melbourne, Vic.: 1848 - 1957), p. 12. Retrieved November 25, 2013, from http://nla.gov.au/nla.news-article2135723 30 VACUUM OIL STORES. (1925, July 4). The Mail (Adelaide, SA: 1912 - 1954), p. 3. Retrieved November 25, 2013, from http://nla.gov.au/nla.news-article58199975 31 THE GARGOYLE-Bulletin-Vol. XIV. 'Our Construction department and its Work' 32 "MODEL OF NEW WORKS FOR VACUUM OIL COMPANY." The Argus (Melbourne, Vic.: 1848 - 1956) 8 Jul 1925: 17. Web. 8 Apr 2013 . Note Sydney Smith, Ogg & Serpell were prominent in commercial architecture in the 1920s, having designed The Strand Hotel 1920, Harley House 1923 and the Port Authority Building 1929. http://www.walkingmelbourne.com/search.html?architects=Sydney+Smith%2C+Ogg+%26+Serpell

Figure 5: Model of New Works for Vacuum Oil Company, The Argus 8 Jul 1925

Figure 6: Construction of Vacuum Company Oil depot, Yarraville, Victoria ca. 1929. This later view is probably for an additional storage tank. 33 Because of the soft sediments on what had previously been swamp and mud flats, and which was filled with soil brought into the site, deep piling was necessary. The architects called for tenders for this work in February 1926. SYDNEY SMITH, OGG, and SERPELL, Architects,310 Collins Street (Cent. 999), Invite TENDERS- Until Noon, 15th February, SUPPLYING and DRIVING TIMBER PILES for Extensive Buildings at YARRAVILLE For THE VACUUM OIL COMPANY PTY. LTD.34

33 Queensland Cement & Lime Company. http://bishop.slq.qld.gov.au/view/action/singleViewer.do?dvs=1367371364679~144&locale=en_AU&metadata_object_ra tio=7&show_metadata=true&VIEWER_URL=/view/action/singleViewer.do?&DELIVERY_RULE_ID=10&frameId=1 &usePid1=true&usePid2=true 34 Classified Advertising. (1926, February 6). The Argus (Melbourne, Vic.: 1848 - 1957), p. 5. Retrieved November 25, 2013, from http://nla.gov.au/nla.news-article3733123

H. E. Asher, of Melbourne won the tender and undertook piling operations for building sites and the wharf and loading yard for unloading oil drums. Asher was also reconstructing Gem Pier at the time.35

The 'Lubricating Building' as it was called, was built to a slightly different plan than the architect's model suggested, with the roof gables aligned east west and a larger two storey section completed. It was described in the Vacuum Oil house journal as:

"…nearly 400 feet long by 220 feet wide portion of it being two storied. The floor and frame of the building are of concrete, the external walls are brick and interior walls hollow tile. In all probability the huge floor is the largest of its kind in the Southern hemisphere. The roof framework is constructed of structural steel covered with corrugated fibrolite sheeting. As the building is on reclaimed ground, it was necessary to support it upon pile foundations and there are over 1000 piles varying in length from 35 feet to 50 feet. The floor, most of which is wood blocked, is at cart level so that packages may be readily transferred from vehicles to the store and vice versa.

The building is divided into the following principal sections: Cased Oil Storage; Barrel Storage; Barrel Preparation; Ordinary Compounding; Speciality Compounding; Can Filling and Pump Room, all of which are on the ground floor; while Empty Can and Case Storage is provided on the first floor.

Lubricating Oil is received from overseas in first quality barrels or drums as it is not yet an economical proposition to import oil in bulk. The barrels are received at one or more of the five canopied doorways along the side of the building and loaded on to a barrel conveyor which runs at floor level the full length of the building.36

An innovation on the site was the use of the Wiggins floating tank roof, in which the tops of the million gallon tanks were designed to float on the surface of the petrol, eliminating the potential for explosive vapours, and in so doing, drastically reducing the amount of evaporation and fuel loss.

Floating Roofs on Petrol Tanks Walking upon a circular steel raft floating upon 1 000 000 gallons of petrol is one of the novel experiences which the Vacuum Oil Co Pty Ltd offers to visitors at its bulk storage depot at Yarraville. The huge tanks containing the petrol have this curious type of floating roof to minimise wastage of petrol through evaporation to give effect to its policy of establishing bulk storage depots throughout Australia in place of case oil distribution, the company is spending £3,000,000 upon modern methods of storage and pipeline installation. Refined petrol is pumped direct from the "tank" steamers into storage tanks, of which tanks there are eight: - three of 1,000,000 gallon capacity, two of 500,000 gallons and three "working" tanks of 100,000 gallons. The entire tankage installation is surrounded by an earthern (sic) retaining wall, and with each tank is a fire prevention system. Another remarkable feature of the depot is a huge concrete floor for the lubricating oil building 370ft long by 223ft wide the illustration of the Vacuum Oil Co Pty Ltd 's plant at Yarraville published yesterday was wrongly referred to as that of a refinery. The company does not refine crude oil in Australia. Its Yarraville works are for the bulk storage of petroleum spirits and for the blending and compounding of lubricating oils.37

The company also opened its first bulk petroleum terminal at Pulpit Point in Sydney in 1924 with the fist bulk tanker from the United States being the 1.5 million gallon "HT Harper".

35 RECONSTRUCTING GEMPIER. (1927, October 22). Williamstown Chronicle (Vic.: 1856 - 1954), p. 2. Retrieved November 25, 2013, from http://nla.gov.au/nla.news-article69523592 36 THE GARGOYLE-Bulletin-Vol. XIV. 'Our Construction department and its Work' 37 "ITEMS OF INTEREST." The Argus (Melbourne, Vic.: 1848 - 1957) 26 Jan 1927: 26. Web. 3 Dec 2013 .

In the 1930s Vacuum's US parent company, Vacuum Oil Inc, merged with the Standard Oil Company of New York to become Socony-Vacuum. It was later renamed Socony-Mobil and ultimately became Mobil Corporation.

Also in the 1930s, Vacuum introduced Australia's first Super grade motor spirit which it termed "Ethyl" along with the Pegasus logo from its US parent, Socony-Mobil. Pegasus, the Flying Red Horse was introduced into the US and then Australia in 1939 to become one of the most highly recognised corporate symbols.

Figure 7: Various logos used by Standard Vacuum and its successors

2.5 Establishment of Altona Refinery (1946-49)

In 1937, a company executive from the Vacuum Oil Company visited the United States to discuss plans to establish a Refinery in Australia with technicians and refinery experts. However, economic conditions and the advent of war resulted in the project being put on hold. After the war, a number of potential sites for a refinery were inspected and in early 1946, Standard-Vacuum (operating as the Vacuum Oil Company), announced its purchase of 200 acres at Altona, to be developed for a new refinery. Plans and specifications for the basic refinery equipment were supplied from the American affiliated oil companies; with design work and supervision performed by the companies own construction and chemical engineers in collaboration with several United States specialists.38

Construction began in October 1946 with an inauguration ceremony on 24 March 1948, where a commemoration plaque was unveiled by the Premier of Victoria, the Hon J.J. Holloway, and in December 1948, Vacuum Oil announced that it planned to have the refinery operating within 6 months, referring to the plant as a "Dollar Saving" refinery as it saved over US$1,200,000 in foreign exchange.39

Due to material shortages at the time, much of the steel rod, plate and section, was obtained from Army disposals sources in remote locations, including the Pacific Islands. Cement was imported from England for concrete work and for manufacturing concrete blocks on site, as ordinary bricks were difficult to obtain. 40

Construction of the refinery was undertaken over a period of 33 months, with the official opening in June 194941 and production of lubricating oil and bitumen from imported crude commencing in the following month. The plant initially had a total capacity of c 2,200 barrels of crude per day, 42 and while it only produced a small amount of motor fuel, it was able to supply 50 per cent of Australia's requirements of lubricating oil, when at the time, there was a world shortage of industrial lubricants.43 Much of the plant, including distillation towers, strippers and furnaces, was constructed by local Victorian engineering firms, and field

38 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950. 39 "VACUUM OIL REFINERY." The Advertiser (Adelaide, SA : 1931 - 1954) 2 Dec 1948: 4. Web. 17 Dec 2014 . 40 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950. 41 ExxonMobile. (2014). ExxonMobil Fuelling Victoria for 60 years. Retrieved 10 13, 2014, from ExxonMobile Australia: http://www.exxonmobil.com.au/australia-english/pa/about_what_rs_anniversary_60.aspx 42 Marioli, F, 1993, How Mobile is Mobil: A case study of the modernization of Mobil's Altona refinery, Mobil's threat of relocation and its effect on the State Government's decision making process, University of Melbourne 43 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950.

construction was undertaken predominantly by local contractors.44 Total cost of the plant to 1950 was ₤1,000,000, with more than 90% of this spent in Australia.

Figure 8: Model of the completed Refinery in 1950. Imported crude oil was delivered to the site from the Commonwealth Oil Refinery in Laverton via pipeline (1) to large storage tanks opposite Kororoit Creek Road (2). The main plant of the first stage comprised the vacuum distillation towers and No. 1 Crude Unit (3) and its associated furnaces (4), control room (10), chemical treatment plant (8) where the oil was washed with sulphuric acid, blending tanks (12), main boiler house (18) transformers (19), and firefighting equipment (24, 25). There were a variety of storage tanks for intermediate oils (7), finished products (5, 10), and special heated tanks for the bitumen (6, 14). A drum filling plant (15), lubricating oil warehouse (13) and wagon filling stand were located on A Street. The main office (22), amenities (20) and laboratory (17) buildings were located on the Millers Road frontage of the site, with all the process plant and tanks arranged to the south and east within the area between the present- day B and C Streets and east only to 5th Street45 (see Figure 72).

Initially 1,300 barrels a day of Tia Juana (Venezuela) crude was processed to make petrol, diesel fuel oil, bitumen and lubricating oils.46 Crude was received by tanker at the oil wharf at Williamstown and was pumped to the refinery via a pipeline shared with the nearby COR refinery.47

44 Exxon Mobil University - Altona Refinery History. Exxon Mobil Archives. 45 Mobil. Altona Refinery – Utilities (MRAA-UTC-10159). Document provided by Mobil. 46 Standard-Vacuum Refining Company (Australia). Altona Story. Standard-Vacuum Refining Company Australia, Refinery Operations Manual, Chapter III, Process Operations at the Altona Refinery of Standard-Vacuum Refining Company Limited. p. 11. 47 Vacuum Oil Co Pty Ltd, A Refinery is Built, "Some Summarised Facts and Statistics", Vacuum Oil 1950.

Figure 9: Aerial view of refinery 1952

Figure 10: Tank Farm, store and lube oil building under construction.

Figure 11: Distillation tower from the slop tanks nearing completion.

Figure 12: Left to right – boiler house, transformer and switch house, amenities in front, office behind, and stores buildings (COR refinery in distance) 17 Feb 1949.

Figure 13: Operational flow diagram for original plant processes

For its first few years of operation the plant produced mainly bitumen and lubricating oil. These were stored in the tankage area within the main complex as shown in Figure 13 above. Bitumen – black, Diesel Fuel – light brown, Furnace Oil – dark brown, Lubricating Oil – yellow, Petrol – white. The central part of this plant was later replaced with two much larger tanks while the distillation towers, naphtha plant and acid treatment were all replaced when the TCC was installed.

2.6 Expansion and renewal (1950s)

The Altona refinery was not well placed to benefit from the boom in private motoring and therefore increased petrol sales, so a major expansion was undertaken in the 1950s. The company evidently had expansion plans as early as 1947, when company representatives advised Altona Council that an additional 300 acres of surrounding land might be needed and asked that proposals to rezone nearby land as residential should be put on hold.48

In 1952, a new company was formed as 'the Standard-Vacuum Refinery Company (Australia) Pty Ltd', to undertake the expansion of the refinery’s capacity 20,000 barrels per day of crude. 49 The plant would also produce a higher proportion of petrol as well as a range of other fuel products, including jet fuels.50 The Chairman and managing director of the company Harold Rabling claimed:

"The plant will be the most modern of its kind in the world," "Installation of a catalytic cracking unit of the very latest design will provide Australia with the most efficient and economical refining methods ever introduced into this country."51

Rabling also noted that the refinery would "…be of immense value to the economy of the country and to the defence of Australia", while the new catalytic cracking plant would allow the massive increase in Australian fuel production and go a long way to making Australia self-sustaining in petroleum and lubricating oil production.52

The expansion was enabled by the installation of the 268 foot high Airlift Thermofor Catalytic Cracking unit (TCC), a technology which was only about 10 years old at the time and represented a considerable advance on petroleum manufacture in Australia. The cost of the expansion works was originally estimated at £7.5 million; this was subsequently increased to £20 million.53 Standing at 81 metres high, the TCC was almost twice as tall as the tallest office buildings in Melbourne or Sydney in 1953.54

The TCC and associated plant enabled the production range and capacity of the plant to be substantially enlarged. New plant included the gas plant, a second Crude Unit (No. 2), a Solutizer Unit, Hydrogen Sulphide Removal Unit, Catalytic Reformer, Alkylation Unit, Kerosene Treating Unit, a Copper Chloride Treating Unit, Cooling Towers, the LPG facilities and new flare facilities. Storage capacity in new tank farms was greatly enlarged and the original Bitumen/Lube oil operation was also expanded. 55 The flare appears to be the first installed at the site, and was accompanied by distribution of 25,000 booklets to explain the purpose and alleviate concerns of local residents. 56 The LPG spheres were initially located the west of Cooling Tower No 1,

48 S Priestly. Altona – A Long View, p. 216. 49 Standard-Vacuum Refining Company (Australia)] Refinery Operations Manual, Chapter III, Process Operations at the Altona Refinery of Standard-Vacuum Refining Company Limited, p. 11. 50 S Priestly. Altona – A Long View, p. 216. 51 "NEW 7½M. OIL FACTORY." Morning Bulletin (Rockhampton, Qld. : 1878 - 1954) 17 Aug 1951: 11. Web. 30 Dec 2014 . 52 "NEW 7½M. OIL FACTORY." Morning Bulletin (Rockhampton, Qld. : 1878 - 1954) 17 Aug 1951: 11. Web. 30 Dec 2014 . 53 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 54 ExxonMobil Australia, 2014, Fuelling Victoria for 60 yearshttp://www.exxonmobil.com.au/australia- english/pa/about_what_rs_anniversary_60.aspx 55 Standard-Vacuum Refining Company (Australia) Refinery operations manual. Chapter III, Process operations at the Altona refinery of standard-vacuum Refining Company Limited. s.n., Melbourne 56 "Don't be alarmed if you see refinery "on fire"." The Argus (Melbourne, Vic. : 1848 - 1957) 20 Dec 1954: 10. Web. 2 Jan 2015 .

but sometime between 1964 and 1968 they were relocated to the east side to accommodate the No 2 Reformer.

Figure 14: Construction of the TCC 1954, photo Sievers, Wolfgang National Library, nla.pic-vn3419110

Figure 15: Process diagram with new TCC and final products

The completed complex was described as including a total of "…a million feet of pipe with 60,000 welded joints … 300 miles of electrical wiring, six miles of paved roads, five acres of concrete paving and 19 buildings including a work-shop more than one acre in area".57

Figure 16: Model of proposed Altona Refinery expansion (Exxon Mobil Archives)

The construction of the new refinery plant was contracted to the Californian engineering contractor, CF Braun (also known as Braun Transworld Corporation), with construction on site beginning in November 195258 and was completed in 22 months.59 This was in part made possible through negotiated agreements with twenty unions and 1700 workers (described by Priestly as "American collective bargaining techniques"). The weekly wage for project workers was negotiated at £1 higher than award rates, and workers were also paid a variety of bonuses designed to minimise absenteeism and retain experienced workers. 60

The growing workforce was initially served by a small railway station at Paisley on the Werribee line, but a dedicated railway station was opened in 1953 on the Altona line close to where the old Williamstown Racecourse station had been (which was dismantled in 1951). Originally known as the Standard Oil Platform and built initially for the use of employees of the new refinery, its name was soon changed to Mobiltown in 1954, reflecting the change in the company name, and it became available for use to public passengers in 1958.61

57 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 58 Standard-Vacuum Refining Company (Australia), Refinery Operations Manual, Chapter III, Process Operations at the Altona Refinery of Standard-Vacuum Refining Company Limited, p. 11. 59 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 60 S Priestly. Altona - A Long View, p. 216 61 Hobsons Bay Heritage Study Amended 2014 - Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 351-381 Millers Road, Altona North p.2 of 6

Figure 17: Aerial View of Altona Refinery Feb 1953, showing preparations for construction of TCC and new tanks

Figure 18: Plan of newly expanded refinery showing original and new structures.

A commemoration booklet for the opening of the plant identified the new and existing plant and buildings (see Figure 18) as follows: 1- Mechanical workshop, 2 - No 1 Crude Unit, 3 - T.C.C Unit, 4 - Water Cooling

Tower, 5 - Treating Plant and Solutizer, 6 - No 2 Crude Unit, 7 - Lube Warehouse, 8 - Tankage Area, 9 - Warehouse, 10 - Boiler House, 11 - Auditorium, 12 - Cafeteria.

A new two-storey Administration building was constructed diagonally opposite the main refinery complex, on the south-west corner at the intersection of Kororoit Creek and Millers Roads. Architects for the Administration building were Stephenson & Turner, who also designed the new laboratory, auditorium, canteen, and locker buildings located along the east side of Millers Road.62 This building was pictured in the guide to architecture in Victoria, which was produced by the RVIA for the 1956 Olympics. New workshops and other utility buildings were also added to the complex and a series of cream brick control rooms were located across the refinery site.

One unusual element is the mechanical store/warehouse, (see #9 in Figure 18 above), which would appear to be a prefabricated WWII hangar – probably a Bellman Type.

Figure 19: Standard Vacuum Oil Refining Company Ltd, Refinery, Altona, Victoria. Aerial View of General Development, 195263

The new administration block offices were described as "dream standards‟ of accommodation, with air- conditioning and heating, natural light filtered by tinted glass, visor shades and outside aluminium louvers. As local historian Susan Priestly described the building: "It was Collins Street comfort set in sweeping plains, among the best mushrooming country near Melbourne".64 The surrounds were designed by noted landscape

62 "Modern Office Building For Oil Company's Staff." The Sydney Morning Herald (NSW : 1842 - 1954) 8 Dec 1953: 11. Web. 22 Dec 2014 . 63 Stephenson & Turner. Graphite and India ink on detail paper. Keith Murdoch Gallery – Australian Modern Exhibition. http://pandora.nla.gov.au/pan/44356/20040907- 0000/www.statelibrary.vic.gov.au/slv/exhibitions/murdochgallery/austmodern6b.html 64 Susan Priestly Altona – The Long View, 1988:217

gardener, John Stevens, who also had a hand in the Shell Oil Refinery in Geelong.65 The building, later known as the Pegasus Building, was demolished in late 2014.

Figure 20: Brief article on new office building by Stephenson & Turner.66

The expanded refinery was opened on 4 April 1955 in "lavish style‟ at a ceremony attended by over 1200 guests and presided over by the Prime Minister, RG Menzies. Originally estimated at £7.5 million, the final cost of the expansion was subsequently increased to a massive £20 million. In telling comparison, Menzies pointed out that not long before the war that had been the total amount of the federal budget.67

Figure 21: Plaque unveiled 4 April 1955 opening ceremony, and the dignitaries touring the plant As well as the usual commemorative plaques, publications and presentations, Standard Vacuum commissioned the famous Australian artist Charles William Bud (1919-1989) to paint the plant which he

65 Hendry, 2000 66 Cross-Section, May 1954 (no. 19), University of Melbourne Department of Architecture 67 Priestly, S. Altona – A Long View, 1988:218

described as "A scientific edifice, a fine specimen of the 20th century 'alumina-intestino' style and an inspiring subject for a painter". He undertook a series of preparatory sketches of the work in progress which were subsequently published in book form.68. The company also commissioned noted commercial photographer Wolfgang Sievers to prepare a photographic record of the structures when they were in pristine shiny condition.

Figure 22: Altona Refinery 1955, by Charles William Bud (1919-1989)

A further opening ceremony was held in May 1956, to commission the first aviation gasoline plant in Australia. In this case the Premier of Victoria Henry Bolte undertook the honours and was presented with an engraved cigarette case.69

68 Charles Bush, An Artist Looks at Altona Refinery, produced for Standard-Vacuum Refining Company (Australia) Pty. Limited by Atlas Associates, 1955 69 Cigarette Case Gold Museum Ballarat 90.0307, https://ehive.com/account/4819/object/258186#prettyPhoto, engraved in centre of lid "presented to The Hon. H.E. Bolte M.L.A. by the chairman and directors Standard-Vacuum Refining Company (Australia) Pty. Ltd. on the occasion of the opening of Australia's first aviation gasoline plant Altona refinery may 1956."

Figure 23: Construction of cooling tower 1954, Sievers, Wolfgang, National Library of Australia, nla.pic- an24882807

Figure 24: View of Mobil Altona Refinery showing Horton Spheres and TCC, 1956 Sievers, Wolfgang, National Library of Australia, nla.pic-an24876126

Figure 25: Refinery by night 1956 1954, Photo Sievers, Wolfgang, National Library of Australianla.pic- an24883930

Figure 26: Staff of the Altona refinery, Victoria in 1954. Photo Sievers, Wolfgang, National Library .nla.pic- an24876601

Figure 27: Refinery from the Air in the 1950s – TCC operating and first of the cooling towers in place

2.7 Expansion (1960s-90s)

Australia was still heavily reliant on oil imports in the 1950s and recovering supply levels after years of rationing. As a result, the federal government introduced generous tax concessions in 1957 for local petroleum exploration. In the same year the Chief General Manager of BHP, Ian (later Sir Ian) McLennan invited American Geologist, Lewis G Weeks, to Australia to assess the prospect of finding oil in the Sydney Basin. Weeks had previously been employed as Chief Geologist of Standard Oil Company (New Jersey), (Esso).70Weeks instead recommended the Gippsland coast as a more likely place for oil. A BHP / Esso joint venture commenced exploration in Bass Strait and by 1967 had established the Kingfish and Halibut oilfields with production of crude oil and natural gas commencing in 1969. This greatly reduced Australia’s dependence on imported oil, however also required substantial reconfiguration of Australia's refining processes to deal with the specific chemistry of the Gippsland Crude.71

Expansion and modification works at Altona were also necessary in the 1960s to cater for Middle Eastern blended crude. The Saturates Gas Plant (SGP) and the No. 2 Reformer were built in this period. The No. 3 Crude unit, the No. 3 Pre-Treater Reformer and the Naptha Fractionation unit were all brought on-line in 1970 for processing Gippsland oil. The light waxy Gippsland crude was quite different to Middle Eastern oil, requiring a de-waxing process. In 1976 the Altona Refinery was reconfigured or ‘debottle-necked to 108 TBD crude throughout’, i.e. throughput of product could be run at 108 thousand barrels per day. 72

70 ‘Oil and Natural Gas’, in Technology in Australia 1788-1988. 71 Oxford Companion to Australian History, op.cit., p. 480. 72 ExxonMobil University – Altona Refinery History

New blow-down systems were also introduced, comprising the 150 ft. flare and the 200 ft. flare. In response to local community pressure, the earlier ground flare was eventually demolished in 1978.

Figure 28: Altona Refinery in the 1960s (Wolfgang Sievers photo State Library Victoria) The new plant allowed Standard-Vacuum to increase its product range to include motor vehicle fuels as well as producing Australia's first locally made aviation fuel in 1956.73 It also provided a boom in local industry. In 1958, Mobil announced the construction of a major petrochemical plant next to the refinery, with the first products available for sale in June 1961. It had a flow-on effect on the industrial development of Altona, attracting several petrochemicals manufacturers. The first company to begin production at the complex was BF Goodrich Chemical Ltd, in May 1961. Others including Australian Carbon-Black (now Cabot Australasia), the Altona Petro-Chemical Co., producing ethylene and butadiene, materials used in the production of plastics, and rubber Australasian Synthetic Rubber, BASF Australia, Union Carbide Australia Ltd, Commercial Polymers, Dow Chemical, BF Goodrich Chemical and Hoescht Australia. This group of industries became known as the Altona Petrochemical/Chemical Complex.74

The companies operated independently, but were able to take advantage of being located close to each other by sharing raw materials and some services. The complex expanded over the next 20 years to meet increases

73 The Age Thursday 24 May 1956. 74 J Barnard, in Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study, Volume 2, p. 44 ff.

in local and export demand, becoming one of Australia's largest industrial centres and the biggest single employer in the Western suburbs.

In 1973 Mobil Oil Australia announced its return to the production of lubricating oils in Australia and commenced construction of a lubricating oil refinery alongside the existing Adelaide fuels product refinery. The lubricating oil refinery, the most modern one in Australia, opened in 1976. In 1985, Mobil Oil Australia negotiated a major asset swap with BP Australia in which Mobil vacated the Perth retail market in exchange for acquiring a large portion of BP's South Australian, Victorian and New South Wales retail market. Two years later, Mobil completed a major upgrade of its Yarraville bulk fuels terminal in Melbourne to create the most efficient and technologically advanced petroleum products terminal in Australia.75

Figure 29: Automated control room in the 1960s (Wolfgang Sievers Photo, State Library Victoria)

2.8 Recent Developments

In 1990-91 Mobil Oil Australia bought out Esso Australia's refining and marketing operations, giving them 100 per cent ownership of Petroleum Refineries (Australia) Pty Ltd, and its refineries in Altona and Adelaide. This acquisition resulted in Mobil becoming the second largest petroleum marketing and refining company in Australia.

75 Exxon-Mobil, History, http://www.exxonmobil.com.au/australia-english/pa/about_who_history_mobil.aspx

In December 1995 Mobil further expanded its retail arm by purchasing the West Australian service station network and wholesale business of Amgas. In December the company became Mobil Refining Australia Pty Ltd (MRA). In the late 1990s, the refinery underwent a major modernization programme at a cost of $350 million, which was designed in part to achieve a higher level of feedstock flexibility. The program included the replacement of the 1955 Thermofor Catalytic Cracker with a modern Resid Fluid Catalytic Cracker (FCC) designed in association with the British engineering firm M. W. Kellogg Company (now Kellogg Brown Root Ltd, or KBR).76

The FCC employs an alumina silicate-based catalyst, and has both improved efficiency and allowed a larger range of crude to be processed. The Altona FCC unit is a side-by-side type, with the reactor and the catalyst regenerator contained in separate vessels.

Thermal cracking has been almost completely replaced by catalytic cracking around the world because it produces more gasoline with a higher octane rating and also produces more olefinic by-product gases that are a more valuable product.

The converter for the FCC is 50 metres long and weighs 850 tonnes and required the power lines and street signs between the Williamstown Dock and the Altona Refinery to be dismantled to allow the converter to be transported. The upgrade also entailed new desulphurisation facilities, additional crude oil storage tanks, and upgrades to safety and pollution control equipment.

Figure 30: Fluid Catalytic Cracker being transported through the Western Suburbs to the refinery site

76 Mobil Oil Australia Limited / Kinhill Engineers Pty Ltd. Altona Refinery Modernization Programme: Environmental Management Plan, p. 21.

2.9 Chronology

Vacuum Oil Company – Altona Refinery 77

 Early 1946 – 200 acres purchased by Vacuum Oil Co at Altona  October 1946 - construction of refinery commenced  June 1949 – official opening (lubricating oil and bitumen from imported crude), total capacity of c2,200 barrels of crude per day  1950's - upgraded and increased capacity: installation of a second crude unit, Thermofor Catalytic Cracker (TCC), reforming unit, desulphurization unit, additional storage tanks and new pipelines  1953 - expansion project began to increase production to c3.5million litres a day, installation of TCC – project cost circa £20 million, employed 2,200 workers and took 22 months and involved the first incidence of collective bargaining within the Australian labour movement  1955 - "multi-million dollar expansion program came on stream" to include motor vehicle fuels  May 1956 - production of the first locally produced aviation gasoline in Australia  1958 - announcement of intent to construct petrochemical plant adjacent to Altona refinery  1959 - upgrade to enable the production of transport fuels and the increased capacity to c.41,000BPD: TCC modified to increase capacity, additional desulfurization unit, 6 additional storage tanks and new pipelines  1961 - first petrochemicals produced  1960s - end of period of industry closures for oil refineries in Australia. Altona refinery upgraded: effluent treatment pond and waste water treatment lagoon constructed  1962 - Vacuum Oil Company changed name to Petroleum Refineries Australia (PRA) jointly owned by Mobil and Esso  1970 - additional refinery expansion completed allowing the local processing of local crude from Bass Straight instead of processing imported crude  1970's - "International oil price shocks" caused significant restructuring of oil refinery operations world wide  1971 - low sulphur crude discovered in Bass Straight and Westernport – Altona – Geelong pipeline constructed to bring local crude to Altona refinery  1976 - upgrade to increase capacity to 108,000BPD: new crude unit installed, naphtha fractionation unit installed, 3rd reformer constructed  1980's - computer control equipment installed to replace obsolete instruments. "…processing of imported crude for bitumen production ended"  1981 - price of crude oil peaked worldwide  1984 - Altona refinery producing 100,000 BPD of crude distillate barrels, Complexity Factor 5.75 (second only to Shell – Clyde in Australia)  1986 - TCC yield improvement project to increase performance

77 Sourced from ExxonMobil Australia, 2014, Fuelling Victoria for 60 yearshttp://www.exxonmobil.com.au/australia- english/pa/about_what_rs_anniversary_60.aspx; Marioli, F, 1993, How Mobile is Mobil: A case study of the modernization of Mobil's Altona refinery, University of Melbourne

 1988 - abolition of Commonwealth Government Indigenous Crude Allocation Policy resulted in the price of local crude no longer being guaranteed and Mobil looked at upgrading the Altona refinery to enable the processing of a more competitively priced imported crude  1981-1989 - demand for crude oil dropped in Australia and many refineries closed down as a result of economic slow-down and increasing environmental stringency  Late 1990s - Mobil brought all rights to Esso Australia – acquiring 100% ownership of Petroleum Refineries (Australia) Pty Ltd which was responsible for the operations of the Altona (and Adelaide) refinery  1991 - Mobil Oil brought out Esso Australia's 35% share in Altona Refinery. Mobil's share of the Australian gasoline market from 14% to 21%  April 1991 and August 1992- Altona refinery threatened closure and relocation  July 1991 - Labor government provides formal support to Mobil's modernization project  December 1991 - Altona refinery responsible for 15% of Australia's refining capability and 60% of Mobil's Australian refining capability  1992 - Mobil and Shell undertake joint project to house imported crude in a tank farm at the old Crib Point refinery site  1992 - Altona Refinery Modernization Program Environmental Management Plan – Kinhill Engineers and Mobil Oil Australia  1993 - Altona refinery supplied 50% of Victoria's petrol requirements and the feed stock to Altona Petrochemical Complex.  1997 - modernization project undertaken: $250 million replacement of TCC with a Fluidised Catalytic Cracker (FCC)  November 2005 - Benzene Reduction Unit installed at Altona Refinery and refurbishment of a previously decommissioned hydrodesulphurisation (CHD) unit  Altona Refinery is registered as a Major Hazard Facility (storage, handling and processing of large quantities of flammable products)  2009 - 60th anniversary of refinery in Altona

3 Description of the Study Area

3.1 Landscape context

The Altona Refinery is situated on the Basalt Plains in Melbourne's Western Suburbs. The location was evidently originally chosen for its proximity to railway lines, the existing Commonwealth Oil Refineries installation nearby, and the Melbourne oil terminal facilities at Williamstown, Spotswood and Yarraville. Segregation from other settled areas may also have been a factor, although housing was encroaching on its north side as construction was underway. Kororoit Creek to the south and west of the refinery provides a partial open space buffer, while there is light industrial zoned land to the east.

Due to the general open flat surrounds and lack of other tall structures, the refinery towers are visible from many distant vantage points, in particular from the west approaching along Kororoit Creek Road and from the railway overpass on Millers Road. Long views from the south and east are partly obscured by the associated tank farms, but there are also unusual juxtapositions of natural and artificial wetlands and rare open grasslands with the refinery as backdrop within the undeveloped buffer zones.

The following description is arranged according to the major construction phases of the site, identifying surviving fabric and where evident, missing elements from each phase. Previous assessments of the Altona refinery have emphasised the significance of the fabric associated with the 1949-53 era, specifically the offices complex facing Millers Road and the Thermofor Catalytic Cracking (TCC) Plant. As noted above, however, the whole of that part of the refinery located to the north-east of the intersection of Millers and Kororoit Creek Roads in Altona, has been included in the area of the heritage overlay (HO202).

Refinery land extends beyond the present Heritage Overlay area, and includes the site of the former administrative offices (Pegasus Building) on the south west corner of Millers Road and Kororoit Creek Road (recently demolished) and tank farm on the south side of Kororoit Creek Road. However, these other areas are not considered in the CMP.

3.2 Buildings and Plant 1946-9

The original refinery construction was based around a vacuum distillation plant primarily producing lubricating oils and bitumen, with crude and product storage, workshops, amenities and administration. The main processing area was south of C Street and west of 5thStreet, with the distillation towers where the No 1 Crude Unit was later installed.

3.2.1 Administrative Building later Health Centre.

This building located on Millers road adjacent to the original main site entrance, was constructed in 1948 and comprised concrete block walls, with steel truss roof and steel–framed windows and corrugated asbestos cement sheet roofing. It runs parallel to Millers Road and has a strong horizontal element formed by the windows and hipped roof line. The administration office was the public face of the site until the new building designed by Stephenson & Turner was erected to the south west in 1953.

Figure 31: Gatehouse (demolished) with former Administration building behind 6 Dec 1949 (Exxon Mobil Archives)

Figure 32: Administrative Building under construction 9 Dec. 1948. (Exxon Mobil Archives Photo Album 35/23)

Figure 33: Administration building from the south east.

Figure 34: Administration building from Millers Road

3.2.2 Switch House This small concrete block building with steel-framed windows and hipped roof was constructed adjacent to the original boiler house to house compressors and switch gear. With the Millers Road administrative building, it would appear to be one of the few concrete block structures surviving from the original plant which reflect the stated material shortages under which the refinery was constructed. The adjacent boilerhouse was demolished about 1964, when new high output boilers were installed.

Figure 35: Switch and compressor house with (demolished) boiler house behind 18/1/1948 (Exxon Mobil Archives album 39/44)

Figure 36: Compressor and Switch gear building, 2015

3.2.3 Distillery and Bitumen Plant

The original plant, comprising vacuum distillation towers for bitumen and lubricating oil, was the main production facility when the refinery first opened and comprised separate heating furnaces for the stills and bitumen process, with specially insulated piping and tanks to prevent the bitumen hardening. As the original distillation towers were replaced with the No 1 Crude Unit in the 1950s, the associated primary bitumen plant was probably also replaced at this time. However, it is likely that some components were reused in the modifications. Some of the remaining tanks including bitumen tanks 380-84, and oil blend tanks, date to the original construction phase, as do steel and concrete support structures, overhead gantries, and other parts of the plant. The diesel and petrol tanks were replaced. In terms of the steel structural work, pumps, piping and other control equipment, it is difficult to isolate specific 1940s fabric from the later additions and replacements, but is likely much of this plant has been replaced over time.

Figure 37: Pipe Still 27/7/1949 (Exxon Mobil Archives Albums 46/6)

Figure 38: Vacuum distillation tower under construction 27/7/1949 (Exxon Mobil Archives Albums 46/26)

Figure 39: Location of No 1 Crude unit reused for later plant, 2014

Figure 40: Storage Tanks and pipe gantry from original Bitumen plant, 2014

Figure 41: Bitumen tanks and rail loading gantries from the north, 2015

3.2.4 Lubricating oil warehouse

This large steel-framed building comprises three bays of pitched roofs. It originally had a skillion cantilever extension on the south side covering the loading bays. As with the other early buildings this would have originally been clad in corrugated asbestos cement sheeting, but has recently been re-clad in Zincalum, with clear corrugated plastic skylights.

Figure 42: Lube. Oil building under construction 27/7/1949 (Exxon Mobil Archives Albums 46[28)

Figure 43: Lube Oil Warehouse from the Millers Road bridge, 2014

3.2.5 Drum filling building

The drum filling building is a small steel framed and corrugated iron clad structure near the railway siding. It was erected around 1950, originally with a cantilevered verandah on the south side. The structure has a bolted and welded steel frame and roof trusses, and corrugated steel cladding replacing the presumably original corrugated asbestos cement. It is mostly open sided and is currently used as a construction workshop and store.

Figure 44: Bitumen Drum filling building with rail loading at top, 2014

Figure 45: Lube oil packing building, 2014

3.2.6 Demolished structures In addition to the original distillation towers, which had been demolished sometime between 1968 and 1970, other structures from the original construction phase have been demolished over the years.

Major buildings from the early period that have been demolished include the following:

 Workshop and store – between 1972 and 1974

 Boiler house and 3 stacks – between 1960 and 1964

 Amenities building – between 1960 and 1964

 Gatehouse – between 1964 and 1968

 Wagon loading building – between 1964 and 1968

Figure 46: Wagon Loading/Tanker filling station (demolished) 15 Dec 1949 (Exxon Mobil Archives, album No22)

3.3 Buildings and Plant 1950-56

3.3.1 Amenities buildings

New amenities were constructed as part of the 1950s expansion. In keeping with Standard Vacuum's US practice, facilities were designed to improve working conditions and develop a strong bond between the employees and the company. The fully catered canteen included separate executive dining room, and serving counter. Designed by Stephenson and Turner in the International Style, they comprise almost flat roofs of steel deck cladding on steel roof beams, supported on further framing and cream brick walls. The tall canteen and auditorium sections are linked by lower sections for service areas and foyer,

Extensive aluminium-framed windows with interspersed green glass panels wrap around the canteen and dining room exterior, while the auditorium has windows on the east side only, fitted with blackout curtains. The ceilings are built of suspended acoustic tiles, while polished timber floors are in the auditorium and executive dining rooms, the latter now carpeted. Polished Australian hardwood panelling and joinery has been used extensively.

Figure 47: Amenities building – auditorium and canteen from the south west, 2015

Figure 48: Canteen interior looking east, 2014

Figure 49: Auditorium interior facing south east, 2014

3.3.2 Boiler house The later boilerhouse, employing high pressure oil fired boilers and shorter chimney stacks stands immediately south of the site of the original boiler house. This is a steel framed and corrugated steel clad building.

Figure 50: 1950s Boilerhouse and water tank on left, 1948 Switch house centre, 1950s laboratory on right.

3.3.3 Thermofor Catalytic Cracker The Thermofor Catalytic Cracker remains standing at 248 feet high and is thought to be the last catalytic cracker of its type in Australia, although it has been decommissioned, disconnected from the refinery and many of the ancillary items such as furnaces have been removed.

Figure 51: TCC in the 1960s (Exxon Mobil Archives)

Some structures associated with the TCC may currently exist in part, including the feed prep/TCC Gas Unit (located to the east of the TCC, and the concrete pit from the TCC Reactor Blowdown (also known as the ground flare).

3.3.4 Mechanical workshop The mechanical workshop is a large steel framed structure located adjacent to Kororoit Creek Road. The building has shallow pitched roof supported on steel trusses, corrugated steel cladding and a continuous strip of glazing along the tops of the long elevations.

Figure 52: Mechanical Workshop in 2014 showing recladding.

3.3.5 Warehouse – fire station An unusual building on the site dating to about 1953 was later referred to the 'Kellogs store' (sic), after the engineering and construction contractor M. W. Kellogg Ltd. (now Kellogg Brown Root Ltd, or KBR), the firm that designed the FCC unit). The building was evidently a prefabricated hangar probably surplus from WWII. This has steel framed wall and sliding door panels, with segmental steel trusses and supports, clad in corrugated steel.

Figure 53: Prefabricated warehouse building

3.3.6 Laboratory A building on the site of the present laboratory and to a similar form was in place in about 1952 as shown on one of the Wolfgang Sievers photos. However, the present structure appears to have been extended and altered in subsequent years. As constructed this had a near flat roof, cream brick walls and aluminium windows forming a continuous strip along the upper third of the walls.

Figure 54: Laboratory building from the north east, 2015

3.3.7 Solutizer The Solutizer was installed in the 1950s expansion, and has been extensively modified in recent years. The facility comprises concrete-encased steel frame portals supporting pipework and plant running in parallel lines, with storages tanks on either side. Some evidently redundant reaction vessels, pumps, valves and other plant are still in place.

A concrete framed and brick-walled amenities building adjacent to the plant is contemporary with the solutizer, but not related functionally. This building has an unusual structural design, with three-pin arch portal frame, formed from what would appear to be prefabricated 'L' shaped reinforced concrete beams, joined with steel bearings at the crown and end bases.

Figure 55: Remaining Solutizer plant looking west, 2014

Figure 56: Amenities building (Area 3 change room) adjacent to solutizer, 2015

3.3.8 Cooling Towers The first of the cooling towers, Cooling Tower No. 1 on corner of C Street and 3rd Street was built in the early 1950s, using over £30,000 of imported timber. This was one of four separate structures added as the plant expanded, with a second unit (No 2) constructed by 1956, and two smaller units added subsequently.

Figure 57: Cooling Tower No 2.

3.3.9 Horton Spheres The LPG (Liquefied Petroleum Gas) plant was developed in the late 1950s, including three Horton spheres,78 which were initially erected west of the No 1 Cooling Tower, but moved by 1968 to the east. Eleven bullets were also constructed between1959-84. These distinctive forms have attracted photographers and artists. LPG was initially used in the production of aviation fuel and in recent decades has been supplied to the nearby Altona chemical complex. The spherical shape of the Horton Spheres offers uniform stress resistance, allowing the vessels to economically contain internal pressures. They require less land area yet provide more capacity than other pressure storage vessels, resulting in lower associated costs for piping, foundations, accessories and painting.

78 Spherical pressure vessels first built by the Chicago Bridge & Iron Company in 1923 and named after the company founder Horace Ebenezer Horton.

Figure 58: Three Horton Spheres for storage of LPG, 2014

Figure 59: Group of air force personnel 8 December 1955 in front of Horton Spheres - identified as Standard- Vacuum Refining Company Pty Ltd, Essendon, but probably Altona (Museum Victoria Reg. No: MM 51251)

3.3.10 Other building and plant Other buildings and plant from the 1950s, which are believed to still be in place at least in part include the following:79

 Locker Building (Millers Road)

 No 2 Crude Unit (2 CDU) (expanded 1967, further changes mid-late 1990s)

 Solutizer plant (for removing impurities such as sulphur using a caustic wash treatment).

 Hydrogen Sulphide Recovery Unit (H2S)

 Various cream brick control rooms located across the site, include no 2 CDU control room in SGP unit, also control room north-east of the Solutizer.

 No 1 Pretreater (1PTR) constructed 1954, converted to a hydrotreater (HDT) in 1991)

 No. 1 Reformer (used for extraction of high octane petrol from naptha)

 Sulphuric acid Alkylation Unit (used to produce a high quality gasoline component, using either sulfuric acid as the catalyst) commissioned in 1955, revamped in 1966 replacing the reactor expanded as part of debottleneck project in 1978-9 including extending the reactor from six to seven mixing zones.80

 Cooling Tower No. 2 also 1950s (expanded 1966) (this is the one to the south of No. 1)

 3 B Tankage Area (located in the area bordered by 4th Street, D Street, 3rd Street and Kororoit Creek Road), contains storage tanks

3.4 1960s and later additions

Progressive improvements and modifications of plant at the refinery have been undertaken since the completion of the TCC to accommodate different feed stocks (such as the introduction of Gippsland Crude) increase output, or for producing different products. New plant included Bitumen Oxidiser Drums were replaced with new units in1960, while the present Bitumen Oxidiser was commissioned in 1966. The Saturates Gas Plant (SGP) was commissioned in the early 1960s, and expanded in 1977-8.

Other plant installed in the 1960s and 70s included:

 No 2 Reformer,1966

 No. 3 Cooling Tower - two units south of No 1 and No 2 Cooling towers1969-70

 No. 3 Crude Unit, 1970

 No. 3 Reformer

 No. 3 Pretreater

79 Identified by Lovell Chen, 2002, Hobsons Bay Planning Scheme Amendment C17 80 Steven Ackerman and Paul W Kamienski, ExxonMobil Research and Engineering Company, USA Kate D Hart and Derek R Styles, ExxonMobil Refining and Supply, Australia 'Sulphuric acid alkylation reactor upgrade' http://www.digitalrefining.com/article/1000234,Sulphuric_acid_alkylation_reactor_upgrade.html#.VKYrRdIcS3U

 Naptha Fractionating Unit, 1970)

 Flares (150 ft. and 200 ft.)

In the 1980s the Cutback Bitumen Unit was installed and in 1991 the No. 1 Pretreater was converted to a Hydrotreater. The Lo-Cat Unit - Sulphur Recovery Unit was installed in 1994.

3.4.1 Fluidised Catalytic Cracker The major redevelopment of the refinery came in 1997-8 with the construction of the new Fluidised Catalytic Cracker (FCC) replacing the TCC. This is the major processing unit for production of higher octane petroleum fuels and is currently in operation. The main vessel also forms a structural unit, reinforced by a framework supporting the adjacent stairs and elevator tower. The structure stands over 60m tall, although not as tall as the TCC.

Figure 60: Fluidised Catalytic Cracker

4 Comparative Assessment

Comparisons for heritage purposes generally identify a population of places which fulfil similar historical themes, are from a similar period, and/or have some physical resemblance. The relevant historical theme is very broadly defined as 'industrial development in the twentieth century'. In terms of its regional setting, the Altona Refinery also relates to the more specific chemical industries which were concentrated in Melbourne's Western Suburbs from the mid nineteenth century onward, and generally migrated west as expansion of existing industries and new industries developed.

On a broader geographic basis and more specific industrial type, the Altona Refinery relates to the development of the petrochemical industry in Australia following World War I, and its great expansion in the immediate Post World War II period.

Therefore the comparable places will be other petroleum refineries in Australia, other large petrochemical related undertakings and oil industry related sites. The other past and present oil refineries and terminal sites 81of comparable size and scale are summarised in the following table:

Table 1: Refineries in Australia

Plant Operator Opened Closed Capacity (tbpd)82

COR Laverton VIC Commonwealth Oil Refineries/Anglo- 1922 1954 Iranian Oil Company/BP

Clyde Sydney NSW John Fell & Co / Shell 1926 2012 50

Altona VIC Standard Vacuum/Mobil 1947 46

Matraville NSW Boral Ltd/Total 1948 1984 12

Kurnell Botany Bay NSW Caltex 1953 2014 85

Kwinana Perth WA BP 1955 83

Corio Geelong VIC Shell 1956 75

Port Stanvac SA Standard Vacuum 1960 2003 100

Bulwer Island QLD BP 1960 201583 59

Lytton QLD Caltex 1965 63

Cribb Point VIC BP 1966 1985 60

81 Report on Australia’s oil refinery industry, House of Representatives Standing Committee on Economics January 2013 Canberra 82 COGEN, Submission to Senate Select Committee on Fuel and Energy August 2010 http://www.aph.gov.au/~/media/wopapub/senate/committee/fuelenergy_ctte/submissions/Sub_138_pdf.ashx 83 BP Bulwer Island Refinery: processing to halt, Press Release: 2 April 2014, http://www.bp.com/en_au/australia/media/media-releases/bulwer-island-refinery-processing-halt.html

Little remains of the COR Laverton and BP Cribb Point refineries, leaving only Shell in Geelong as the comparable Victorian petroleum refinery. Matraville, Clyde and Kurnell in NSW have been substantially decommissioned, or are about to, with the distinctive distillation and cracking towers removed, while Bulwer Island may go the same way shortly, leaving Lytton in Queensland and Kwinana in Perth WA as the only other fully operational Australian refineries.

The petroleum industry in Victoria was concentrated in Melbourne’s inner western suburbs in the first half of the twentieth century. This continued a process of industrial development from the nineteenth century, which included many dangerous and noxious trades.

Oil terminals were established on the Yarra and Maribyrnong River berths to take first packaged and then bulk oil, kerosene and other petroleum products from overseas refineries. Some of these such as the Williamstown and Yarraville Terminals became bulk crude import wharfs, while blending and distribution facilities grew around them. Companies such as British Imperial Oil (Shell), Alba Petroleum (Ampol), the Atlantic Oil Co. (Esso), HC Sleigh (Golden Fleece) and the Commonwealth Oil Refinery Co. (BP), all established facilities in the area between Yarraville, Spotswood and Newport. With rationalising of the industry in the late twentieth century a number of these installations have since been decommissioned.

As oil blending and storage facilities are common to some of the terminal and distribution sites, as well as the Altona Refinery, some comparisons can be made. Generally the Yarraville/Newport sites are smaller and less complex in their structures, but have earlier establishment dates.

The Shell facility at Newport and the Vacuum Oil/Mobil Yarraville terminal were established by the early 1920s and retain several early storage tanks and until recently early packaging and warehouse buildings.

Figure 61: Yarraville Terminal (Bing bird's eye images), 2012 Other terminals such as Caltex, Ampol, Shell and BP at Newport and Esso at Spotswood, are more notable for the size and range of their tank farms, including several early riveted steel tanks. The former Esso terminal buildings and tanks at Spotswood were demolished in 2014.

Several buildings survive on these sites, of similar scale (and possibly function), to the east and west buildings at Yarraville, but generally do not retain t in 3014-5. The brick and concrete building at the Esso terminal has a similar structural form.

BP is a far more dominant site because of its mid-twentieth century glass curtain walled lubricant blending tower; BP Australia Complex 431 Douglas Parade, Spotswood (HO89).

The Shell Oil Complex, 39-81 Burleigh Street and Drake Street, Newport (HO47) comprises early 1920s riveted storage tanks, corrugated iron clad stores buildings, gatekeeper's house and rail sidings. Six Riveted Oil Tanks are separately listed as (Part Shell Oil Complex) Burleigh Street, Spotswood (HO48).

The Commonwealth Oil Refinery Company Tank Farm comprises only early storage tanks, although some ancillary buildings survive. Only the NP6 and NP7 storage tanks are included on the Heritage Overlay, 39-81 Burleigh Street, Spotswood (HO49).

Only the administrative building and timber bridge remains from the Commonwealth Oil Refinery Complex (former) 32-54 Toll Drive, Altona North (HO303).

The complexity of structures and activities associated with the oil terminals - tank farm, substantial early stores, workshops, blending and despatch buildings, etc. - however, is not demonstrated at these other sites, which either were designed as part of larger more dispersed complexes of various facilities, or have undergone more substantial changes.

Figure 62: Lubricant blending tower and offices at BP Newport terminal, 2012

Figure 63: Storage and works sheds at Shell Newport Terminal, 2012

Figure 64: Pump house at BP Newport terminal, 2010

Figure 65: Brick stores building Esso oil depot, Simcock Ave Spotswood, 2010 (demolished c2014)

Figure 66: Concrete building Caltex Newport Terminal, 2010

Figure 67: Shell terminal Newport (photo Sievers, SLV H2004.49/83) (demolished) c1980

Figure 68: Former commonwealth Oil Refinery office building Altona North, 2008 The Altona Petrochemical Complex also contains comparable plant, especially pressure vessels, processing towers, storage tanks and the ubiquitous pipework of the petrochemical plant – the alumina-intestino style described by artist Charles Budd.

Figure 69: Altona Petrochemical Complex, (Technology in Australia 1977-1988) Similarly the Longford Gas Plant in Gippsland, constructed from 1965 to process and transfer natural gas from off-shore wells to Melbourne, has also played an important role in the historical development of late twentieth century industry in fuel supply in Victoria. It also features much of the same forms of aesthetic value identified at Altona and other refineries, in the complex forms of pressure vessels and snaking silver pipework.

Figure 70: Longford Gas Plant84

84 Barry Wood, Building Victoria’s first natural gas pipeline: Dutson to Dandenong 1968, The Australian Pipeliner, October 2009

While all the surviving storage and distribution sites in the Western Suburbs are of interest in terms of the history of the petroleum industry in Victoria, and have the potential to demonstrate aspects of this history, the Altona Refinery is such an unusual element in the industry, we can conclude that it is only really comparable with the other Victorian refinery at Shell's Geelong plant in Victoria The import and distribution terminals represent the precursor historical phase in the development of imported product and provision of fuel and lubricants for industry and motorised transport, but functionally they are very different places.

Figure 71: Catalytic Cracker at Shell Refinery Geelong during construction (State Library Victoria)

Associated plant of similar form, such as the Altona Petrochemical Complex, Longford gas plant and other petrochemical works, historically reflect some of the consequent developments that have been influenced by the refinery and oil industry, but are generally of more recent date and more specialist function, and so their significance at present should be considered secondary to the main centres of oil import and processing.

Interstate refineries are also of interest in comparison, in particular as evidence that the present extent of similar refining facilities is contracting, and the pioneering phase of the industry is slowly disappearing. Of the earlier and contemporary refineries, the 1920s Clyde and Laverton refineries are all but gone, while the 1940s and 50s sites at Matraville and Kurnell, have been closed and will soon lose much of any remaining early fabric. The surviving Kwinana and Corio refineries will of course be under the same pressure for renewal and replacement as is Altona, so that in the future, their heritage characteristics will also be diminished.

5 Significance

5.1 Existing statements of significance

The statement of significance in the Hobsons Bay Heritage Study85 state:

The Standard Vacuum Refining Co complex (former), now Mobil Oil Refinery, comprising the buildings and plant generally constructed between 1949 and 1960, at 351-381 Millers Road, Altona North.

The Standard Vacuum Refining Co complex is of local historic, social, technical and aesthetic significance to the City of Hobsons Bay.

Historically, it is significant for its strong associations with the development of the oil industry in Australia as one of the oldest continuously operating oil refineries in the country. It is also significant as a major refinery and office complex that illustrates the immense industrial expansion of the City and Victoria in the post World War 2 period. The size of the complex had a significant impact on the economy of the State of Victoria and led to the establishment of a petro-chemical complex within this area with a number of associated firms such as Australian Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex have associations with the important architectural firm of Stephenson & Turner. (AHC criteria A4 and H1)

Socially, it significant for its strong associations with the local community as one of the first major industries in the Altona area and one of the largest employers over a long period. It is also significant for its associations with the development of the labour movement in Australia through the introduction of the concept of collective bargaining techniques, which were first used at this site. (AHC criteria D2 and G1)

Technically, it is significant for early plant and equipment such as the Thermofor Catalytic Cracking Plant, which is unique in the State. (AHC criterion F1)

Aesthetically, although altered, the c.1955 office block is significant as a good example of modernist design that illustrates the progressive nature of the Standard-Vacuum company and investment made in the establishment of the complex at the time. (AHC criterion E1)

The extent of this designation according the Hobsons Bay Heritage Study covers the following components:

- The refinery itself comprising various equipment, pipes, tanks and stacks, all set out on a rectilinear grid between the railway, Millers Road and Kororoit Creek Road. It includes the 248 feet high Thermofor Catalytic Cracking Plant (now decommissioned), which is thought to be the last vertical catalytic cracker in Australia.

- The auditorium, canteen and locker building, located at the north-east corner of Kororoit Creek Road and Millers Road, which has a flat roof, is clad with cream bricks and has aluminium framed windows with green glass panels. This is one of the buildings designed by Stephenson & Turner

- The former office/laboratory building (now the medical centre), which is a concrete block with a hip roof building facing Millers Road.

- The former Administration buildings, designed by Stephenson & Turner, on the south west corner of the Millers- Kororoit Creek Roads intersection. This building was pictured in the guide to architecture in Victoria, which was

85 Hobsons Bay - Hobsons Bay Heritage Study, Hobsons Bay City Council, 2006 Victorian Heritage Database place details - 28/8/2015 Standard Vacuum Refining Co. Complex (Former) vhd.heritage.vic.gov.au/reports/report_place/15139

produced by the RVIA for the 1956 Olympics. This building has since been changed by a general renovation in recent times.

- A tank farm on the south side of Kororoit Creek Road. The number of tanks has been greatly expanded since the 1940s.

The plant has also been expanded, with some additional land occupied to the east, but the original plant has not been radically changed. An aerial view of the site titled "January 1955. The new refinery already looks complete" shows little change from recent aerial views. (Priestley 1988:206)

5.2 Assessment against criteria

Assessment of significance has been undertaken in accordance with the practice note “Practice Note 01: Applying the Heritage Overlay”, Published by the Victorian Government Department of Planning and Community Development Melbourne, September 2012. This establishes the processes, criteria and thresholds for determining significance of heritage places and the format for presentation of the statement of significance. The following statement has been adapted from the existing Hobsons Bay Heritage Study citation, and consideration of the Panel Report for amendment C17.

What is significant?

The Altona Refinery is a large industrial complex located on Millers Road and Kororoit Creek Road Altona. It was constructed from1946-9 and substantially expanded in 1953-6. The complex includes some buildings, storage tanks and plant from the original 1946 bitumen and lubricating oil refinery, the remnant 1953 Thermoform Catalytic Cracker, former c1954 office building known as the Pegasus building (demolished 2014) and the 1998 Fluidised Catalytic Cracker. The present layout, plant, buildings and overall fabric of the site represent the progressive evolution of the refinery. Its continuing operation is critical for the cultural significance of the place to continue to be maintained, and decommissioning would inevitably lead to the removal of most of the fabric, as has occurred at other closed refineries in recent decades.

How is it significant?

The Altona Refinery is significant for historical, technical, social and architectural reasons at the local level to the City of Hobsons Bay.

Why is it significant?

The Altona Refinery is of significance as a rare and important petrochemical plant, which is the earliest surviving and longest lived oil refinery in Australia.

Criterion A: Importance to the course or pattern of our cultural or natural history (historical significance).

The Altona Refinery is significant to the history of transport, industry and economic development in Victoria, as the most prominent site reflecting the growth in importance of motor fuel and therefore road transport, in the immediate post World War II period. It was also the first fully functional oil and petroleum refinery in the state, which assisted in bringing about a substantial level of fuel and energy self-sufficiency in Australia following a period before and during World War II in which the country was highly reliant on petroleum based fuel imports.

The refinery plant and structures are also of historical significance as examples of a distinctive building form which expresses the functional role in oil refinery technology and the introduction into Australia of specialist technology, plant and skills which assisted the modernisation of industry and the creation of an integrated petrochemical industry. The Altona refinery provided the raw materials and skill sets

necessary to develop the Altona Petrochemical Complex, which became one of the largest employers in the Western Suburbs and Victoria.

Criterion B: Possession of uncommon rare or endangered aspects of our cultural or natural history (rarity).

With the changes in technology and economies of petroleum production, shipment and use, the Altona Refinery is one of a diminishing number of plants of its type in Australia. Of a total of eleven refineries that have operated in Australia, only four are continuing with future production. Modifications and improvements to manufacturing processes are likely to see further replacement of original or early fabric so that the heritage of the first phase of refining is likely to disappear in the future.

Criterion C: Potential to yield information that will contribute to an understanding of our cultural or natural history (research potential).

Potential educational or research value is as yet unrealised, however, mid-twentieth century petroleum refining technology and refinery design has not been extensively studied, and so the remaining buildings and plant have potential to contribute to our understanding of the development and importation of technologies.

Criterion D: Importance in demonstrating the principal characteristics of a class of cultural or natural places or environments (representativeness).

The Altona Refinery is one of a very small group of very large integrated petrochemical plants in Australia, and could be considered typical of the class.

Criterion E: Importance in exhibiting particular aesthetic characteristics (aesthetic significance).

The aesthetic qualities of the functional industrial design of refineries have been recognised both within the Mobil Company and its precursors, and in the wider community. Artistic renderings of the plant have been commissioned for company publications, commemorative plaques, the photographs 0f Wolfgang Sievers of the plant are held in many gallery collections, and the plant has been subject of painting, photography and even needlepoint.86

Criterion F: Importance in demonstrating a high degree of creative or technical achievement at a particular period (technical significance).

The development of refining technology in Australia was primarily due to importation of overseas designs, plant and expertise. Altona Refinery was described as the most modern in the world when it was upgraded in the 1950s. The Thermofor Catalytic Cracker is believed to the only plant of this specific design in Australia.

Criterion G: Strong or special association with a particular community or cultural group for social, cultural or spiritual reasons. This includes the significance of a place to Indigenous peoples as part of their continuing and developing cultural traditions (social significance).

The refinery has played a significant role in the development of the local area and has had a strong influence on the lives of local people, both as a source of employment and prosperity, and as a subject of concern in relation of the dangers of proximity and pollution. As a result the site has figured strongly as a social concern in the community.

86 See for example National Gallery collection http://www.ngv.vic.gov.au/col/work/13666; Mark Ogg's paintings of the refinery a http://www.bindarri.com.au/mark-ogge/ and Jessie Dean's cross stich http://jessiedeane.com/?portfolio=altona- refinery-view-from-kororoit-creek-road

Criterion H: Special association with the life or works of a person, or group of persons, of importance in our history (associative significance).

While a number of Standard/Vacuum and Mobil personnel and managers have had strong associations with the site, no specific person of historical interest has yet been identified.

5.3 Significant Elements

The major elements of the Altona Refinery, together with their assessed levels of significance, are described in section 3 above. The locations of significant elements are shown in Figure 72.

Table 2: individual significant elements

Item Significance Significance level

Administrative building 1948 Represents original phase – material Primary significance shortage, first offices

Switch and Compressor House 1948 One of few original control buildings Primary significance

Storage tanks 1948 Number of earliest tanks in bitumen Primary significance and lubricant area

Distillery and bitumen plant 1948 Gantries, furnaces and piping reflects Primary significance original main production

Lubricating oil warehouse 1948 Reflects original main production Primary significance

Drum filling building 1948 Reflects original main production Primary significance

Thermofor Catalytic Cracker (TCC) 1953 Tallest structure in site – revolutionised Primary significance petrol production in Australia

Solutizer 1953 Secondary process plant related to Contributory operation of TCC significance

Amenities (canteen and auditorium) Reflects high level of worker amenity Primary significance 1953 introduced under the 'American system'' of industrial relations

No 3 Change room 1953 Reflects high level of worker amenity Primary significance introduced under the 'American system'' of industrial relations

Laboratory 1956 Represents the process of research Contributory and product improvement significance

Boiler House 1956 Adaptation to more efficient Contributory technology in second phase of significance operation

Mechanical Workshop 1950s Demonstrates role of on-going repair, Contributory maintenance and improvement significance

Warehouse / Fire Station1950s Storage building of unusual Primary significance provenance (ex-hangar)

Item Significance Significance level

Cooling Towers 1953-6 Specialist structures with vast Primary and quantities of timber employed secondary significance

Horton Spheres 1954 – relocated 1970s Distinctive and unusual aesthetic Contributory shaped storage tanks significance

Fluidised Catalytic Cracker(FCC) 1998 Reflects modernisation of works in Contributory 1990s. significance

A Street Lubricating oil warehouse Substation 3

Drum filling Wagon filling Stores B Street

Distilery & Laboratory Bitumen Plant Lube oil blending No 2 Crude Unit

Administrative building Venture Building

7th Street

Storage Tanks

Millers Road #3 Reformer Switch & Compressor House C Street TCC

Boiler House FCC Warehouse/ Auditorium firestation #1 Reformer 5th Street Cooling towers No 1 Crude Unit Amenities Canteen

#2 Reformer LPG

D Street 4th Street Altona rail line Horton spheres Mechanical Workshop

2nd Street Blowdown & Flare Pegasus building No 3 Change Room Main o!ce Cooling towers CCB Solutizer LPG Kororoit Creek Road

3rd Street

KEY 000 Photo number & direction

Structures

Roadways

HO202 extent

Project 1870610/11/2014 drawn GV Figure 72: Locations of signi"cant elements and management actions

6 Conservation Policies Guidelines and Actions

6.1 Purpose of the conservation policy

The policies in this section provide direction and guidelines for the future use, conservation and possible adaptation or redevelopment of the site and its component parts, in a manner that addresses the significant elements in the context of an operating facility with considerable constraints on management of fabric. Accordingly, the directions and guidelines included here should be considered in determining future strategies and outcomes for the Altona Refinery.

The following conservation policy and management plan has been developed on the basis of the preceding assessment of the cultural heritage significance of the place and the policies take into account key issues and opportunities arising from the cultural significance of the Altona Refinery, the Burra Charter guidelines, statutory requirements and the physical condition and integrity of major components. 6.2 Terminology and Methods

This Conservation Management Policy has been prepared in accordance with the Australia ICOMOS Burra Charter (Australia ICOMOS 1999 revision - see Appendix 2) and the methodology outlined in Kerr’s The Conservation Plan. The assessment of cultural significance has been primarily compiled using these documents.

The conservation terminology used in this report is of a specific nature, defined in the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter) as endorsed by the Australian Heritage Commission. The terms most frequently referred to are: place, cultural significance, fabric, conservation, preservation, restoration, reconstruction and adaptation. These terms are defined in the charter as follows:

Place means site, area, land, landscape, building or other work, group of buildings or other works, and may include components, contents, spaces and views. Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations. Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects. Fabric means all the physical material of the place including components, fixtures, contents and objects. Conservation means all the processes of looking after a place so as to retain its cultural significance. Maintenance means the continuous protective care of the fabric and setting of a place, and is to be distinguished from repair. Repair involves restoration or reconstruction. Preservation means maintaining the fabric of a place in its existing state by removing accretions or by reassembling existing components without the introduction of new material. Restoration means returning the existing fabric a place to a known earlier state and is distinguished from restoration by the introduction of new material into the fabric. Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the introduction of new material into the fabric. Adaptation means modifying a place to suit the existing use or a proposed use. Use means the functions of a place, as well as the activities and practices that may occur at the place. Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal, impact on cultural significance. Setting means the area around a place, which may include the visual catchment. Related place means a place that contributes to the cultural significance of another place. Related object means an object that contributes to the cultural significance of a place but is not at the place. Associations mean the special connections that exist between people and a place. Meanings denote what a place signifies, indicates, evokes or expresses. Interpretation means all the ways of presenting the cultural significance of a place.

6.3 Statutory Requirements

Statutory heritage requirements relating to any future works in the Altona Refinery include provisions for permits for any works to places listed on the Hobsons Bay Heritage Overlay.

The panel report for Amendment C17 supported the extent of the exhibited HO149 (which encompassed all of the refinery site on the north east of the Miller Road and Kororoit Creek Intersection, and further recommended that:

The amendment of the statement of significance is proposed in section 5.2. As documented in Section 1.4, during preparation of the documents, Council advised that an incorporated document is not the appropriate regulatory mechanism to have in place to manage the heritage value of the Refinery and instead in agreement with Council, an application for a planning scheme amendment has been drafted to remove the heritage overlay. This CMP provides a detailed historic record of the Refinery.

There are no requirements under any other statutory regulations relating to heritage of the site. It is not included in the Victorian Heritage Inventory or Heritage Register under the Victorian Heritage Act 1995, or in the Commonwealth, National or World Heritage Lists under the Commonwealth EPBC Act. 6.4 Opportunities and Constraints resulting from Significance

6.4.1 Need for the works Mobil Refining Australia has prepared a letter to Hobsons Bay City Council explaining the nature of works at the Refinery, the adverse impact the heritage overlay has on facilitating those works efficiently, and why these works cannot be done without impacting on the heritage fabric (see Appendix B). The main issues addressed include that "…decisions need to be made quickly in response to external market factors as well as internal funding opportunities and health and safety requirements". Heritage approvals through the planning permit process "…create uncertainty for the project approvals process and reduce the Refinery's ability to respond in the necessary timeframes to capitalize on funding opportunities." Funding for works at Mobil's Altona refinery is competitive within the wider ExxonMobil Asia Pacific region operations, so that delays in decision making may result in priorities being directed elsewhere and ultimately impact on the viability of the Altona Refinery. 87

Asbestos management is also identified as consideration for the need for removal of buildings no longer fit for occupancy. Containment of operations within the existing site also makes it necessary for decommissioned buildings and equipment to be demolished so that available space can be used for new buildings and plant.

Complexity of staging and managing demolition operations are hindered by inability to take advantage of timing and resource windows, with the example of the lost opportunity to gain efficiencies from an existing demolition project due to time frames for the planning permit requirements.

Mobil also refers to the Authority’s decision guidelines and justifications (22-01-11) used to assess and provide recent planning permits required under the heritage overlay, and considers that if the same

87 Letter from Murray Stanwix, Health and Environment Team Leader, Mobil Refining Australia, to Liza McColl, Statutory Planner Hobsons Bay City Council 20 August 2015 (see Appendix B)

decision guidelines and justifications were applied to all future works on the remaining buildings or plant regarded as having primary (heritage) significance, this work would also be permitted. The basis for this is:

1) all works at the Refinery “support the viability of the historic industrial use carried out on the site” or they would not proceed 2) where “there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation”, it does, unless works (including demolition) on redundant equipment is required to support the historic industrial use of the Refinery or there is a requirement to remove it for occupational health and safety reasons. 3) interpretation in the form of this CMP (supplemented with photography) provides adequate information about the historic use and development of the site

Mobil also explains that the completion of CMP, supplemented by the additional photography, meets the recording requirements that have been included in recent planning permits and thus the proposed planning scheme amendment does not result in the Refinery’s heritage record being diminished in anyway.

6.4.2 Management Mobil has current and future development programs which will impact on buildings and structures within the refinery. These include, but are not limited to, the following:

 Main Administration Building structural upgrade and refurbishment (completed late 2014)  Cooling Tower upgrade – (cooling tower No. 3 demolished and replaced 2014)  New boiler feed water tank installation (2015)  Pipeline surge mitigation projects and pipeline modifications  Various process unit capacity creep and debottleneck projects (2016-18)  Demolition of redundant buildings and plant to enable new facilities including: – Old TCC

– Maintenance workshop

– Auditorium and canteen

 New Crude truck receipt facilities

To keep pace with current technology, shifting market demands and to remain viable in the manufacturing sector, other unspecified and presently unknown developments are also likely to be required in the life of the refinery, which may include demolition and replacement of items identified as having heritage value.

Current plans for future use of the buildings and structures listed as ‘primary significance’ are provided in the following table.

Table 3: Management of primary significant buildings and structures

Elements of primary Significance Planned use / justification significance identified in CMP structurally sound building. Switch and One of few original This building is currently used as a substation. compressor house control buildings 1948 Storage tanks 1948 in Number of earliest The tanks in the lube oil blending and bitumen plant are heavily corroded and lube oil blending, tanks in bitumen and most are not fit for use. There is a shortage of storage tanks on site as well as a bitumen plant, rail lubricant area shortage of space for new equipment and plant. These tanks vary in condition. loading, near boiler Some of the tanks are used to store caustic and acid, some are not in use and house and west of No. require external and internal modifications if recommissioned, whilst others 2 cooling tower would require demolition and replacement, in order to increase the tank storage capacity onsite. During Turnarounds, when multiple units are shut for maintenance, wash-water is generally stored in tankage pending testing to determine if it can be reused / managed under the trade waste agreement on site or requires offsite treatment and disposal. Managing the wash-water onsite offers significant cost savings.

Tanks west of No. 2 cooling tower are currently in use. Distillery and bitumen Gantries, furnaces This fabric is redundant, taking up valuable space on site that could be used for plant 1948 and piping reflects new plant or equipment. original main production Lubricating oil Reflects original main No longer used as a lubricating oil warehouse or in original condition. Originally warehouse 1948 production clad in corrugated asbestos cement sheeting, it has recently been re-clad with clear corrugated plastic skylights. It is now used as a stores area / workshop and fire station. Workshop personnel will move into the main workshop on site following its internal refurbishment. Drum filling building Reflects original main Currently used as a construction workshop and store. This process is redundant 1948 production and there is no prospect of future adaptive reuse. Thermofor Catalytic Tallest structure in Planning permit provided for demolition of the TCC. The demolition of the TCC, Cracker 1953 site – revolutionised as assessed by an industrial heritage expert, is not considered to diminish the petrol production in overall historical significance of the heritage place. While removal of the Australia structure is considered to have some visual impact at a landscape scale and will result in loss of a major item of plant and evidence of a technology which was unique in the oil refining industry in Australia, the expert recognised that the refinery is an evolving industrial complex, and one where redundant plant is regularly upgraded or replaced over time, in order to ensure the ongoing viability of the operation. No 3 Change rooms Reflects high level of This building has been de-manned and is locked to prevent entry. It is 1953 worker amenity redundant equipment that has been replaced with change rooms in the CCB and introduced under the adjacent to the CCB. 'American system'' of industrial relations Amenities (canteen Reflects high level of Planning permit provided for its demolition in 2014 based on the fact that the and auditorium) 1953 worker amenity building is redundant, and there is no prospect of future adaptive reuse. All introduced under the office and ancillary functions are now accommodated elsewhere on the site and 'American system'' of the building is sited outside the refinery perimeter security fencing. In the industrial relations planning permit application, the consultant accepted there is a level of significance and therefore an impact as related to demolition, however considered the historical and social values and associations of the place as a whole (HO202) would not be undermined in any fundamental way by its demolition and commented this is the key consideration from a heritage perspective. The consultant also commented that the demolition of the building clearly would not have any impact on the technical/technological significance of the place. Warehouse / Fire Storage building of Currently in use as a warehouse and storage area. The building contains Station 1950s unusual provenance asbestos that is not currently exposed or posing a hazard, however it will (ex-hangar) eventually require safe removal of all hazardous material including structural changes to the roof to provide a safe working environment. No. 1 and No 2 Specialist structures Integrity of the towers to be inspected in 2015 Turnaround (October) with view of Cooling Towers 1953-6 with vast quantities their demolition and replacement with smaller and more energy efficient cooling of timber employed towers constructed of fibre-reinforced plastic are proposed to replace the

Elements of primary Significance Planned use / justification significance identified in CMP existing towers which will be demolished.

6.4.3 Community and Public Stakeholders While there is a community interest in the refinery operation due to the proximity of residential areas to the refinery in the Altona North area, and concerns for the potential risks associated with the refinery operation, there are only limited public stakeholder interests in relation to the heritage of the site. The National Trust, Engineering Heritage Victoria, Altona Historical Society and Chemical Engineers association, may all have an interest in the future conservation of the site.

The refinery, as a highly prominent local landmark and distinctive visual feature, also attracts considerable interest from photographers, artists and sightseers. For example, it has been the subject of numerous paintings and other artwork.

Figure 73: Altona Refinery view from Kororoit Creek Road, Jessie Deane, 2013.88

6.4.4 Future operation of the refinery It has been recognised in several documents (including the panel report to the C17 amendment and correspondence with the Hobsons Bay Council) (see Appendix 1) that the continuing operation of the refinery is critical to maintaining the cultural significance of the place. This is because of the limitations to other uses of the site should it be decommissioned, and the potential costs and health and safety requirements associated with the maintenance of redundant refinery infrastructure.

Social and cultural values are also demonstrated in the on-going provision of employment and relation of the site to the local community. The conservation of the heritage values of the site are to some extent dependent on the viability of its continuing operation.

Therefore, to facilitate ongoing operation, maintenance and development of the refinery, an appropriate record of significant fabric and of the historic use and development of the site in the form of a CMP and photography is seen as an appropriate form of conservation management.

In the event that the refinery were to close, however, reconsideration of the heritage value of remaining structures may provide opportunities for conservation of redundant items as part of interpretation of the site in any future use. For example, non-industrial structures and buildings may have adaptive reuse options, while even the industrial structures may potentially be recycled as public art, sculptural and heritage conservation as has been done in sites such as the New York High Line 89 or the Duisburg Nord Landschaftspark (landscape park) on the European Route of Industrial Heritage.90 Such reuse would be consistent under the guidelines of the Burra Charter, the Nizhny Tagil Charter for the industrial heritage and the Monterrey Charter for Industrial heritage conservation.

Figure 74: Example of industrial land reuse - Landschaftspark Duisburg-Nord.91

6.5 Conservation Policies

While the principal objectives of conservation policies are the maintenance and conservation of the cultural heritage values, in the case of the Altona Refinery the C17 amendment planning panel has determined that retention or conservation of the building fabric is not supported, and that the most important aspect of the site's heritage significance, was in its continued operation as a petrol refinery.

The preceding section identifies the operational constraints which may impact on the ability to retain and conserve buildings and plant in order to meet the objective of maintaining continuing operation of the site as a petrol refinery. Therefore the following policies have been developed to form management recommendations that strive to find a balance between facilitating the ongoing operation of the refinery whilst conserving the heritage value of the Refinery.

89 http://www.thehighline.org/ 90 http://en.landschaftspark.de/startseite

91 http://home.fotocommunity.de/ubecker/index.php?id=1278272&d=28813980

6.5.1 Conservation Works Normally, places identified as having heritage value would be conserved in a manner having regard for the principles of the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (The Burra Charter) as amended. However, conservation of significant elements of the Altona Refinery may be compromised by requirements for on-going operation, maintenance and reconstruction of plant and buildings.

Conservation works are seen as appropriate where on-going operations facilitate retention of plant and buildings. Where this is not possible, alternative mitigation in the form of photographic and archival recording and documentation is to be provided.

The principles of the Burra Charter provide guidance on the conservation and adaptation of places and elements of cultural heritage significance and form the basis of assessing the impacts of any proposed works at the Altona Refinery. A copy of the charter is included as an Appendix to this report.

In formulating these policies, the following principles of the Burra Charter have been uppermost:

Article 5: Conservation of a place should take into consideration all aspects of its cultural significance without unwarranted emphasis on any one at the expense of others.

Article 6: The conservation policy appropriate to a place must first be determined by an understanding of its cultural significance and its physical condition.92

A major aspect of the cultural significance of the place, which has been identified in the C17 amendment panel report as critical to the site, is its importance of maintaining on-going operation of the site.

6.5.2 Repairs & Maintenance All future repairs and maintenance to the elements of primary significance should be carried out within the principles established in the Burra Charter and in a manner consistent with the assessed significance of the place and individual elements, and the conservation policy.

Management Action 1: Major maintenance or interventionist works to the primary significant structures (for example the removal and /or replacement of plant, machinery and piping), which are likely to remove substantial fabric, should also be subject to the photographic recording and archival documentation condition above. Major maintenance or interventionist works should be defined as the removal and/or replacement of a substantial portion of the item, or addition of substantial new structure or fittings to an existing item. Any other day-to-day maintenance work can be carried out in accordance with these conservation policies without reference to a conservation specialist.

6.5.3 Exteriors Future works to the exteriors of the primary significant structures in the Altona refinery should have regard to the identified significance of the buildings and plant, and where appropriate, should be carried out having regard for the principles of the Australia ICOMOS Charter for the conservation of Places of Cultural Significance (The Burra Charter) as amended.

Management Action 2: Unpainted concrete block and cream brick walls, and aluminium or silver or white-painted pipework, storage tanks, vessels and other structures are the characteristic external finishes of the refinery. Where alterations of demolition are proposed, impacts these features will be managed through the photography recording as per other conditions.

92 See also Paragraphs 2.3 , 3.2.2 and 3.2.6 of the Guidelines to the Burra Charter: Conservation Policy in J. S. Kerr. The Conservation Plan. pp. 32-33.

6.5.4 Interiors No significant interiors were identified in respect of buildings at the Altona Refinery.

6.5.5 Setting & Curtilage Management of the Altona Refinery in the future should have regard for the site being an important local landmark and landscape element.

The extent of the refinery has been subject to changes over time. The curtilage under consideration in this CMP comprises the area within the heritage overlay.

6.5.6 Views, Vistas and Visual relationships Important views and vistas are key considerations in the conservation and management of heritage values.

There are several important views and vistas associated with the Altona Refinery including the views from Millers road from the north and Kororoit Creek Road from the west. These views should be considered with any future redevelopment.

Management Action 3: Where possible and practical, recognition and maintenance of viewing locations on adjacent roads and public areas, and provision for safe stopping by vehicles and pedestrians is encouraged. Visual impacts may also need to consider the need for screening the refinery from some directions, such as nearby houses, or habitat areas to the south.

6.5.7 New Buildings & Works Any new development and works in the Altona Refinery should have regard for the utilitarian character of the existing buildings and structures, and the industrial character of the place, including the historical form of development, the orientation of buildings, etc.

Health, safety and environment and process efficiency are key determinants in the design of new buildings and structures.

Management Action 4: Where possible, however, in considering potential new buildings, additions or works in the Altona Refinery, the bulk, scale and location of works should be considered in any new design. Given current proposals for demolition of the canteen and auditorium, consideration for future buildings which reflect the form, materials and design of these is encouraged.

6.5.8 Landscaping The character of the landscaped areas of the Altona Refinery has historically been that of formal lawns and decorative borders (for example around the Pegasus building) including planted specimen trees, formal edged roads, paths, lawn areas, etc., along with utilitarian and functional buildings and structures and hardstand.

Management Action 5: Future landscaping should have regard for this character.

6.5.9 Archival recording and documentation Before any demolition or new construction, which may impact buildings or structures of primary significance occurs, an archival record should be made.

Management Action 6: Prior to the demolition or alteration of buildings or any associated part of the buildings, plant and structures designated as "Primary Significance" on the site plan in Figure 72, historic archival records must be submitted to the Responsible Authority prior to the works occurring. The historic archival records must include the following:

a) Archival standard professional quality black and white, and a digital or video record of buildings, structures, features or landscape elements, including significant details and/or

interiors. This record is to be accompanied by a plan specifying the location and aspect of all photographs.

b) A report detailing the history, description and operation of the item and a concise description and a report detailing the history, description and operation of the item (to the extent that it can be identified).

c) Where available, copies of original design and construction drawings should be included in the archival documents. Process diagrams showing the way that relevant plant and machinery operated and its place in the overall production should also be included where available.

d) Where multiple items of a similar type, such as steel storage tanks of the same capacity, are to be demolished, photography and archival recording need only be undertaken for a typical example of the type.

N.B. Items a. b) &c) have been partly achieved through the preparation of this Conservation Management Plan, and apart from the potential for further original plans, documents or historic photographs to be found, the CMP should be considered a sufficient standard to meet these requirements.

While the CMP process has compiled available historical records, if additional original design and construction drawings are identified in the future, these should also be included in the archival documents. Process diagrams showing the way that relevant plant and machinery operated and its place in the overall production should also be included where available.

Six copies of the completed package of archival photos and report must be lodged with the Responsible Authority for inclusion in the Council’s local history collection and other suitable repositories. Copies should be submitted to Council's Records Management System (2 copies), the Hobsons Bay Library, the Public Records Office Victoria, State Library of Victoria and Altona Historical Society.

The documentation should be prepared to Heritage Victoria standards for recording for heritage places and objects93 or other appropriate standards set by responsible authority.

N.B. Items 1. b) &c) have been partly achieved through the preparation of this Conservation Management Plan, and apart from the potential for further original plans, documents or historic photographs to be found, the CMP should be considered a sufficient standard to meet these requirements.

6.5.10 Interpretation An interpretation plan is recommended as part of the recording process where significant buildings or structures are demolished or substantially altered.

Management Action 7: The interpretation plan is intended to communicate information recorded for items that are demolished, and should take the form of publically accessible material such as publications in the form of a booklet or brochure, display or exhibition material, describing the history and operation of the refinery, and explaining the changes to the refinery over time. This would also document the demolition of any buildings and plant. Material might be made available to the public through the City of Hobson's Bay and local libraries.

93 'Photographic Recording for Heritage Places and objects', Technical Note prepared by Renée Gardiner for Heritage Victoria, Department of Planning and Community Development. http://www.dpcd.vic.gov.au/__data/assets/pdf_file/0011/133769/Photographic_Recording_Tech_Note.pdf

This CMP and existing archival recording of recently demolished buildings in part satisfies this requirement. Additional photography proposed as part of managing demolition and alteration of primary significant elements will fulfil this requirement.

6.5.11 Archaeological investigation It is unlikely that significant archaeological remains would be present on the site.

6.5.12 Updating Heritage Listings Heritage listings for the precinct need to reflect the nature and extent of significant features and buildings, along with a suitable curtilage.

Existing Archival recording photography and the CMP adequately records the primary significant buildings and structures and therefore listing is not required.

6.5.13 Implementation and Review of the Conservation Policy Exxon Mobil or any other future managers of the site should be responsible for the implementation of the Conservation Plan.

Exxon Mobil, as the managers of the site, should have overall responsibility for the implementation of the conservation plan.

7 Bibliography

Allom Lovell & Associates Conservation Architects, 2002, Hobsons Bay Planning Scheme Amendment C17, Submission to the Panel and Advisory Committee on the proposed inclusion of Mobil’s Yarraville Terminal & Altona Refinery in The Schedule to the Heritage Overlay, prepared for URS Australia, on Behalf of Mobil Refining Australia

Allom Lovell & Associates. Submission on the Proposed Inclusion of Six Storage Tanks and the Packaging Store Building at Shell Australia Newport Terminal Newport in Amendment L14 to the Hobsons Bay Planning Scheme. 1999.

Australian Stats: Special Article, ‘Clothing, Food and Petrol Rationing during World War 2’.

Austehc , Technology in Australia 1977-1988, 1988 Print Edition page 702, Online Edition 2000, Published by Australian Science and Technology Heritage Centre, http://www.austehc.unimelb.edu.au/tia/669_image.html

City of Footscray and Braybrook, Forging Ahead, Melbourne, 1947.

Davidson, Graeme, Hirst, John and MacIntyre, Stuart, Oxford Companion to Australian History. Revised Edition. Oxford University Press. 2001.

Exxon Mobil University - Altona Refinery History. Document provided by Mobil.

ExxonMobil. (2014). ExxonMobil Altona Refinery. Retrieved 10 13, 2014, from ExxonMobil Australia: http://www.exxonmobil.com.au/australia-english/pa/about_what_rs_altona.aspx

ExxonMobil. (2014). Mobil History. Retrieved 10 13, 2014, from ExxonMobil Australia: http://www.exxonmobil.com.au/australia-english/pa/about_who_history_mobil.aspx

ExxonMobile. (2014). ExxonMobil Fuelling Victoria for 60 years. Retrieved 10 13, 2014, from ExxonMobile Australia: http://www.exxonmobil.com.au/australia- english/pa/about_what_rs_anniversary_60.aspx

Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study Stage One. Volume 1, Place Schedules & Cost Estimates; Volume Two, Environmental History: A History of the Physical Development of the City of Hobsons Bay. Prepared for the Hobsons Bay City Council. Melbourne. 1999.

Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study Stage Two.

Hobsons Bay Planning Scheme Amendment L14: Report of the Panel & Advisory Committee. February 2000.

Kerr, James Semple, The Conservation Plan: a guide to the preparation of conservation plans for places of European cultural significance, 7th Addition, Australia ICOMOS, 2013.

Lovell Chen, 2002, Hobsons Bay Planning Scheme Amendment C17, Submission to the Panel and Advisory Committee on the Proposed Inclusion of Mobil’s Yarraville Terminal & Altona Refinery in the Schedule to the Heritage Overlay. prepared for URS AUSTRALIA on behalf of MOBIL REFINING AUSTRALIA

Marioli, F. (1993). Mow Mobile is Mobil: A case study of the modernization of Mobil's Altona refinery, Mobil's threat of relocation and its effect on the State Government's decision making process. Melbourne: University of Melbourne.

Marquis-Kyle, P., & Walker, M. (1992). The Illustrated Burra Charter: Making Good Decisions about the Care of Important Places. Brisbane: Australia ICOMOS.

Melbourne Harbour Trust Commissioners Jubilee Report, 1877-1927. The Commissioners, Melbourne, 1927.

Mobil Oil Australia Limited / Kinhill Engineers Pty Ltd. Altona Refinery Modernization Programme: Environmental Management Plan.

Mobil. Archival material relating to both sites, including architectural and plant drawings and photographs. - access assisted by Exxon Mobil archivists Debbie Dodd and Sonazi Sallay.

Pearson, M., & Sullivan, S. (1995). Looking after Heritage Places: the Basics of Heritage Planning for Managers, Landowners and Administrators. Carlton: Melbourne University Press.

Pratt, Ambrose (ed.). National Handbook of Australia’s Industries. Specialty Press, Melbourne, 1934.

Priestley, Susan. Altona: A Long View. Hargreen. Melbourne. 1988.

Priestley, Susan. Making Their Mark. Fairfaix, Syme and Weldon. Sydney. 1984.

Sands and McDougall Melbourne Directories (various years)

Shell Company of Australia. Eighty Years at Newport, 1916-1996. Melbourne. 1996.

Standard-Vacuum Refining Company (Australia). Altona Story. [Melbourne, c. 1955?].

Standard-Vacuum Refining Company (Australia, Refinery Operations Manual, Chapter III, Process Operations at the Altona Refinery of Standard-Vacuum Refining Company Limited. n.d. [c. 1955?].

Strahan, Lynne. At the Edge of the Centre: A History of Williamstown. North Melbourne. 1994.

Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950.

Vines, Gary (Melbourne’s Living Museum of the West) with Ward, Andrew (Andrew Ward and Associates). Western Region Industrial Heritage Study. Prepared for the Ministry for Planning and Environment. Melbourne. 1989.

Vines, Gary. Assessment of Early Oil Company Installations, Newport and Spotswood. Melbourne's Living Museum of the West Inc. October 1999.

Wilkinson, Rick. A Thirst for Burning: The Story of Australia’s Oil Industry. David Ell Press. Sydney.

Year Book Australia. 1945. www.pandora.nla.gov.au.

Appendices

Appendix A Hobsons Bay Council Letter from Council 15.07.14 Alternative mechanisms to permits

Appendix B Draft Letter from Council 10 August 2014 Planning scheme Amendment

Mobil Refining Australia Pty Ltd ABN 48 004 300 163 Altona Refinery Cnr Millers & Kororoit Creek Roads Altona, Victoria 3018 PO Box 40 Altona, Victoria 3018 61 3 9286 5666 Telephone

20 August, 2015

Attention: Liza McColl – Statutory Planner; Ben Hynes – Statutory Planning Coordinator

Hobsons Bay City Council PO Box 21 Altona 3018

Dear Liza and Ben,

Altona Refinery – Planning Scheme Amendment to remove permit trigger for heritage overlay This letter, requested by Council at a meeting held on 24 June 2015, is provided to support the ‘Conservation Management Plan’ (CMP) and ‘Incorporated Plan’ drafted by Industrial Heritage Consultant Gary Vines, and recently submitted with C107 planning scheme amendment application by Tract Consulting (21 May 2015). As discussed, Mobil’s position is that removing the Heritage Overlay via the Planning Scheme Amendment will provide significant benefits to both Altona Refinery and Hobsons Bay Council, by removing the time, resources, energy and costs in managing individual planning applications for the site on an ad-hoc basis. The planning controls detailed under Special Use Zone 2 will be unaffected by the proposed amendment. The Planning Scheme Amendment to remove the heritage overlay reflects that Altona Refinery is an important and dynamic local business that should be afforded the operational flexibility possessed by other businesses in Victoria. The refinery’s opportunities to grow and change to support our ongoing operation and local employment, should not be constrained by our long and proud history in Altona. Purpose of CMP and Planning Scheme Amendment The CMP provides a detailed historic record of the Refinery and identifies its ‘significant fabric’, including buildings and structures of ‘primary significance’. Compilation of a historic record provides a balance between achieving the conservation objectives by appropriately recording the site’s history while recognising that the facility’s economic viability and compliance with occupational health and safety requirements is contingent on the Refinery being able to regularly maintain and upgrade plant and equipment. The historic record provides information that would otherwise be provided to meet planning permit requirements and is thus proposed to take the place of the information otherwise provided to meet permit requirements with view of completely removing the heritage overlay (HO202). Background The Refinery is recognised for its significant contribution to the economy since its first production in 1949 until today. It remains one of the States most important industrial facilities, supplying around half of Victoria’s fuel needs, providing hundreds of jobs on site and indirectly supporting thousands of additional jobs in the community, while contributing millions of dollars in taxes and rates to the government each year. In order to ensure the ongoing viability of the facility and to maintain a safe working environment, as required under the Occupational Health and Safety Act 2004, the Refinery must continue to regularly upgrade, maintain and replace redundant plant and buildings.

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The Refinery is a complex industrial site, where at times decisions need to be made quickly in response to external market factors as well as internal funding opportunities and health and safety requirements. The planning permit process is overly restrictive, provides uncertainty in the project approvals process and reduces the Refinery’s ability to respond in the necessary timeframes to capitalise on funding opportunities. Each year, the Refinery presents its business plan to its shareholder that reviews and funds Refinery and Supply projects in the Asia Pacific region and applies for Capital Expenditure (CAPEX) and Operational Expenditure (OPEX) funding to achieve its business plan objectives. Mobil’s shareholder (ExxonMobil Global Directors) prioritises funding in the region and allocates funds to the ExxonMobil refineries operating in the Asia Pacific region based on a range of considerations, such as the likely return on investment and regulatory compliance drivers. This funding process is incredibly competitive and requires the Altona Refinery to continually scrutinise spending and budgets. In addition, funding decisions take into account timing and the ability of refineries to execute CAPEX and OPEX plans. As is the case with many businesses, a delay in meeting these plans does not automatically imply that funds are transferred to outer years. To that end, an ability to develop plans and then execute within an appropriate time frame is what helps Altona Refinery maintain a competitive edge in a challenging business environment. One of the ways that Altona Refinery can sustain this advantage is to operate in an environment where regulatory controls are clear, unambiguous and easy to navigate. Another way to consider this is Altona Refinery seeks to operate in an environment where regulations don’t place an undue burden on the site when compared to its competitors. The difficulties faced by the manufacturing sites, and particularly refineries, in Australia are well documented. The Altona Refinery is one of the smallest refineries operating in the Asia Pacific region and it must compete for funding with much larger sites which benefit from an economy of scale, lower salaries and lower currency. Altona must offset these disadvantages by innovating and continually upgrading and adopting new technology to meet market demands. Maintaining redundant plant and buildings that are no longer fit for occupancy or purpose is an additional pressure and obstacle for Mobil to overcome to remain competitive. Asbestos is present in many of the older ‘primary significant’ buildings and structures on site. These buildings and structures are being maintained and the asbestos is being managed to ensure there is no risk of exposure, however they will deteriorate to a point where they can no longer be maintained and are no longer fit for occupancy or to remain on site, requiring eventual removal. To contain operations within the perimeter of the site, and to avoid expansion beyond the current site boundaries, it is also necessary for decommissioned buildings and equipment to be demolished so that available space can be used for new buildings and plant. Case Study 1 In 2014 the Refinery had an opportunity in late November to demolish the redundant Solutizer, Canteen and Auditorium with some surplus funds. A demolition contractor was on-site completing works on another demolition project, so there were additional efficiencies associated with using this same contractor for the additional demolition. The demolition of the Solutizer did not proceed because the required planning permit, even if provided within the statutory timeframe, added time (and uncertainty as to the timing) to the schedule that did not allow for the works to be completed within the refinery’s budget year. A permit was received to demolish the Canteen and Auditorium, however due to the time taken to prepare an application and receive a permit, the work could not be completed within the necessary timeframe to secure funding. The budget and these opportunities were thus lost. The work has been postponed until funding can be secured (cost estimate to demolish canteen and auditorium is $400,000 with no return on investment; demolition of the Solutizer has not yet been costed). Refinery Project Approval Process Projects are nominated based on an assessment of opportunities consistent with business strategies, plans and objectives. Projects require approval at multiple stages as they are developed from 1) project nomination, 2) option evaluation; 3) option selection and development; 4) detailed design/construct to, 5) operate. Funding is approved by different ExxonMobil locations and levels of authority depending on the level of funding required. To be approved, each project must have a sound business case or is required by law (regulatory or safety requirement). For this reason, projects are generally fast-tracked to capitalise on the business opportunity and minimise the time taken for a return on investment or in order to meet regulatory / safety requirements as soon as reasonably practical. Preparation of a basic planning permit application and completion of conditions (recording) can cost

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$10,000 – $15,000 and take 2 - 3 months to complete or for a more complex project such as the TCC, the total permit costs are up to $90,000 and take much longer to complete. Information required to support planning permit applications is generally not available until late in the project approval process (detailed design/construct). At this stage there has been a significant investment in the project, yet the Project Manager must submit the planning permit application without any assurance that the permit will be granted, and if granted what conditions must be met. Often the permit conditions must be met prior to project construction which without knowing the conditions is impossible to accurately schedule. Resources required for the construction stage (including scheduling people, materials and equipment) cannot be secured until the approvals process is certain. At stage 4 (detailed design), any prior delays in the project schedule cannot be recovered and therefore any delays in the permitting process can impact on the final project deadline. There are some projects that have no flexibility in their schedule and delay could result in cancellation of a project or significant financial penalties. Case Study 2 Delays to the Condensate Truck Facilities Unloading project, designed to enable the Refinery to receive condensate from land-locked gas fields in Victoria, would have resulted in significant financial penalties because of the contract structure which provided Origin with unilateral ability to trigger Phase II construction and commissioning. This was necessary to secure the contract with Origin whom required certainty that a) the condensate could be received when drilling commenced and; b) for Origin’s gas drilling schedule. The Truck Condensate Unloading Facility is thankfully not within the area covered by the heritage overlay and as such a planning permit was not required for heritage reasons, nevertheless it is a recent example of a project that if delayed by the planning permit process, would result in severe financial penalties and a significant impact on the Refinery. Consistency with Council’s Industrial Heritage Places Policy – 22.01-11 Mobil recognises the Refinery’s heritage significance and has made a significant contribution in both time and money to preserve this heritage value through the CMP and other recording work (an estimated $100,000 over a 12 month period thus far). Council provided planning permits for demolition of primary significant buildings/structures at the Refinery in 2014. The recording requirements in the planning permits are mirrored in the Incorporated Plan and thus the proposed planning scheme amendment does not result in the Refinery’s heritage record being diminished in anyway. The structures of primary significance and the Refinery in general have never been open for general public access. While operational and if closed, during decommissioning and remediation works, the Refinery will not be publically accessible for health and safety reasons, therefore recording the heritage value in the form of a CMP is a better tool to increase awareness about the importance of industrial heritage in the municipality. Further, Mobil believes that providing the recording work as one complete package rather than piece-meal as permits are provided over time, will ensure a higher quality and more complete recording package is more readily accessible and available to interested parties. The decision guidelines for permits required by the Heritage Overlay specify considerations for the Responsible Authority to consider, as appropriate before deciding on a planning permit application. Justification for the recent permits provided with regards to these decision guidelines is provided in Table 1. This justification applies to all proposed works or demolition on site and demonstrates that the CMP, in place of a permit, would satisfy the Council’s policy requirements.

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Table 1: Justification for provision of planning permit required by the Heritage overlay

Decision guideline (22-01-11) Justification that the CMP meets permit requirements

Whether the proposed 1) The permitted works and all proposed buildings, works or buildings, works or demolition undertaken onsite ‘support the viability of the historic demolition will support the industrial use carried out on the site’ or they would not receive viability of the historic funding. industrial use carried out on the site.

Whether there is an 2) Where there is an opportunity for redundant equipment to remain opportunity for redundant in-situ, it does, unless the works will support the historic industrial equipment to remain in-situ use carried out on the site as per 1). This is simply because it as historic evidence or for would not get funding unless its removal ‘would support the viability interpretation. of the historical industrial use carried out on the site’ or is a requirement for occupational health and safety reasons.

Whether the proposed 3) Gary Vines, Industrial Heritage Consultant, considers the CMP interpretation will provide meets the conditions recommended in the Incorporated Plan with adequate information about the exception of the photographs (“archive standard professional the historic use and quality black and white, and/or a digital or video record of buildings, development of the site. structures, features or landscape elements, including significant details and/or interiors. This record is to be accompanied by a plan specifying the location and aspect of all photographs”).

Mobil has agreed to commission the photography.

Case Study 3 Recently Mobil has received planning permits to demolish the TCC and the Canteen and Auditorium, both listed as ‘primary significant’ structures/buildings. The conditions included in the planning permits relating to recording the heritage significance are copied into the table below with the conditions included in the incorporated plan to demonstrate that the CMP and associated recording work does not in any way diminish the heritage controls currently being placed on the Refinery’s significant buildings/structures via the permitting process. Incorporated Plan conditions 1. b), c) & d) have been achieved through the preparation of the Conservation Management Plan commissioned by Mobil Australia, prepared by Gary Vines of Biosis Pty Ltd in 2015, and apart from the potential for further original plans, documents or historic photographs to be found, the CMP should be considered a sufficient standard to meet these requirements. Mobil has agreed to commission the photography as required under condition 1a) to facilitate complete removal of the heritage overlay.

Elements of primary Significance Planned use / justification significance identified in CMP Administrative Represents original Currently used as a medical / nurse station, a gym room and as an office for building 1948 phase – material the Alliance contractor project team. Whilst the building is currently being shortage, first offices maintained, its condition is deteriorating and it will eventually reach a point where it can no longer be maintained to an acceptable standard for occupancy. The building contains asbestos that is not currently exposed or posing a hazard, however if significant repairs are required it will require the building to be rapidly de-occupied and major alterations and probably demolition to provide a structurally sound building. Switch and One of few original This building is currently used as a substation. compressor house control buildings 1948 Storage tanks 1948 in Number of earliest The tanks in the lube oil blending and bitumen plant are heavily corroded and lube oil blending, tanks in bitumen and most are not fit for use. There is a shortage of storage tanks on site as well as bitumen plant, rail lubricant area a shortage of space for new equipment and plant. These tanks vary in

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Elements of primary Significance Planned use / justification significance identified in CMP loading, near boiler condition. Some of the tanks are used to store caustic and acid, some are not house and west of No. in use and require external and internal modifications if recommissioned, 2 cooling tower whilst others would require demolition and replacement, in order to increase the tank storage capacity onsite. During Turnarounds, when multiple units are shut for maintenance, wash-water is generally stored in tankage pending testing to determine if it can be reused / managed under the trade waste agreement on site or requires offsite treatment and disposal. Managing the wash-water onsite offers significant cost savings.

Tanks west of No. 2 cooling tower are currently in use. Distillery and bitumen Gantries, furnaces This fabric is redundant, taking up valuable space on site that could be used plant 1948 and piping reflects for new plant or equipment. original main production Lubricating oil Reflects original main No longer used as a lubricating oil warehouse or in original condition. warehouse 1948 production Originally clad in corrugated asbestos cement sheeting, it has recently been re- clad with clear corrugated plastic skylights. It is now used as a stores area / workshop and fire station. Workshop personnel will move into the main workshop on site following its internal refurbishment. Drum filling building Reflects original main Currently used as a construction workshop and store. This process is 1948 production redundant and there is no prospect of future adaptive reuse. Thermofor Catalytic Tallest structure in Planning permit provided for demolition of the TCC. The demolition of the Cracker 1953 site – revolutionised TCC, as assessed by an industrial heritage expert, is not considered to petrol production in diminish the overall historical significance of the heritage place. While Australia removal of the structure is considered to have some visual impact at a landscape scale and will result in loss of a major item of plant and evidence of a technology which was unique in the oil refining industry in Australia, the expert recognised that the refinery is an evolving industrial complex, and one where redundant plant is regularly upgraded or replaced over time, in order to ensure the ongoing viability of the operation. No 3 Change rooms Reflects high level of This building has been de-manned and is locked to prevent entry. It is 1953 worker amenity redundant equipment that has been replaced with change rooms in the CCB introduced under the and adjacent to the CCB. 'American system'' of industrial relations Amenities (canteen Reflects high level of Planning permit provided for its demolition in 2014 based on the fact that the and auditorium) 1953 worker amenity building is redundant, and there is no prospect of future adaptive reuse. All introduced under the office and ancillary functions are now accommodated elsewhere on the site 'American system'' of and the building is sited outside the refinery perimeter security fencing. In the industrial relations planning permit application, the consultant accepted there is a level of significance and therefore an impact as related to demolition, however considered the historical and social values and associations of the place as a whole (HO202) would not be undermined in any fundamental way by its demolition and commented this is the key consideration from a heritage perspective. The consultant also commented that the demolition of the building clearly would not have any impact on the technical/technological significance of the place. Warehouse / Fire Storage building of Currently in use as a warehouse and storage area. The building contains Station 1950s unusual provenance asbestos that is not currently exposed or posing a hazard, however it will (ex-hangar) eventually require safe removal of all hazardous material including structural changes to the roof to provide a safe working environment. No. 1 and No 2 Specialist structures Integrity of the towers to be inspected in 2015 Turnaround (October) with view Cooling Towers 1953-6 with vast quantities of their demolition and replacement with smaller and more energy efficient of timber employed cooling towers constructed of fibre-reinforced plastic are proposed to replace the existing towers which will be demolished.

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Table 2: Conditions included in recent planning permits for ‘primary significant’ buildings/ structures and conditions included in the Incorporated Plan.

Thermofor Catalytic Cracker (TCC) PA 1430364 Canteen and Auditorium PA1430387 Biosis ‘Incorporated Plan’ Conditions (prepared by Gary Vines March 2015)

Condition 2: Prior to the commencement of any works Condition 2: Prior to the commencement of any Prior to the demolition or alteration of buildings or associated with the demolition of the facility hereby works associated with the demolition of the building any associated part of the buildings, plant and approved, the owner must prepare an archive hereby approved, the owner must document the structures designated as "Primary Significance" standard professional quality black and white canteen/auditorium building. on the site plan attached, historic archival records photographic record of the Thermofor Catalytic must be submitted to the Responsible Cracker tower, to the Satisfaction of the Responsible Black and white, and colour photos must be provided Authority prior to the works occurring. The Authority. prepared (sic) by a professional photographer, who historic archival records must include the specialises in the documentation of buildings. following: An electronic copy of these photos must be submitted to and approved by Council. An electronic copy of these photos must be a) Archival standard professional quality black submitted to and approved by Council. and white, and/or a digital or video record of This record is to be accompanied by a plan specifying buildings, structures, features or landscape the location and aspect of all photographs and by a This record is to be accompanied by a plan elements, including significant details and/or data sheet for each element detailing its history (to the specifying the location and aspect of all photographs, interiors. extent that it can be identified) and a concise and by a data sheet for each element detailing its description. history (to the extent that it can be identified) and a This record is to be accompanied by a plan concise description. specifying the location and aspect of all photographs.

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Thermofor Catalytic Cracker (TCC) PA 1430364 Canteen and Auditorium PA1430387 Biosis ‘Incorporated Plan’ Conditions (prepared by Gary Vines March 2015) b) A report detailing the history, description and Condition 3: Within 12 months of the commencement Condition 3: Within 6 months of the date of issue of operation of the item (to the extent that it can be of any demolition of the facility hereby approved, the this permit, the owner must prepare an interpretation identified). owner must prepare an interpretation / recording / recording package of the canteen/auditorium package of the Thermofor Catalytic Cracker tower, to building, to the satisfaction of the Responsible c) Where available, copies of original design and the satisfaction of the Responsible Authority. Authority. construction drawings should be included in the

archival documents. Process diagrams showing The record should also provide a record of the visual This package must be prepared in accordance with the way that relevant plant and machinery and cultural prominence, and social significance of the the standards required by Heritage Victoria. operated and its place in the overall production TCC in the context of Altona and surrounding area. should also be included where available. It must include an archive standard professional An attempt should be made to include interview quality black and white and colour photographic d) Where multiple items of a similar type, such as material from the works who were involved in the record of the building. steel storage tanks of the same capacity, are to be construction of the TCC tower. demolished, photography and archival recording Six copies of the completed package and report must need only be undertaken for a typical example of This package must be prepared in accordance with be lodged with the Responsible Authority for the type. the standards required by Heritage Victoria. inclusion in the Councils local history collection and other suitable repositories (i.e. State Library of Six copies of the completed package of archival It must include an archive standard professional Victoria/Public Records Office). photos and report must be lodged with the quality black and white photographic record of the Responsible Authority for inclusion in the facility submitted to the Responsible Authority in Council’s local history collection and other accordance with Condition 2. suitable repositories (i.e. State Library of Victoria/Public Records Office) at the council's Six copies of the completed package and report must discretion. be lodged with the Responsible Authority for inclusion in the Council’s local history collection and other suitable repositories (i.e. State Library of Victoria/Public Records Office).

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Thermofor Catalytic Cracker (TCC) PA 1430364 Canteen and Auditorium PA1430387 Biosis ‘Incorporated Plan’ Conditions (prepared by Gary Vines March 2015)

Condition 4: Within 6 months of the data of issue of Condition 4: Within 6 months of the data of issue of CMP and the actions above provide for this. this permit (or other timeframe agreed to by the this permit (or other timeframe agreed to by the Responsible Authority upon receipt of a written Responsible Authority upon receipt of a written request from the owner), the owner must prepare a request from the owner), the owner must prepare a comprehensive site history which includes the comprehensive site history which includes the following information: following information: . A well documented history of the site; . A well documented history of the site; . A well documented history of the functions of each . A well documented history of the functions of each section of the site; section of the site; . A history of all the existing towers and buildings . A history of all the existing towers and buildings with reference to their construction dates and with reference to their construction dates and recommendations/options from a heritage recommendations/options from a heritage viewpoint; viewpoint; . Methodologies available for the recording of the . Methodologies available for the recording of the structures and the site structures and the site . A collation of historic plans . A collation of historic plans . Relevant operating procedures . Relevant operating procedures . Oral history interviews with workers and the like . Oral history interviews with workers and the like . Any other information which will assist with this . Any other information which will assist with this assessment assessment

The site history must be prepared by a heritage The site history must be prepared by a heritage consultant with an industrial heritage background. The consultant with an industrial heritage background. report may take the form of a Conservation The report may take the form of a Conservation Management plan which will assist with the future Management plan which will assist with the future development of the refinery site and facilitate any development of the refinery site and facilitate any future planning permit applications and expediting any future planning permit applications and expediting future works. any future works.

Six copies of the site history must be lodged with the Six copies of the site history must be lodged with the Responsible Authority. Responsible Authority.

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Current and future plans that may Impact on heritage values Current plans for future use of the buildings and structures listed as 'primary significance' are provided in Attachment A. Funding is only approved for projects that have a sound business case, or if It is required for regulatory or occupational health and safety reasons (i.e. projects only get approval If they support the continued viability of the historic use of the site.) With so many external factors at play, it is difficult to forecast projects into the medium and long-term, however Mobil's Indicative plans are to invest over $60 million in current and planned projects in 2014- 15, and more than $30 million from 2016-18. Planned projects include "de-bottlenecking" projects seeking to increase the sites processing and throughput capacity, reliability projects to reduce vulnerability to power dips, and demolition projects to address safety risks to personnel, reduce maintenance costs of redundant facilities and make space available for new equipment and plant. Conclusion As previously mentioned, removing the Heritage Overlay via the Planning Scheme Amendment will provide significant benefits to both the refinery and Hobsons Bay Council, by removing the time, resources, energy and cost in managing individual planning applications for the site on an ad-hoc basis. In accordance with the Councils industrial heritage policy, the CMP and associated information is provided as a package to provide for the:

 The continued viability of the historic use of the site;  The balance between achievement of conservation objectives and economic viability, and occupational health and safety;  The conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment;  The retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it;  Keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority.

The CMP and Incorporated Plan have been completed in good faith, as agreed with Council at meeting of 7 July 2014 (see attachment B for meeting minutes, as accepted by Council), however Mobil accepts Council's recent advice that an incorporated document is not the appropriate mechanism to have in place if the Heritage overlay is to be removed entirely. On this basis and as agreed with Council, the current documentation prepared by Gary Vines (Industrial Heritage Consultant) will be re-packaged as a heritage report and submitted with the planning scheme amendment application for removal of the heritage overlay. Mobil trusts this provides sufficient justification to entirely remove the heritage overlay (H0202) in accordance with the planning scheme amendment. Page 9 of 11

Regards,

Murray Stanwix Health and Environment Team Lead Mobil Refining Australia

Appendix C: Burra Charter

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The Australia ICOMOS Charter for Places of Cultural Significance 2013

Australia ICOMOS Incorporated International Council on Monuments and Sites

ICOMOS Revision of the Burra Charter ICOMOS (International Council on Monuments The Burra Charter was first adopted in 1979 at the and Sites) is a non-governmental professional historic South Australian mining town of Burra. organisation formed in 1965, with headquarters in Minor revisions were made in 1981 and 1988, with Paris. ICOMOS is primarily concerned with the more substantial changes in 1999. philosophy, terminology, methodology and Following a review this version was adopted by techniques of cultural heritage conservation. It is Australia ICOMOS in October 2013. closely linked to UNESCO, particularly in its role under the World Heritage Convention 1972 as The review process included replacement of the UNESCO’s principal adviser on cultural matters 1988 Guidelines to the Burra Charter with Practice related to World Heritage. The 11,000 members of Notes which are available at: australia.icomos.org ICOMOS include architects, town planners, Australia ICOMOS documents are periodically demographers, archaeologists, geographers, reviewed and we welcome any comments. historians, conservators, anthropologists, scientists, engineers and heritage administrators. Members in Citing the Burra Charter the 103 countries belonging to ICOMOS are formed The full reference is The Burra Charter: The Australia into National Committees and participate in a ICOMOS Charter for Places of Cultural Significance, range of conservation projects, research work, 2013. Initial textual references should be in the form intercultural exchanges and cooperative activities. of the Australia ICOMOS Burra Charter, 2013 and ICOMOS also has 27 International Scientific later references in the short form (Burra Charter). Committees that focus on particular aspects of the conservation field. ICOMOS members meet © Australia ICOMOS Incorporated 2013 triennially in a General Assembly. The Burra Charter consists of the Preamble, Australia ICOMOS Articles, Explanatory Notes and the flow chart. The Australian National Committee of ICOMOS This publication may be reproduced, but only in its (Australia ICOMOS) was formed in 1976. It elects entirety including the front cover and this page. an Executive Committee of 15 members, which is Formatting must remain unaltered. Parts of the responsible for carrying out national programs and Burra Charter may be quoted with appropriate participating in decisions of ICOMOS as an citing and acknowledgement. international organisation. It provides expert advice as required by ICOMOS, especially in its Cover photograph by Ian Stapleton. relationship with the World Heritage Committee. Australia ICOMOS Incorporated [ARBN 155 731 025] Australia ICOMOS acts as a national and Secretariat: c/o Faculty of Arts international link between public authorities, Deakin University institutions and individuals involved in the study Burwood, VIC 3125 and conservation of all places of cultural Australia significance. Australia ICOMOS members participate in a range of conservation activities http://australia.icomos.org/ including site visits, training, conferences and ISBN 0 9578528 4 3 meetings.

The Burra Charter (The Australia ICOMOS Charter for Places of Cultural Significance, 2013)

Preamble the Charter. Explanatory Notes also form part of Considering the International Charter for the the Charter. Conservation and Restoration of Monuments and The Charter is self-contained, but aspects of its use Sites (Venice 1964), and the Resolutions of the 5th and application are further explained, in a series of General Assembly of the International Council on Australia ICOMOS Practice Notes, in The Illustrated Monuments and Sites (ICOMOS) (Moscow 1978), Burra Charter, and in other guiding documents the Burra Charter was adopted by Australia available from the Australia ICOMOS web site: ICOMOS (the Australian National Committee of australia.icomos.org. ICOMOS) on 19 August 1979 at Burra, South Australia. Revisions were adopted on 23 February What places does the Charter apply to? 1981, 23 April 1988, 26 November 1999 and 31 The Charter can be applied to all types of places of October 2013. cultural significance including natural, Indigenous The Burra Charter provides guidance for the and historic places with cultural values. conservation and management of places of cultural The standards of other organisations may also be significance (cultural heritage places), and is based relevant. These include the Australian Natural on the knowledge and experience of Australia Heritage Charter, Ask First: a guide to respecting ICOMOS members. Indigenous heritage places and values and Significance Conservation is an integral part of the management 2.0: a guide to assessing the significance of collections. of places of cultural significance and is an ongoing National and international charters and other responsibility. doctrine may be relevant. See australia.icomos.org. Who is the Charter for? Why conserve? The Charter sets a standard of practice for those Places of cultural significance enrich people’s lives, who provide advice, make decisions about, or often providing a deep and inspirational sense of undertake works to places of cultural significance, connection to community and landscape, to the including owners, managers and custodians. past and to lived experiences. They are historical records, that are important expressions of Using the Charter Australian identity and experience. Places of The Charter should be read as a whole. Many cultural significance reflect the diversity of our articles are interdependent. communities, telling us about who we are and the The Charter consists of: past that has formed us and the Australian landscape. They are irreplaceable and precious. • Definitions Article 1 • Conservation Principles Articles 2–13 These places of cultural significance must be • Conservation Processes Articles 14–25 conserved for present and future generations in • Conservation Practices Articles 26–34 accordance with the principle of inter-generational • The Burra Charter Process flow chart. equity. The key concepts are included in the Conservation The Burra Charter advocates a cautious approach Principles section and these are further developed to change: do as much as necessary to care for the in the Conservation Processes and Conservation place and to make it useable, but otherwise change Practice sections. The flow chart explains the Burra it as little as possible so that its cultural significance Charter Process (Article 6) and is an integral part of is retained.

The Burra Charter, 2013 Australia ICOMOS Incorporated — 1

Articles Explanatory Notes

Article 1. Definitions

For the purposes of this Charter:

1.1 Place means a geographically defined area. It may include Place has a broad scope and includes natural elements, objects, spaces and views. Place may have tangible and cultural features. Place can be large or small: for example, a memorial, a tree, an and intangible dimensions. individual building or group of buildings, the location of an historical event, an urban area or town, a cultural landscape, a garden, an industrial plant, a shipwreck, a site with in situ remains, a stone arrangement, a road or travel route, a community meeting place, a site with spiritual or religious connections. 1.2 Cultural significance means aesthetic, historic, scientific, social or The term cultural significance is synonymous spiritual value for past, present or future generations. with cultural heritage significance and cultural heritage value.

Cultural significance is embodied in the place itself, its fabric, Cultural significance may change over time setting, use, associations, meanings, records, related places and and with use. related objects. Understanding of cultural significance may change as a result of new information. Places may have a range of values for different individuals or groups.

1.3 Fabric means all the physical material of the place including Fabric includes building interiors and sub- elements, fixtures, contents and objects. surface remains, as well as excavated material. Natural elements of a place may also constitute fabric. For example the rocks that signify a Dreaming place.

Fabric may define spaces and views and these may be part of the significance of the place.

1.4 Conservation means all the processes of looking after a place so as See also Article 14. to retain its cultural significance.

1.5 Maintenance means the continuous protective care of a place, and Examples of protective care include: its setting. • maintenance — regular inspection and cleaning of a place, e.g. mowing and Maintenance is to be distinguished from repair which involves pruning in a garden; restoration or reconstruction. • repair involving restoration — returning dislodged or relocated fabric to its original location e.g. loose roof gutters on a building or displaced rocks in a stone bora ring; • repair involving reconstruction — replacing decayed fabric with new fabric 1.6 Preservation means maintaining a place in its existing state and It is recognised that all places and their retarding deterioration. elements change over time at varying rates.

1.7 Restoration means returning a place to a known earlier state by removing accretions or by reassembling existing elements without the introduction of new material.

1.8 Reconstruction means returning a place to a known earlier state New material may include recycled material and is distinguished from restoration by the introduction of new salvaged from other places. This should not be to the detriment of any place of cultural material. significance.

1.9 Adaptation means changing a place to suit the existing use or a proposed use.

1.10 Use means the functions of a place, including the activities and Use includes for example cultural practices traditional and customary practices that may occur at the place commonly associated with Indigenous peoples such as ceremonies, hunting and or are dependent on the place. fishing, and fulfillment of traditional obligations. Exercising a right of access may be a use. 2 — Australia ICOMOS Incorporated The Burra Charter, 2013

Articles Explanatory Notes

1.11 Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal, impact on cultural significance. 1.12 Setting means the immediate and extended environment of a Setting may include: structures, spaces, land, water and sky; the visual setting including place that is part of or contributes to its cultural significance and views to and from the place, and along a distinctive character. cultural route; and other sensory aspects of the setting such as smells and sounds. Setting may also include historical and contemporary relationships, such as use and activities, social and spiritual practices, and relationships with other places, both tangible and intangible. 1.13 Related place means a place that contributes to the cultural significance of another place.

1.14 Related object means an object that contributes to the cultural Objects at a place are encompassed by the significance of a place but is not at the place. definition of place, and may or may not contribute to its cultural significance.

1.15 Associations mean the connections that exist between people and Associations may include social or spiritual a place. values and cultural responsibilities for a place.

1.16 Meanings denote what a place signifies, indicates, evokes or Meanings generally relate to intangible expresses to people. dimensions such as symbolic qualities and memories. 1.17 Interpretation means all the ways of presenting the cultural Interpretation may be a combination of the significance of a place. treatment of the fabric (e.g. maintenance, restoration, reconstruction); the use of and activities at the place; and the use of introduced explanatory material.

Conservation Principles

Article 2. Conservation and management

2.1 Places of cultural significance should be conserved.

2.2 The aim of conservation is to retain the cultural significance of a place.

2.3 Conservation is an integral part of good management of places of cultural significance.

2.4 Places of cultural significance should be safeguarded and not put at risk or left in a vulnerable state.

Article 3. Cautious approach

3.1 Conservation is based on a respect for the existing fabric, use, The traces of additions, alterations and earlier associations and meanings. It requires a cautious approach of treatments to the fabric of a place are evidence of its history and uses which may be part of its changing as much as necessary but as little as possible. significance. Conservation action should assist and not impede their understanding.

3.2 Changes to a place should not distort the physical or other evidence it provides, nor be based on conjecture.

Article 4. Knowledge, skills and techniques

4.1 Conservation should make use of all the knowledge, skills and disciplines which can contribute to the study and care of the place.

The Burra Charter, 2013 Australia ICOMOS Incorporated — 3

Articles Explanatory Notes

4.2 Traditional techniques and materials are preferred for the The use of modern materials and techniques conservation of significant fabric. In some circumstances modern must be supported by firm scientific evidence or by a body of experience. techniques and materials which offer substantial conservation benefits may be appropriate.

Article 5. Values

5.1 Conservation of a place should identify and take into Conservation of places with natural consideration all aspects of cultural and natural significance significance is explained in the Australian Natural Heritage Charter. This Charter without unwarranted emphasis on any one value at the expense defines natural significance to mean the of others. importance of ecosystems, biodiversity and geodiversity for their existence value or for present or future generations, in terms of their scientific, social, aesthetic and life-support value.

In some cultures, natural and cultural values are indivisible. 5.2 Relative degrees of cultural significance may lead to different A cautious approach is needed, as conservation actions at a place. understanding of cultural significance may change. This article should not be used to justify actions which do not retain cultural significance.

Article 6. Burra Charter Process 6.1 The cultural significance of a place and other issues affecting its The Burra Charter Process, or sequence of future are best understood by a sequence of collecting and investigations, decisions and actions, is illustrated below and in more detail in the analysing information before making decisions. Understanding accompanying flow chart which forms part of cultural significance comes first, then development of policy the Charter.

and finally management of the place in accordance with the policy. This is the Burra Charter Process. Understand Significance

6.2 Policy for managing a place must be based on an understanding ê

of its cultural significance. Develop Policy

6.3 Policy development should also include consideration of other ê factors affecting the future of a place such as the owner’s needs, Manage in Accordance with Policy resources, external constraints and its physical condition.

6.4 In developing an effective policy, different ways to retain Options considered may include a range of cultural significance and address other factors may need to be uses and changes (e.g. adaptation) to a place. explored. 6.5 Changes in circumstances, or new information or perspectives, may require reiteration of part or all of the Burra Charter Process.

Article 7. Use

7.1 Where the use of a place is of cultural significance it should be retained.

7.2 A place should have a compatible use. The policy should identify a use or combination of uses or constraints on uses that retain the cultural significance of the place. New use of a place should involve minimal change to significant fabric and use; should respect associations and meanings; and where appropriate should provide for continuation of activities and practices which contribute to the cultural significance of the place.

4 — Australia ICOMOS Incorporated The Burra Charter, 2013

Articles Explanatory Notes

Article 8. Setting

Conservation requires the retention of an appropriate setting. This Setting is explained in Article 1.12. includes retention of the visual and sensory setting, as well as the retention of spiritual and other cultural relationships that contribute to the cultural significance of the place. New construction, demolition, intrusions or other changes which would adversely affect the setting or relationships are not appropriate.

Article 9. Location

9.1 The physical location of a place is part of its cultural significance. A building, work or other element of a place should remain in its historical location. Relocation is generally unacceptable unless this is the sole practical means of ensuring its survival.

9.2 Some buildings, works or other elements of places were designed to be readily removable or already have a history of relocation. Provided such buildings, works or other elements do not have significant links with their present location, removal may be appropriate.

9.3 If any building, work or other element is moved, it should be moved to an appropriate location and given an appropriate use. Such action should not be to the detriment of any place of cultural significance.

Article 10. Contents

Contents, fixtures and objects which contribute to the cultural For example, the repatriation (returning) of an significance of a place should be retained at that place. Their removal object or element to a place may be important to Indigenous cultures, and may be essential is unacceptable unless it is: the sole means of ensuring their security to the retention of its cultural significance. and preservation; on a temporary basis for treatment or exhibition; for Article 28 covers the circumstances where cultural reasons; for health and safety; or to protect the place. Such significant fabric might be disturbed, for contents, fixtures and objects should be returned where example, during archaeological excavation. circumstances permit and it is culturally appropriate. Article 33 deals with significant fabric that has been removed from a place.

Article 11. Related places and objects

The contribution which related places and related objects make to the cultural significance of the place should be retained.

Article 12. Participation

Conservation, interpretation and management of a place should provide for the participation of people for whom the place has significant associations and meanings, or who have social, spiritual or other cultural responsibilities for the place.

Article 13. Co-existence of cultural values Co-existence of cultural values should always be recognised, For some places, conflicting cultural values may affect policy development and respected and encouraged. This is especially important in cases management decisions. In Article 13, the term where they conflict. cultural values refers to those beliefs which are important to a cultural group, including but not limited to political, religious, spiritual and moral beliefs. This is broader than values associated with cultural significance.

The Burra Charter, 2013 Australia ICOMOS Incorporated — 5

Articles Explanatory Notes

Conservation Processes

Article 14. Conservation processes

Conservation may, according to circumstance, include the processes Conservation normally seeks to slow of: retention or reintroduction of a use; retention of associations and deterioration unless the significance of the place dictates otherwise. There may be meanings; maintenance, preservation, restoration, reconstruction, circumstances where no action is required to adaptation and interpretation; and will commonly include a achieve conservation. combination of more than one of these. Conservation may also include retention of the contribution that related places and related objects make to the cultural significance of a place.

Article 15. Change

15.1 Change may be necessary to retain cultural significance, but is When change is being considered, including undesirable where it reduces cultural significance. The amount for a temporary use, a range of options should be explored to seek the option which of change to a place and its use should be guided by the cultural minimises any reduction to its cultural significance of the place and its appropriate interpretation. significance.

It may be appropriate to change a place where this reflects a change in cultural meanings or practices at the place, but the significance of the place should always be respected. 15.2 Changes which reduce cultural significance should be reversible, Reversible changes should be considered and be reversed when circumstances permit. temporary. Non-reversible change should only be used as a last resort and should not prevent future conservation action.

15.3 Demolition of significant fabric of a place is generally not acceptable. However, in some cases minor demolition may be appropriate as part of conservation. Removed significant fabric should be reinstated when circumstances permit.

15.4 The contributions of all aspects of cultural significance of a place should be respected. If a place includes fabric, uses, associations or meanings of different periods, or different aspects of cultural significance, emphasising or interpreting one period or aspect at the expense of another can only be justified when what is left out, removed or diminished is of slight cultural significance and that which is emphasised or interpreted is of much greater cultural significance.

Article 16. Maintenance

Maintenance is fundamental to conservation. Maintenance should be Maintaining a place may be important to the undertaken where fabric is of cultural significance and its maintenance fulfilment of traditional laws and customs in some Indigenous communities and other is necessary to retain that cultural significance. cultural groups.

Article 17. Preservation Preservation is appropriate where the existing fabric or its condition Preservation protects fabric without obscuring evidence of its construction and use. The constitutes evidence of cultural significance, or where insufficient process should always be applied: evidence is available to allow other conservation processes to be • where the evidence of the fabric is of such carried out. significance that it should not be altered; or • where insufficient investigation has been carried out to permit policy decisions to be taken in accord with Articles 26 to 28. New work (e.g. stabilisation) may be carried out in association with preservation when its purpose is the physical protection of the fabric and when it is consistent with Article 22. 6 — Australia ICOMOS Incorporated The Burra Charter, 2013

Articles Explanatory Notes

Article 18. Restoration and reconstruction

Restoration and reconstruction should reveal culturally significant aspects of the place.

Article 19. Restoration Restoration is appropriate only if there is sufficient evidence of an earlier state of the fabric.

Article 20. Reconstruction

20.1 Reconstruction is appropriate only where a place is incomplete Places with social or spiritual value may through damage or alteration, and only where there is sufficient warrant reconstruction, even though very little may remain (e.g. only building footings evidence to reproduce an earlier state of the fabric. In some or tree stumps following fire, flood or storm). cases, reconstruction may also be appropriate as part of a use or The requirement for sufficient evidence to practice that retains the cultural significance of the place. reproduce an earlier state still applies.

20.2 Reconstruction should be identifiable on close inspection or through additional interpretation.

Article 21. Adaptation

21.1 Adaptation is acceptable only where the adaptation has minimal Adaptation may involve additions to the impact on the cultural significance of the place. place, the introduction of new services, or a new use, or changes to safeguard the place. Adaptation of a place for a new use is often referred to as ‘adaptive re-use’ and should be consistent with Article 7.2.

21.2 Adaptation should involve minimal change to significant fabric, achieved only after considering alternatives.

Article 22. New work

22.1 New work such as additions or other changes to the place may New work should respect the significance of a be acceptable where it respects and does not distort or obscure place through consideration of its siting, bulk, form, scale, character, colour, texture and the cultural significance of the place, or detract from its material. Imitation should generally be interpretation and appreciation. avoided.

22.2 New work should be readily identifiable as such, but must New work should be consistent with Articles respect and have minimal impact on the cultural significance of 3, 5, 8, 15, 21 and 22.1. the place.

Article 23. Retaining or reintroducing use

Retaining, modifying or reintroducing a significant use may be These may require changes to significant appropriate and preferred forms of conservation. fabric but they should be minimised. In some cases, continuing a significant use, activity or practice may involve substantial new work.

Article 24. Retaining associations and meanings

24.1 Significant associations between people and a place should be For many places associations will be linked to respected, retained and not obscured. Opportunities for the aspects of use, including activities and practices. interpretation, commemoration and celebration of these associations should be investigated and implemented. Some associations and meanings may not be apparent and will require research.

24.2 Significant meanings, including spiritual values, of a place should be respected. Opportunities for the continuation or revival of these meanings should be investigated and implemented.

The Burra Charter, 2013 Australia ICOMOS Incorporated — 7

Articles Explanatory Notes

Article 25. Interpretation

The cultural significance of many places is not readily apparent, and In some circumstances any form of should be explained by interpretation. Interpretation should enhance interpretation may be culturally inappropriate. understanding and engagement, and be culturally appropriate.

Conservation Practice

Article 26. Applying the Burra Charter Process

26.1 Work on a place should be preceded by studies to understand The results of studies should be kept up to the place which should include analysis of physical, date, regularly reviewed and revised as necessary. documentary, oral and other evidence, drawing on appropriate knowledge, skills and disciplines. 26.2 Written statements of cultural significance and policy for the place Policy should address all relevant issues, e.g. use, interpretation, management and change. should be prepared, justified and accompanied by supporting evidence. The statements of significance and policy should be A management plan is a useful document for recording the Burra Charter Process, i.e. the incorporated into a management plan for the place. steps in planning for and managing a place of cultural significance (Article 6.1 and flow chart). Such plans are often called conservation management plans and sometimes have other names. The management plan may deal with other matters related to the management of the place.

26.3 Groups and individuals with associations with the place as well as those involved in its management should be provided with opportunities to contribute to and participate in identifying and understanding the cultural significance of the place. Where appropriate they should also have opportunities to participate in its conservation and management.

26.4 Statements of cultural significance and policy for the place should Monitor actions taken in case there are also be periodically reviewed, and actions and their consequences unintended consequences. monitored to ensure continuing appropriateness and effectiveness.

Article 27. Managing change

27.1 The impact of proposed changes, including incremental changes, on the cultural significance of a place should be assessed with reference to the statement of significance and the policy for managing the place. It may be necessary to modify proposed changes to better retain cultural significance.

27.2 Existing fabric, use, associations and meanings should be adequately recorded before and after any changes are made to the place.

Article 28. Disturbance of fabric

28.1 Disturbance of significant fabric for study, or to obtain evidence, should be minimised. Study of a place by any disturbance of the fabric, including archaeological excavation, should only be undertaken to provide data essential for decisions on the conservation of the place, or to obtain important evidence about to be lost or made inaccessible.

8 — Australia ICOMOS Incorporated The Burra Charter, 2013

Articles Explanatory Notes

28.2 Investigation of a place which requires disturbance of the fabric, apart from that necessary to make decisions, may be appropriate provided that it is consistent with the policy for the place. Such investigation should be based on important research questions which have potential to substantially add to knowledge, which cannot be answered in other ways and which minimises disturbance of significant fabric.

Article 29. Responsibility

The organisations and individuals responsible for management and decisions should be named and specific responsibility taken for each decision.

Article 30. Direction, supervision and implementation

Competent direction and supervision should be maintained at all stages, and any changes should be implemented by people with appropriate knowledge and skills.

Article 31. Keeping a log

New evidence may come to light while implementing policy or a New decisions should respect and have plan for a place. Other factors may arise and require new decisions. A minimal impact on the cultural significance of the place. log of new evidence and additional decisions should be kept.

Article 32. Records

32.1 The records associated with the conservation of a place should be placed in a permanent archive and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate.

32.2 Records about the history of a place should be protected and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate.

Article 33. Removed fabric

Significant fabric which has been removed from a place including contents, fixtures and objects, should be catalogued, and protected in accordance with its cultural significance.

Where possible and culturally appropriate, removed significant fabric including contents, fixtures and objects, should be kept at the place.

Article 34. Resources

Adequate resources should be provided for conservation. The best conservation often involves the least work and can be inexpensive.

Words in italics are defined in Article 1.

The Burra Charter, 2013 Australia ICOMOS Incorporated — 9

The Burra Charter Process

Steps in planning for and managing a place of cultural significance The Burra Charter should be read as a whole. Key articles relevant to each step are shown in the boxes. Article 6 summarises the Burra Charter Process.

10 — Australia ICOMOS Incorporated The Burra Charter, 2013 Werribee rail line

A Street Lube oil packing Substation 3

Drum filling Wagon filling B Street Stores

Office Laboratory Buitumen Plant Lube oil blending No 2 Crude Unit Venture Building

7th Street

Millers Road #3 Reformer Switch & C Street CNo 3 Changeroomompressor House TCC

Boiler House FCC

Warehouse 5th Street #1 Reformer Cooling towers No 1 Crude Unit Amenities #2 Reformer LPG

D Street Altona rail line

Workshop 4th Street

2nd Street Blowdown & Flare Primary Significance Pegasus building Main office No 3 Change Room Cooling towers Buildings, plant and tanks, 1946-50 CCB Solutizer LPG Kororoit Creek Road Buildings, plant and tanks, 1951-9

3rd Street Contributorysignificance

1960s & later structures

Demolished structures

Main overhead pipe gantrys

Roadways HO202 extent

0 50 100

Metres N General Layout

Project 1870610/11/2014 drawn GV Figure 72: Locations of signi"cant elements and management actions

1883 Biosis Pty Ltd Ballarat, Brisbane, Canberra, Melbourne, Sydney, Wangaratta, Wollongong Planning and Environment Act 1987 HOBSONS BAY PLANNING SCHEME AMENDMENT C107

EXPLANATORY REPORT

Who is the planning authority? This amendment has been prepared by the Hobsons Bay City Council, which is the planning authority for this amendment. The Amendment has been made at the request of Mobil Refining Australia Pty Ltd, C/Tract Consultants.

Land affected by the Amendment The Amendment applies to land recognised as the Mobil Refinery in Altona. This amendment applies only to part of the land situated north of Kororoit Creek Road, bounded by Millers Road to the west, and the industrial rail line to the north and east. The title particulars are Lot 5 TP850733, Lot 1 TP534082 and the eastern portion of Lot 9 TP850733.

Railway Reserve

Mobil Refinery Mobil Eastern Tank Farm

Former Mobil administration site

Mobil Southern Tank Farm

Figure 1- Land affected by the amendment

What the amendment does 1. Amends the Schedule to the Heritage Overlay at Clause 43.01-1 to delete HO202 from the Altona Refinery. 2. Amends Clauses 21.06 (Built Environment and Heritage) and 22.01 (Heritage Policy) to replace the reference to the Hobsons Bay Heritage Study Amended 2014 to the Hobsons Bay Heritage Study Amended 2016. 3. Amends Schedule 2 to clause 37.01 (Petroleum Refinery Area) of the Hobsons Bay Planning Scheme to delete reference to clause 62.01 of the Hobsons Bay Planning Scheme.

Strategic assessment of the Amendment

Why is the Amendment required?

Over the past ten years, Mobil has been granted permits to remove heritage fabric including the Thermofor Catalytic Cracking Unit and two administration buildings. The removal of further heritage fabric at the Refinery in the future is likely, as Mobil continue to modernise the Refinery. The Refinery is an industry of State significance and a major employer in the City of Hobsons Bay.

The Mobil Altona Refinery must regularly invest in, upgrade and replace new plant and equipment to maintain best practice in terms of operational, technological and environmental efficiencies, meet market demands and comply with increased health and safety regulations to ensure the long term viability of the refinery and provide job security for personnel. Buildings and major equipment may also need to be demolished so that available space can be used and to contain operations within the perimeter of the site and avoid expansion beyond the current site boundaries.

This amendment is required to introduce a new planning policy framework for the Mobil Altona Refinery that implements Clause 22.01-11 of the Hobsons Bay Planning Scheme (Industrial Heritage Places Policy) and the Altona Refinery Conservation Management Plan 2015 (Biosis Pty Ltd 2015). The main conservation policy objective for the Altona Refinery is the continued operation of the current petroleum refining processes. The removal of heritage fabric is considered a necessary and appropriate part of the operation and modernisation of the Altona Refinery. Photographic archive records are to be produced before the heritage overlay and heritage fabric is removed.

The Special Use 2 Zone provides an efficient and adequate framework and level of statutory control to ensure that the conservation objectives are considered in future works, without the need for the heritage overlay and the trigger for permits for all buildings and works.

In addition, the buildings and works exemptions under Clause 4.0 in Schedule 2 to the Special Use Zone incorrectly references ‘other exemptions are listed in Clause 62.01.’ This clause relates to uses not requiring a permit rather than buildings and works not requiring a permit. Reference to this clause has been deleted from the schedule as clause 62.01 applied irrespectively.

How does the Amendment implement the objectives of planning in Victoria?

The amendment implements the objectives of planning in Victoria, contained in Section 4 of the Planning and Environment Act 1987, in the following way:

Objective A: the amendment provides for the fair, orderly, economic and sustainable use and development of land as it facilitates the continued operation of this state significant economically important site and corrects an error in the schedule.

Objective C: the amendment provides for a pleasant, efficient and safe working, living and recreational environment for all Victorians and visitors to Victoria by allowing for advances in safer and more efficient refining technologies. Objective D: the amendment recognises the importance of conserving and enhancing those buildings, areas or other places which are of scientific, aesthetic, architectural or historical interest or otherwise of special cultural value by recording the heritage fabric on the site whilst also allowing for an important industry to continue viable operations at this site.

Objective G: the amendment appropriately balances the present and future interests of all Victorians, through recognising the present heritage value of the site but also ensuring the ongoing operational functionality of the site.

How does the Amendment address any environmental, social and economic effects? Environmental The amendment ensures that the Refinery will be able to continue planned works and improvements to maintain best practice in terms of operational, technological and environmental efficiencies. Social The amendment provides for a number of positive social impacts including the ongoing provision of employment and improved documentation and records of the heritage values at the Refinery, accessible to the community. The amendment supports continued investment in this industry and improvements to the facility as an iconic landmark in Hobsons Bay. Economic The amendment makes a positive contribution to the State and local economies by supporting the continued operation of the Refinery. The Refinery supplies a full range of petroleum products, including 50 per cent of Victoria’s fuel needs. The Refinery currently employs 350 people, of which approximately 40 per cent live in the local area.

Does the Amendment address relevant bushfire risk?

The site is not subject to a Wildfire Management Overlay and is not located on land designated as a ‘Bushfire Prone Area’ under the Victorian Planning Provisions. A local policy for bushfire risk management is not required to support this amendment.

Does the Amendment comply with the requirements of any Minister’s Direction applicable to the amendment?

The amendment is consistent with all relevant Ministerial Directions including the Form and Content of Planning and Ministerial Direction No.9- Metropolitan Strategy. The Metropolitan Strategy (Plan Melbourne) identifies The Altona Refinery as being located in the Western Industrial Precinct, a core industrial area to be protected and promoted for economic development and employment. The Amendment is also consistent with Ministerial Direction Section 7(5): Form and Content of Planning Schemes

How does the Amendment support or implement the State Planning Policy Framework and any adopted State policy? The amendment supports and implements Clause 15.03-1 (Heritage) of the State Planning Policy (SPPF) by ensuring the conservation of places of heritage significance. The amendment supports and implements Clause 17.02-3 (State Significant Industrial Land) by protecting industrial land of state significance.

How does the Amendment support or implement the Local Planning Policy Framework, and specifically the Municipal Strategic Statement?

The amendment supports and implements Clause 21 (Strategic Vision) of the Hobsons Bay Municipal Strategic Statement (MSS) whereby the City aims to be a community that recognises the contribution of its National and State significant and major industrial enterprises and protects and supports their continued operations.

The amendment supports and implements Clause 21.06-2 (Heritage) of the MSS by encouraging the conservation of elements that contribute to the significance of the Altona Refinery, as a heritage place, in accordance with the principles and procedures recommended by the Australian ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter). The following principles of the Burra Charter have been uppermost in the preparation of this amendment:

Article 5: Conservation of a place should take into consideration all aspects of its cultural significance without unwarranted emphasis on any one at the expense of others.

Article 6: The conservation policy appropriate to a place must first be determined by an understanding of its cultural significance and its physical condition.

The amendment supports and implements Clause 21.08 (Economic Development) of the MSS and Clause 22.02 (Industry) by its responsibility to the State and the region to ensure the continuing viability of major industries within its borders by supporting the petroleum refining industry and the growth and development of industry in Core Industrial Areas. The Altona Refinery is designated as Core Industrial Area 10 in the Hobsons Bay Industrial Land Management Strategy 2008.

The amendment implements Clause 21.08 (Economic Development) by enhancing and protecting the petroleum refining industry in a core industrial area.

The amendment implements the Industrial Heritage Places Policy at Clause 22.01-11. This policy identifies ‘conservation by use’ as an important heritage principle and there may be circumstances where it may be appropriate to permit the removal or alteration of fabric if it will facilitate the historic use of a site and ensure its future viability. The purpose of the Industry Places Policy and objectives of the Special Use 2 Zone are consistent and aim to support the ongoing and modernisation of the petroleum refining industry.

Does the Amendment make proper use of the Victoria Planning Provisions?

The amendment makes proper use of the Victorian Planning Provisions.

How does the Amendment address the views of any relevant agency? The amendment is consistent with the overriding objectives of the Department of Environment, Land, Water and Planning in relation to Plan Melbourne and economic development. The proposal supports economic development objectives by streamlining the planning process and ensuring the efficient operations at this important industrial site.

Does the Amendment address relevant requirements of the Transport Integration Act 2010?

The amendment supports the ongoing operation of Victoria’s transport system. The Altona Refinery is an important part of the transport system, supplying 50 per cent of Victoria’s fuel needs.

Resource and administrative costs

 What impact will the new planning provisions have on the resource and administrative costs of the responsible authority?

The amendment changes the requirement for Mobil to obtain a permit for ‘all buildings and works’ at the Altona Refinery to a permit to ‘construct a building and works’. This has the potential to reduce Council’s administrative resource and costs. Where you may inspect this Amendment The Amendment is available for public inspection, free of charge, during office hours at the following places: Hobsons Bay City Council Civic Centre Altona Library 115 Civic Parade 123 Queen Street Altona VIC 3018 Altona VIC 3018

Altona North Library Altona Meadows Library 180 Millers Rd 1-23 Central Avenue Altona North VIC 3025 Altona Meadows VIC 3028

The Substation Williamstown Library 1 Market Street 104 Ferguson Street, Newport VIC 3015 Williamstown VIC 3016 The Amendment can also be inspected free of charge at the Department of Environment, Land, Water and Planning website at www.dtpli.vic.gov.au/publicinspection.

Submissions Any person who may be affected by the Amendment may make a submission to the planning authority. Submissions about the Amendment must be received by [date to be inserted. Amendment to be on exhibition for a six week period]. A submission must be sent to:

Kathleen McClusky Manager Strategy and Advocacy Hobsons Bay City Council PO Box 21 Altona VIC 3018

Panel hearing dates In accordance with clause 4(2) of Ministerial Direction No.15 the following panel hearing dates have been set for this amendment:  directions hearing: [date to be inserted]

 panel hearing: [date to be inserted]

Planning and Environment Act 1987

HOBSONS BAY PLANNING SCHEME

AMENDMENT C107

INSTRUCTION SHEET

The planning authority for this amendment is the Hobsons Bay City Council.

The Hobsons Bay Planning Scheme is amended as follows:

Planning Scheme Maps

The Planning Scheme Maps are amended by a total of one attached map sheet.

Overlay Maps

1. Amend Planning Scheme Map No.9HO in the manner shown on the one attached map marked “Hobsons Bay Planning Scheme, Amendment C107”.

Planning Scheme Ordinance

The Planning Scheme Ordinance is amended as follows:

2. In Local Planning Policy Framework – replace Clause 21.06 with a new Clause 21.06 in the form of the attached document.

3. In Local Planning Policy Framework – replace Clause 22.01 with a new Clause 22.01 in the form of the attached document.

4. In Zones – Clause 37.01, replace Schedule 2 with a new Schedule 2 in the form of the attached document.

5. In Overlays – Clause 43.01, replace Schedule 1 with a new Schedule 1 in the form of the attached document.

End of document

HOBSONS BAY PLANNING SCHEME

21.06 BUILT ENVIRONMENT AND HERITAGE 17/07/2014 C101

Overview

Hobsons Bay is a municipality where the residential areas have their own special character. A high standard of design is encouraged in the municipality and gardens and trees in private areas complement green streetscapes. The amenity of residential areas will be protected from the effects of noise, air, water and land pollution. In established residential areas, dwelling styles and designs contribute to a preferred neighbourhood character in accordance with Neighbourhood Character policies. A new residential character in Strategic Redevelopment Areas will consider and respect the character of the existing surrounding area.

21.06-1 Built Environment 25/10/2012 C63 Objective 1

To ensure that new development respects and enhances the preferred neighbourhood character of the existing residential areas of Hobsons Bay.

Strategies

. Work with development proponents to achieve outcomes that enhance the preferred neighbourhood character. . Ensure that a sense of openness in backyards is retained in precincts where this is an important character element. . Encourage high quality contemporary and innovative architectural responses and avoid period reproduction styles, especially in Heritage Overlay areas. . Minimise the loss of front garden space by discouraging additional vehicular crossings and encouraging car access from rear laneways if available. . Discourage the use of basement garages where they lead to the loss of effective landscaping or where it has the effect of increasing the height of buildings, particularly in coastal areas. . Encourage energy efficient design of new dwelling construction. . Promote innovative designs, which promote the concepts of environmentally sustainable development through energy efficient design. . Promote innovative designs which are functional, aesthetically pleasing and pleasant to live in.

Objective 2

To protect and enhance the amenity of residential areas.

Strategies

. Encourage applicants to exceed minimum compliance with the requirements of Clause 54 and Clause 55 in the preparation of applications, to ensure the protection and enhancement of the amenity of residential areas.

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 1 OF 6 HOBSONS BAY PLANNING SCHEME

. Encourage a high standard of site analysis and design response to facilitate innovation and creativity in design and planning for medium density housing and residential areas. . Encourage the establishment of a landscape and streetscape urban setting for new development which reflects the local and wider landscape character. . Minimise the dominance of car parking structures by setting such structures behind the main building line of the dwelling. . Protect and improve streetscapes by minimising the effects of development on street trees and nature strips, requiring the reinstatement of footpaths, kerbs and channels with appropriate materials and through the use of underground power and telecommunication lines. . Protect and improve streetscapes by minimising high solid front fences.

Objective 3

To protect the amenity of residential areas adjacent to land uses with off-site amenity impacts and protect industry and sensitive open space from constraints and adverse impacts caused by the encroachment of residential development.

Strategies

. Ensure that future residential development which has an interface with an existing industry implements appropriate mitigation measures to protect the amenity of future residents and the continued operation of the existing industry. . Facilitate appropriate forms of residential development at the interface between residential and other land uses. For example:

· Residential areas adjacent to industrial land use.

· Residential areas adjacent to the coast, creeks, wetlands and grasslands.

· Residential areas adjacent to parks and open space reserves.

· Other urban/non urban interface areas. . Ensure that development adjacent to open space and along watercourses addresses, but does not dominate, the waterway or open space.

Objective 4

To provide landscaping that enhances open space areas and surrounding amenity.

Strategies

. Encourage and undertake landscaping that:

· Emphasises areas of high visibility such as gateways, major boulevards and creeks.

· Uses indigenous vegetation in natural areas and introduces a wider range of species, particularly trees in the developed areas of the municipality.

· Integrates all existing planting in public areas.

· Takes into account the traffic calming effects of street tree planting. . Encourage improvements to the nature and quality of the landscaping along VicRoads declared roads. . Give careful consideration to the landscaping of sites as a condition of the approval of applications for all types of land uses and development.

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 2 OF 6 HOBSONS BAY PLANNING SCHEME

. Reflect streetscape character through fencing, planting style and pavement types. . Consider views worthy of protection or screening in the design of landscaping. . Consider adjacent land uses and buildings to ascertain how these should influence landscape design. . Encourage open, well landscaped industrial precincts that enhance the appearance and amenity of the site and public areas. . Choose plantings appropriate to the architectural era in heritage areas. . Encourage private landscaping that enhances the streetscapes of the municipality and complements the landscaping of public areas. . Encourage landscaping that provides shade but does not damage buildings and pavements and is designed to take into account public safety. . Promote landscape design, particularly key focal points, in proximity to areas of nature conservation and large industrial developments.

Implementation

These objectives and strategies will be implemented by: Policy Guidance (criteria for the exercise of discretion) . Use local policy at Clause 22.04 to ensure site responsive and well designed residential development that enhances and protects the strong neighbourhood character of the residential area of Altona Meadows bounded by Central Avenue, and Queen Street to the north, Victoria Street to the east, South Avenue Merton Street and the southern boundary of properties abutting Spicer Boulevard/May Avenue to the south, and Henry Drive and Skehan Boulevard to the west. . Use local policy at Clause 22.07 – Clause 22.10 to retain and enhance identified elements that contribute to the character of Hobsons Bay and ensure that new development responds appropriately to the character of the precinct in which it is located. . Use local policy at Clause 22.11 to ensure that signs respond to the character and amenity of sensitive areas and do not detract from the character of a locality, building or site. Application of zones and overlays . Apply the Residential 1 Zone and Residential 2 Zone in established residential areas to protect and enhance existing neighbourhood character. . Apply the Mixed Use Zone in the Altona Beach activity centres to facilitate a range of residential, commercial, office limited industrial and other uses which complement the mixed-use function of the locality. Further Strategic Work . Consider applying a Schedule to the Residential 1 Zone to express local values. . Review the Hobsons Bay Neighbourhood Character Study to ensure it is delivering Council and community objectives.

Reference documents

Hobsons Bay Neighbourhood Character Study, December 2002, including Neighbourhood Character Precinct Brochures Hobsons Bay Landscape Design Guidelines 1999

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 3 OF 6 HOBSONS BAY PLANNING SCHEME

Hobsons Bay Advertising Signs Guidelines 1999 Hobsons Bay Industrial Land Management Strategy 2008 Health and Wellbeing Plan. Hobsons Bay Municipal Public Health Plan 2007-2011 Ageing Well Strategy 2007-2017 Disability Action Plan 2008-2012

21.06-2 Heritage

17/07/2014 C101 Proposed C107 Overview

Hobsons Bay has a rich and diverse cultural heritage which is reflected in the heritage places and precincts identified in the Hobsons Bay Heritage Study Amended 2016. It is a Deleted: 2014. community where we value our heritage and the important role it plays in helping us to understand and interpret our past and enhance our future prosperity and way of life. There is strong support for the protection and conservation of heritage places and precincts. All places of heritage significance including a site, area, building, group of buildings, structure, archaeological site, tree, garden, geological formation, fossil site, habitat or other place of natural or cultural significance and its associated land are identified, protected and conserved.

Objective 1

To protect and conserve places and precincts of heritage significance in Hobsons Bay.

Strategies

. Avoid the demolition of buildings, or works that contribute to the value of a heritage place or precinct, particularly the incremental loss of contributory heritage places within heritage precincts which will erode heritage character and adversely affect the integrity of these places. . Encourage the conservation of elements that contribute to the significance of a heritage place or precinct in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter). . Ensure that new buildings or works do not visually dominate or cause detriment to the heritage significance of the broader heritage place. . Support the replacement of non-contributory buildings and public infrastructure with new development that responds positively to the historic context provided by surrounding heritage places. . Ensure that new development reflects the existing road layout and subdivision pattern that defines and characterises the broader heritage place.

Objective 2

To ensure that new development responds positively and enhances the unique and valued character of heritage places and precincts within Hobsons Bay.

Strategies

. Discourage the demolition of heritage places unless it can be demonstrated that, as appropriate:

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 4 OF 6 HOBSONS BAY PLANNING SCHEME

· The fabric to be removed is not significant.

· The fabric to be removed is not of primary significance and its removal will not adversely affect the significance of the place.

· It will assist in the long term conservation of the place.

· In the case of an industrial heritage place, it will facilitate the historic use of the place and will not result in the loss of fabric considered to be of primary significance. . Discourage inappropriately designed infill development. . Assess the contribution of new development to the heritage place within the immediate context of the buildings or works, being the same street, across the road and on the next couple of allotments adjacent to the subject site. . Ensure that new buildings or works do not visually dominate or cause detriment to the heritage values of heritage places that are situated in the locality. . Give preference to infill buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006. . Discourage poorly designed additions and alterations to heritage places that are unrelated in terms of design, scale, form and materials. . Give preference to alterations or additions to existing buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. . Ensure that new development does not distort the historic evidence provided by the heritage place by simply copying or reproducing historic styles or detailing.

Objective 3

To improve awareness, understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places.

Strategies

. Ensure places of cultural heritage are conserved and where appropriate, are interpreted and have appropriate settings. . Maintain appropriate settings for heritage places. . Where redundant heritage buildings such as former industrial buildings and hotels cannot be retained, encourage and support their adaptive use to recognise and protect the physical and cultural heritage significance of the building and its contribution to development of Hobsons Bay.

Implementation

These strategies will be implemented by: Policy Guidance (criteria for the exercise of discretion) . Use local policy at Clause 22.01 when considering to use or develop heritage places to protect and enhance the heritage character of Hobsons Bay and in the assessment of applications to ensure new development responds positively to special features such as

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 5 OF 6 HOBSONS BAY PLANNING SCHEME

views, vistas, significant vegetation and landmarks and enhances the historic cultural landscape character found in a street or precinct. . Use local policy at Clause 22.11 in the consideration of signage applications to ensure that signs respect the period and style of the host building and do not dominate or obscure its architectural form or features and use relevant materials, fonts and colours. . Require a photographic record of the building where approval has been granted for its demolition, where appropriate. . Assess applications for infill development in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006. . Assess applications for alterations and additions in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. . Use the Aboriginal cultural resource map and guidelines provided by Aboriginal Affairs Victoria when considering an application to develop or rezone land. Other . Promote awareness and appreciation of the importance and value of the cultural heritage of Hobsons Bay to improve understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places. . Lead by example in the management of Council’s own heritage assets. Application of zones and overlays . Apply the Heritage Overlay to heritage places identified in the Hobsons Bay Heritage Study Amended 2016, by Heritage Victoria, or other relevant heritage studies. Deleted: Further Strategic Work Deleted: 2014 . Finalise and adopt the comprehensive Heritage Conservation Study for coastal areas. . Undertake a Significant Tree Study. . Undertake a Port of Williamstown Heritage Study in conjunction with other relevant statutory authorities. . Undertake a Post-war Heritage Study. . Prepare Conservation Management Plans or management guidelines for other Council- owned or managed heritage assets as required, including:

· Historic public infrastructure and street trees.

· Historic sporting pavilions.

· Dennis Reserve, Williamstown and Logan Reserve, Altona.

· Review and update the Hobsons Bay Heritage Study Amended 2016 as appropriate. Deleted: 2014

Reference Documents

Hobsons Bay Heritage Study Amended 2016 Deleted: 2014 Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006 Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 The Burra Charter (The Australian ICOMOS Charter for Places of Cultural Significance)

MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 6 OF 6 HOBSONS BAY PLANNING SCHEME

22 LOCAL PLANNING POLICIES 17/07/2014 Proposed C107 Deleted: C101¶ 22.01 Heritage Policy 17/07/2014 Proposed C107 This Local Planning Policy affects areas included in the Heritage Overlay and comprises Deleted: C101¶ the following: . 22.01-1: General Heritage Policy . 22.01-2: Government Survey Heritage Precinct Policy . 22.01-3: Private Survey Heritage Precinct Policy . 22.01-4: Hannan’s Farm (Ramsgate Estate) and Williamstown Beach Heritage Precincts Policy . 22.01-5: Ferguson Street Civic and Commercial Heritage Precinct Policy . 22.01-6: Nelson Place Heritage Precinct Policy . 22.01-7: Cox’s Garden Heritage Precinct Policy . 22.01-8: Housing Commission of Victoria Estates Heritage Precincts Policy . 22.01-9: Newport and Spotswood Residential Heritage Precincts Policy . 22.01-10: Newport Civic and Commercial Heritage Precinct Policy . 22.01-11: Industrial Heritage Places Policy

Using this Policy

This policy comprises an overall heritage policy, which applies to all heritage precincts and places within the City of Hobsons Bay. There are also additional sub-policies for specific heritage precincts and places within the municipality and a sub-policy on Industrial Heritage Places. Each individual sub-policy has its own policy basis, objectives, and policy statements that should be considered in conjunction with the overall policy. The Hobsons Bay Heritage Study Amended 2016 informs this policy and should be referred Deleted: 2014 to in identifying the significance of the heritage precincts. A ‘heritage precinct’ is a group of heritage places identified by the Hobsons Bay Heritage Study Amended 2016. Deleted: 2014 The term ‘heritage place’ refers to: . A place that is individually cited in the Hobsons Bay Heritage Study Amended2016. Deleted: . A place that is contributory to the significance of a heritage precinct. Deleted: 2014

Application requirements

Where a permit is required for development in a Heritage Overlay, an application must be accompanied by information that adequately responds to the relevant sections of the Hobsons Bay Heritage Study Amended2016, the Guidelines for Infill Development in Deleted: Heritage Areas in Hobsons Bay 2006 and the Guidelines for Alterations and Additions to Deleted: 2014 Dwellings in Heritage Areas in Hobsons Bay 2006.

22.01-1 General Heritage Policy 17/07/2014 Proposed C107 Deleted: C101¶ This policy applies to all land included within a Heritage Overlay.

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Policy basis

The Hobsons Bay Municipal Strategic Statement identifies the need for a local policy to ensure that the cultural heritage of Hobsons Bay is conserved and enhanced. The communities of Hobsons Bay have played an important role in the historic development of Victoria and the unique history of Hobsons Bay is illustrated by a wide variety of heritage places that include buildings, neighbourhood precincts, trees and landscapes, and urban forms. The heritage places of Hobsons Bay reflect the key themes that have shaped the development of the city since the establishment of Williamstown in the 1840s as the first port of Melbourne, through the development of Newport and Spotswood during the Federation and Interwar periods associated with the growth of railways and related industries, to the post-war industrial and residential expansion that transformed Altona and Laverton. These heritage places are important for the reasons described in the Hobsons Bay Heritage Study Amended2016, as well as the broader social, cultural and economic benefits they Deleted: bring by: Deleted: 2014 . Providing historic continuity, which enables the complex layering of the history of Hobsons Bay to be understood and interpreted. . Enhancing the character and amenity of the city by contributing to the unique identity of each neighbourhood. . The heritage of Hobsons Bay is highly valued by the community and there is strong support for controls and policy to protect and conserve places of identified heritage significance. . This policy implements the recommendations of the Hobsons Bay Heritage Study Amended2016. Deleted: Deleted: 2014 Objectives

To conserve characteristics that contribute to the individual identity of heritage places and precincts within Hobsons Bay and ensure that their cultural significance is not diminished by: . The loss of any fabric which contributes to the significance of the heritage place or precinct; . Inappropriate new development; To conserve heritage places in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (Burra Charter). To ensure new development is of a high quality design that creatively interprets and responds positively to the historic context provided by the heritage place or precinct. To support the replacement of non-contributory buildings with new development that responds positively to the historic context provided by surrounding heritage places. To ensure new development becomes a valued addition, which complements the aesthetic qualities of a heritage place or precinct. To ensure new development does not distort historic evidence of heritage places by copying or reproducing historic styles or detailing. To encourage the viable use of buildings as part of their conservation. To ensure a consistent approach to the conservation of heritage places. To conserve heritage places and precincts based on the statement of significance for the place or precinct.

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To improve community awareness of the importance and value of heritage places and precincts. To ensure new development responds positively to special features such as views, vistas, significant vegetation and landmarks. To ensure landscaping enhances the historic cultural landscape character found in a street or precinct. To ensure new development does not visually dominate a heritage place or precinct.

Policy

Exercising discretion It is policy to conserve heritage places and precincts by: . Ensuring the maintenance and preservation of heritage places; . Ensuring the restoration or reconstruction of fabric where opportunities arise. . Discouraging the demolition of heritage places unless the demolition is only part of the heritage place and it can be demonstrated to the satisfaction of the Responsible Authority that, as appropriate: . Ensuring the fabric to be removed is not significant; . Ensure the fabric to be removed will not adversely affect the significance of the heritage place; . Ensuring development will assist in the long term conservation of the heritage place; . In the case of an industrial heritage place, ensuring development will facilitate the historic use of the heritage place and will not result in the loss of fabric of primary significance; . Discouraging the demolition of heritage places unless it can be demonstrated to the satisfaction of the Responsible Authority that the structural integrity of the heritage place has been lost; . Generally not accepting the poor condition or low integrity of a heritage place as justification for its demolition, particularly if in the opinion of the Responsible Authority the condition of the heritage place has deliberately been allowed to deteriorate; . Maintaining and enhancing the setting of heritage places and precincts by the removal of non-significant fabric and by ensuring that infill buildings or additions to existing buildings are visually recessive. This includes views and vistas to a heritage place from public places; . Encourage the removal of alterations and additions except where they contribute to the significance of the heritage place; . Ensure new infill buildings, alterations and additions to existing buildings are visually recessive and compatible in scale, siting, design, form and materials with the character of the heritage place or precinct; . Ensure new infill buildings have regard to the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006; . Ensure alterations and additions to contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006; . Ensure alterations and additions to non-contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006;

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. Conserve early public realm infrastructure such as basalt gutters, unmade roadside verges, bluestone and concrete kerbs, channels, footpaths and laneways are conserved and reconstructed as appropriate; . Discourage vehicle crossovers and off-street parking provision at the front of heritage places, unless it can be demonstrated to the satisfaction of the Responsible Authority that these features were historically found in the street where the property is located and that no suitable alternative exists; . Significant street trees should not be removed unless they die or in the opinion of the Responsible Authority become a safety risk. If a significant street tree is removed, it should be replaced with a semi-advanced species to the satisfaction of the Responsible Authority; . Original front fences and related features such as lynch gates and pergolas should be retained; . If a front fence is not significant, low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling should be provided, unless historic evidence to the satisfaction of the Responsible Authority can be provided for an alternative design; . Ensure subdivision is compatible with the original subdivision layout and character of the heritage place or precinct; . Ensure advertising signs have regard to the Hobsons Bay Advertising Sign Guidelines 1999 and are traditional in form and location; . Encourage historical research of heritage places and precincts and promote their physical link with history.

Decision Guidelines

It is policy that before deciding on an application the Responsible Authority must consider, as appropriate: . The significance of the heritage place or precinct as described in the Hobsons Bay Heritage Study Amended 2016 and whether the proposed buildings or works will Deleted: 2014 adversely affect the cultural significance of the heritage place or precinct; . Whether the application has responded appropriately to the relevant design guidelines in the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 or the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006. Whether the proposed buildings or works will assist in the conservation of the place by: . Maintaining, protecting, restoring, repairing or stabilising significant fabric; . Supporting the continued original use of the building by enabling it to be upgraded to meet present day requirements and standards; . Implementing works in accordance with a Conservation Management Plan that has been prepared to the satisfaction of the Responsible Authority; . Allowing an alternative use (where this is permitted by the Planning Scheme) when the original use of the building is no longer viable, or in accordance with a Conservation Management Plan; . Whether the proposed buildings or works will have an adverse effect on a significant tree identified by the Hobsons Bay Heritage Study Amended2016, or any tree that Deleted: contributes to the setting of a heritage place or precinct. Deleted: 2014

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Policy references

. Hobsons Bay Heritage Study Amended2016. Deleted: . Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Deleted: 2014 Bay 2006 . Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 . Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (The Burra Charter). . Hobsons Bay Advertising Sign Guidelines 1999 (or any subsequent version).

22.01-2 Government Survey Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Government Survey Heritage Deleted: C101¶ Precinct, (HO8), the Cecil Street Heritage Precinct, (HO1), Electra Street Heritage Precinct (HO4), Esplanade Residential Heritage Precinct (HO6), Hanmer Street Heritage Precinct (HO12), Pasco Street Heritage Precinct (HO24), part of the Railway Crescent Heritage Precinct east of Giffard Street (HO28), Verdon Street Heritage Precinct (HO32), and places individually listed in the Schedule to the Heritage Overlay in the area generally bounded by Ferguson Street, Nelson Place, Kanowna Street, Morris Street, Esplanade, Giffard Street, and Railway Place in Williamstown.

Policy basis

The Government Survey Heritage Precinct comprises the parts of “Williams Town” originally surveyed by Robert Hoddle and later extended by the Victorian Colonial Government between 1837 and 1855. Historically, the precinct demonstrates the most important and prosperous phases in the development of Williamstown, from the mid- nineteenth to early twentieth centuries associated with the development of the port and later influenced by the development of railways and related industries. The early settlement of Williamstown and its importance as a port and defence facility, also contributes to a broader understanding of the history of Victoria. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To retain the distinctive cultural heritage significance of this precinct which is derived from: . The strong associations with the maritime and railway industries that were key influences in the early historic development of Williamstown; . The strong associations with the formative civic, public and commercial development that occurred in Williamstown during the nineteenth century; . The setting and visual prominence of the civic, public and commercial buildings on key sites throughout the precinct, and in particular the grouping of related basalt public buildings in Cecil Street and public buildings in Electra Street; . The strong and distinctive urban form created by the regular grid subdivisions, separated by areas of open space, which exemplifies nineteenth century town planning; . The pre-1860 buildings, which demonstrate the very early origins of this precinct and comprise one of the most significant collections of buildings from this period within Victoria; . The Williamstown railway line corridor;

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. The generally uniform scale (predominantly single storey), siting (generally detached, parallel to frontage), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on rectangular regular shaped allotments) of residential buildings, which provide a unifying element throughout the precinct. Typically, car parking is not provided on site; . Regular shaped lots with frontages predominantly between 6-9 metres, which create a distinctive pattern of development; . The rare surviving examples of early housing construction such as pre-fabricated timber dwellings, basalt houses, and attached row houses with undivided roofs; . The unique nineteenth century road layout in key streets, and other historic public infrastructure; . Significant trees on public and private land, which contribute to the cultural landscape character.

Policy

It is policy to encourage infill development that has: . Respect for the single storey scale of the precinct generally with detached siting; . Simple single or double fronted building forms; . Horizontal weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; . Simple hipped corrugated iron or slate roof forms; . Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped; . Eaves and verandahs in street elevations. It is policy that alterations and additions to existing dwellings should: . Be single storey scale when viewed from a street (not including a right-of-way); . Be sited to the rear of the existing building; . Be setback from side boundaries to reflect the existing pattern of development; . Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; . Be compatible with the heritage place’s roof form and material as visible from the street; . Be the same as the significant fabric of the facade or profile of the main roofline as viewed from the street; . Retain contributory features such as chimneys and bluestone foundations; . Avoid windows in upper floor elevations facing the street; . Be ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank, if grouped.

22.01-3 Private Survey Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Private Survey Heritage Deleted: C101¶ Precinct (HO27), the Power Street Heritage Precinct (HO26), Lenore Crescent Heritage Precinct (HO18), Macquarie Street Heritage Precinct (HO19), James Street Heritage Precinct (HO17), The Strand Heritage Precinct (HO31), Dover Road and John Street Heritage Precinct (HO3), and places individually listed in the Schedule to the Heritage

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Overlay in the area generally bounded by North Road, The Strand, Ferguson Street, Power Street, and Melbourne Road in Williamston and Newport.

Policy basis

Historically, the Private Survey Heritage Precinct is significant for its ability to illustrate the two main development phases of the city during the Victorian (port rise and decline) and Edwardian to Interwar periods (railway and manufacturing industry). This has created a distinctive layering of history, which illustrates how this part of Williamstown and Newport developed quite differently to the Government Survey Heritage Precinct to the south of Ferguson Street. Compared to other precincts in Hobsons Bay, it is more heterogeneous in character and is aesthetically significant for the groups of predominantly late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as James and Macquarie Streets, to almost exclusively Interwar enclaves such as Federal Street, Chandler Street and Lenore Crescent. Housing in other streets, although stylistically different, share common elements of scale, siting, materials and roof forms, which create cohesive groups. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character. Another notable element is the Victorian and Interwar commercial buildings and hotels, which are typically located on prominent corner sites and sited on the frontage throughout the precinct. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To retain the distinctive cultural heritage significance of this precinct which is derived from: . The extent of speculative subdivision within Williamstown during the nineteenth century, which created a less regular street pattern compared to other parts of Williamstown and Newport; . The ability to illustrate, often within the same street, two key periods in the development of Williamstown from maritime to railway and other industries; . The commercial development scattered throughout the precinct that illustrates how self- contained communities developed in the era before the use of cars became widespread; . The pre-1860 buildings, which demonstrate the early origins of parts of this precinct closer to Ferguson Street. The contrast between streets that are relatively homogeneous in character with streets that are more heterogeneous in character; . The architectural diversity of the residential buildings comprising villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hip or gable roof), and a regular subdivision pattern (single dwellings on regular allotments), which provide a unifying element throughout the precinct. Typically, car parking was not provided on site until later in the Interwar period; . Regular shaped lots with wide frontages predominantly between 10-15 metres, which create a distinctive pattern of development; . Landmark hotels and commercial buildings which are typically sited on prominent street corners.

Policy

It is policy to encourage infill development that has:

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. Respect for the single storey scale of the precinct with double storey elements setback to minimise visibility from the street; . Detached siting parallel to the frontage, unless angled siting is a characteristic of the street or group of houses where a property is located; . Simple single or double fronted building forms with symmetrical plans in streets or groups of houses that have predominantly Victorian character, or asymmetrically designed plans in streets or groups of houses with predominantly Edwardian or Interwar character; . Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; . Hipped corrugated iron or slate roof forms, except in streets or groups of houses, which have predominantly Edwardian or Interwar character, where terracotta tiles may be provided; . Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped; . Eaves and verandahs in street elevations. It is policy that alterations and additions to existing dwellings should: . Be single storey scale when viewed from the street, (not including a right-of-way); . Be sited to the rear of the existing building; . Include side setbacks that reflect the existing street pattern; . Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; . Be compatible with the roof form and material of the heritage place when visible from the street; . Not significantly alter the fabric of the facade or profile of the main roofline as viewed from the street; . Retain contributory features such as chimneys and bluestone foundations; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-4 Hannan’s Farm (Ramsgate Estate) And Williamstown Beach Heritage

17/07/2014 Precincts Policy Proposed C107 Deleted: C101¶ This policy applies to all land and heritage places within Hannan’s Farm Heritage Precinct (HO13), Victoria Street Heritage Precinct (HO33), Williamstown Beach Heritage Precinct (HO34), part of Railway Crescent Heritage Precinct west of Giffard Street (HO28), including places individually listed in the Schedule to the Heritage Overlay with frontage to Castle Street, Collins Street, Esplanade (part), Forster Street, Garden Street, Giffard Street (part), Gellibrand Street, Hannan Street, Knight Street, Langford Street, Laverton Street, Osborne Street (part), Railway Crescent (part), Stewart Street, Vera Street, Victoria Street and Winifred Street in Williamstown.

Policy basis

This precinct includes those parts of South Williamstown generally to the west of the Giffard Street that were subdivided during the late nineteenth century. It includes Victoria and Hannan Streets which were part of the Ramsgate Estate created in the late 1880’s by

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the subdivision of Hannan’s Farm by two well-known Williamstown figures, AT Clark and John Morgan. This precinct is significant as an intact late nineteenth and early twentieth century residential area comprising predominantly Victorian and Edwardian era houses with common or similar characteristics of design, siting and scale that create cohesive and relatively homogeneous streetscapes. Many are externally intact and others, although altered, still retain their distinctive form and siting and hence contribute to the precinct. Many also have mature gardens that complement the mature street trees in Victoria and Osborne Streets. Victoria Street is particularly notable for its many fine examples of Edwardian and interwar villas and bungalows. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To retain the distinctive cultural heritage significance of this precinct which is derived from: . The strong associations with individuals who were prominent in civic and social life in Williamstown in the late nineteenth and early twentieth century; . The Victorian-era dwellings, which illustrate the late nineteenth century origins of this area, and include some of the best examples of Italianate architecture in Williamstown; . The generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regular shaped allotments) of dwellings, which create cohesive streetscapes. Typically, there is no provision for on-site car parking; . Regular shaped lots with wide frontages of predominantly 10-15 metres, which create a distinctive street pattern; . The fine collection of Edwardian and interwar ‘picturesque’ villas and bungalows in Victoria Street; . Mature trees on public and private land that provides an appropriate cultural landscape, which is related to the main period of development; . The Rifle Club Hotel and the Williamstown Croquet Club pavilion, which are notable landmarks at the northern entrance to Victoria Street; . The original street layout in Osborne Street, which includes unmade road verges and street trees; . Views along Victoria and Hannan Streets to the Bay; . The Williamstown Botanic Gardens.

Policy

It is policy to encourage infill development that has: . Respect for the single storey scale of the precinct with detached siting parallel to the frontage; . Simple single or double fronted building forms, except in Victoria Street where more complex asymmetrically designed forms may be appropriate; . Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided; . Hipped corrugated iron or slate roof forms, except in Victoria Street where more complex hipped and gable roof forms in terracotta tiles may be provided;

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. Rectangular, timber-framed and vertically orientated window style if single, or in a horizontal bank if grouped windows are visible from the street; . Eaves and verandahs or porches in street elevations. It is policy that alterations and additions to existing dwellings should: . Be single storey in scale when viewed from a street, not including a right-of-way; . Be sited to the rear of the existing dwelling; . Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings; . Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; . Be compatible with the roof form and material of the heritage place when visible from the street; . Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; . Retain contributory features such as chimneys and bluestone foundations; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-5 Ferguson Street Civic and Commercial Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Ferguson Street Civic and Deleted: C101¶ Commercial precinct (HO7) including places individually listed in the Schedule to the Heritage Overlay in Ferguson Street in Williamstown.

Policy basis

Historically, Ferguson Street formed the northern boundary of Williamstown as originally surveyed by Hoddle in 1837 and is significant for its ability to illustrate key phases in its development as a city from the mid-nineteenth to the mid-twentieth century. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To conserve and enhance the historic character and amenity of Ferguson Street that is an important part of its identity and enhances its appeal as a retail centre. To retain the distinctive cultural heritage significance of this precinct, which distinguishes it from other precincts in Hobsons Bay and is derived from: . The commercial buildings that demonstrate the later development of Ferguson Street, which replaced Nelson Place as the main commercial and civic centre of Williamstown between the late nineteenth and mid-twentieth century; . The setting and visual prominence of landmark civic and commercial buildings on key sites throughout the precinct such as the former Williamstown Town Hall and Municipal Offices and the former Punshon’s Federal Stores; . The strong associations with the maritime industries and professions that were key influences in the early historic development of Williamstown;

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. The predominant two storey scale, siting (attached and constructed to the property line), construction (face or rendered brick), roofs concealed behind parapets, and subdivision pattern (narrow frontages) of surviving commercial heritage places, which provide a consistent element throughout the precinct; . The rare surviving original shopfronts, awnings and other early detailing on some buildings.

Policy

It is policy to encourage infill development that has: . Respect for the double storey scale of the precinct with vertical proportions. Development above two storeys may be appropriate if the upper level is setback to minimise visibility from Ferguson Street; . Attached siting with no front setback; . Face pressed brick, smooth rendered brick or masonry style for walls that are visible from Ferguson Street or from streets and lanes that intersect Ferguson Street; . Hipped roof form concealed behind parapets; . Timber framed rectangular windows in upper elevations with vertical proportions if single or a horizontal bank if grouped. Large unbroken expanses of glass on upper facades are generally not supported; It is policy that alterations and additions to existing dwellings should: . Be single storey scale or not exceeding the height of the existing building on the site; . Be sited to the rear of the existing building; . Be the same, or a contemporary interpretation of the wall cladding of the existing building on the site, for walls visible from the street; . Be compatible with the roof form and material visible of the heritage place from the street; . Avoid alterations to significant fabric of the principal façade, or the profile of the main roofline as viewed from the street; . Retain contributory features such as chimneys and bluestone foundations; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped when visible from the street. It is policy that: . Early examples of painted or other types of advertising signage are conserved.

22.01-6 Nelson Place Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Nelson Place Heritage Deleted: C101¶ Precinct (HO21) including places individually listed in the Schedule to the Heritage Overlay in Nelson Place (part) and Cole Street (part) and 1 Parker Street in Williamstown.

Policy basis

The Nelson Place Heritage Precinct is historically significant as it was the major commercial centre of Williamstown in the nineteenth century, and is the area that perhaps best demonstrates the strong relationship between the development of the city and the development of the port. It includes some of the earliest commercial development in

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Williamstown and is important for its strong and long-standing associations with maritime activities that defines the essential character of Williamstown and distinguishes it within the metropolitan area. It also illustrates how self-sufficient close-knit communities were established during the nineteenth century. The Nelson Place Heritage Precinct is also significant as a remarkably intact and cohesive nineteenth century commercial precinct, which is distinguished by its intact and fine examples of nineteenth century commercial architecture from the mid-to-late Victorian period, which illustrate the prosperity of the port at that time. It is also notable for its direct visual relationship with the port and the related cultural landscape provided by the Commonwealth Reserve. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To conserve and enhance the historic character and amenity of Nelson Place that is an integral part of its identity and enhances its appeal as a cultural tourism precinct in a metropolitan context. To retain the cultural heritage significance of this precinct which is derived from: . The pre-1860 buildings, which comprise one of the most significant collections of commercial buildings from this period within Victoria; . The strong associations with the maritime industry and development of the Port of Williamstown during the nineteenth century; . The almost continuous and intact group of two-storey Victorian buildings which are harmonious in scale and siting and display a variety of architectural detail typical of late nineteenth century commercial development; . The presence of a number of substantial nineteenth century commercial buildings, especially banks, designed by noted Melbourne architects; . The unique visual and landscape relationship between the two-storey commercial development in Nelson Place, Commonwealth Reserve and Hobsons Bay, which is not found elsewhere in Melbourne; . The unusual geometry of the intersection between Parker and Cole Streets with Nelson Place, which is emphasised by the placement of the former Williamstown Post Office on the apex of Parker and Cole Streets, and framed by the banks on either corner; . Sections of the roadway that retain basic early century layouts which highlight the period of the precinct, including asphalt and some stone footpaths and basalt kerb and channel with verandah fixings evident in the kerb; . Rare wrought-iron balustrades to open drain inlets and stone paved carriageways at the rear of some sites; . Regular shaped lots with frontages typically between 7-11 metres, which create a distinctive pattern of development; . The mature planting, rotunda, and trees in the Commonwealth Reserve, and the mature street trees in Nelson Place that provide a related cultural landscape setting for the architecture;

Policy

It is policy to encourage infill development that has: . Respect for the double storey scale of the precinct. . Attached siting with no front setbacks.

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. Face or rendered brick for walls visible from Nelson Place, Cole Street, Parker Street or Thompson Street. . Hipped roof forms concealed behind parapets. . Upper floor elevations in windows visible from the street should be rectangular with vertical proportions if single. Large unbroken expanses of glass on upper facades are not permitted. It is policy that alterations and additions to existing dwellings should: . Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street. . Promote the use external colours and materials that compatible with the original colours and materials of the heritage place. . Promote roof forms visible from the street that relate to that of the heritage place. . Promote windows and other building openings visible from the street that relate to those of the heritage place. It is policy that: . Early examples of painted or other types of advertising signage are conserved. . Reconstruction of verandahs should be in accordance with the Nelson Place Verandahs Guidelines, Helen Lardner Conservation & Design, 2002.

22.01-7 Cox’s Garden Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Cox’s Garden Heritage Deleted: C101¶ Precinct (HO2) including places individually listed in the Schedule to the Heritage Overlay in Cox’s Garden.

Policy basis

The Cox’s Garden Heritage Precinct was one of the first private subdivisions created just north of the original government subdivision of Williamstown and illustrates the optimistic early speculative subdivision that occurred in anticipation of the future development of the port and the township. It contains at least two rare examples of small pre-1860 timber houses, which are amongst the oldest group of houses in Williamstown and the oldest group of timber houses in the metropolitan area. It is also important for the historical associations of early residents of Cox's Garden with the early maritime pursuits that distinguish Williamstown in the metropolitan area. The Cox’s Garden Heritage Precinct is now a rare surviving example of the small private subdivisions that were created in the area to the north of Ferguson Street with their distinctive “cheek by jowl” character of modest, cheaply constructed and often prefabricated housing erected for working class people during the earliest period of settlement. The historic character of this precinct, so different to the spacious streets in the Government Survey to the south of Ferguson Street, may still be understood and interpreted despite the loss of all but one house on the west side and the development of a public car park. Few other streets, either in Williamstown or the metropolitan area, have retained this distinctive early character. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016relating to this precinct. Deleted: 2014

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Objectives

To support the reconstruction of buildings on the west-side of the street. To retain the distinctive cultural heritage significance of this precinct which is derived from: . The rare pre-1860 timber cottages, which illustrate the early development of Cox’s Garden and are part of one of the most significant collections of buildings from this period within any municipality in Victoria; . The strong association with maritime industries that is an integral part of the character of Williamstown; . The uniform single storey scale, siting (detached, parallel and close to the frontage), construction (predominantly horizontal weatherboard with simple hip roof) and subdivision pattern (single dwellings on narrow rectangular allotments) of the heritage places. Typically, there is no provision for car parking on site; . Regular shaped lots with average frontages of 10 metres, which creates a distinctive pattern of development.

Policy

It is policy to encourage infill development that has: . Respect for the single storey scale of the precinct with detached siting parallel to the frontage; . Minimal frontage setbacks and small side setbacks; . Horizontal weatherboards of walls visible from Cox’s Garden; . Simple hipped roof forms of corrugated iron; . Symmetrical facade composition with centrally located doorways flanked by rectangular double hung timber-framed windows that are vertically orientated; . Narrow eaves and verandahs in street elevation. It is policy that alterations and additions to existing dwellings should: . Be single storey in scale when viewed from a street; . Be sited to the rear of the existing building; . Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings; . Promote the conservation of original or significant fabric, and missing fabric reconstructed where opportunities arise; . Promote horizontal weatherboard cladding for walls visible from Cox’s Garden; . Promote roof forms and material visible from the street that is compatible with that of the heritage place; . Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows visible from the street that are rectangular, timber- framed and vertically orientated if single, or in a horizontal bank, if grouped.

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It is policy to: . Encourage construction of the original street detailing including basalt kerb and channel and asphalt footpaths; . Discourage vehicle crossovers at the frontage of sites; . Encourage low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling, unless historic evidence to the satisfaction of the Responsible Authority can be given for an alternative design.

22.01-8 Housing Commission of Victoria Estates Heritage Precincts Policy 17/07/2014 Proposed C107 Deleted: C101¶ This policy applies to all land and heritage places within Housing Commission of Victoria - Champion Road Estate Heritage Precinct (HO15) and Housing Commission of Victoria - West Newport Estate Heritage Precinct (HO16) including places individually listed in the Schedule to the Heritage Overlay.

Policy basis

The Housing Commission of Victoria (HCV) developed the Champion Road and West Newport estates during the mid to late 1940s. These estates represented a new approach to housing provision to address criticism of the poor quality of earlier HCV estates and respond to criticism of the HCV’s policy of slum reclamation in the Interwar period. Each estate comprises semi-detached, gabled houses arranged in mirror-image pairs with near identical siting, orientation and setbacks. Some retain original low front fencing, typically wire and steel posts. Houses in the Champion Road Estate were constructed of red or clinker brick or stuccoed concrete walls. The West Newport Estate was the first to use the “Fowler” method of prefabricated concrete construction using panels made at the HCV’s plant at Holmesglen. The homogeneous Interwar character of both precincts is enhanced by original concrete roads and footpaths, mature trees in some streets, and centrally located areas of open space to which some of the houses are orientated. These features demonstrate the efforts made by the HCV to promote these areas as model housing estates. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To support the upgrading of these dwellings to meet modern lifestyles in a manner that is compatible with their significance. To retain the distinctive cultural heritage significance of these precincts which is derived from: . The homogeneous Interwar character that is demonstrated by uniform single storey scale, semi-detached siting with identical front and side setbacks, brick (Champion Road) or concrete (West Newport) construction, tiled gable roofs, and regular subdivision pattern single dwellings) of the contributory heritage places; . The strong associations with the Housing Commission of Victoria as early examples of new responses to public housing in the post-war period; . The original public realm elements including the concrete streets and footpaths, parkland, which enhance the Interwar character of the estates; . Regular shaped lots with average frontages of 12 metres, which create a distinctive pattern of development.

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Policy

It is policy to encourage infill development that has: . Respect for the single storey scale of the precinct; . Identical building footprints that mirror the adjoining attached dwelling for the parts of the dwelling visible from the street; . Red or clinker style brick in Gem Street or Cerberus Crescent, or smooth rendered brick or masonry construction in other streets for walls visible from the street; . Simple gable roof forms of corrugated iron or terracotta tiles that mirror the adjoining attached dwellings; . Similar regular fenestration to the original houses in walls visible from the street; . The provision of eaves. It is policy that alterations and additions to existing dwellings should: . Be single storey in scale however, double storey scale may be permitted if it is setback behind the main ridgeline of the dwelling to minimise visibility from the street; . Be sited at the rear of the existing building; . Smooth rendered brick or masonry construction for walls visible from the street; . Promote roof forms and material visible from the street that is compatible with the heritage place; . Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows visible from the street that are timber framed with the same proportions as original windows.

22.01-9 Newport And Spotswood Residential Heritage Precincts Policy 17/07/2014 Proposed C107 This policy applies to all land and heritage places within the Spotswood Residential Deleted: C101¶ Heritage Precinct (HO30), Halls Farm Heritage Estate (HO11) Newport Estate Heritage Precinct (HO23), and Grindlay’s Estate Heritage Precinct (HO10) including places individually listed in the Schedule to the Heritage Overlay.

Policy basis

Speculators subdivided large areas of Newport and Spotswood in the late nineteenth century. In contrast to the haphazard small-scale subdivision that occurred in North Williamstown, the subdivisions in Newport and Spotswood were orderly grid subdivisions. However, like many other speculative subdivisions of the time, they were not developed until industrial expansion in the late nineteenth and early twentieth centuries transformed farmland in the area and created a demand for housing for its workforce. The historic pattern of development demonstrates the influence of the stations at Spotswood and Newport with earlier development generally located in close proximity to the stations. The streets include groups of late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as Hope, Robert and George Streets in Spotswood, to more predominantly Edwardian and Interwar enclaves in Newport. The houses share common elements of scale, siting, materials and roof forms, which create cohesive groups that are an important part of the historic character of this precinct. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character.

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This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To retain the distinctive cultural heritage significance of these precincts, which is derived from: . The traditional grid street layout, Victorian-era dwellings, and other elements such as basalt kerb and channels and rear laneways that illustrate the nineteenth century origins of these precincts; . The strong associations of many early residents with the major industries in this area that were key influences in the historic development of Newport and Spotswood during the early twentieth century; . The architectural diversity, which comprises villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regularly shaped similar sized allotments) of residential buildings, which provide a unifying element throughout the precincts; . Regular shaped lots with frontages predominantly between 12-15 metres interspersed with some narrower lots, which creates a distinctive pattern of development.

Policy

It is policy to encourage infill development that has: . Respect for the single storey scale of the precinct. Double storeys may be appropriate if it is setback to minimise visibility from the street; . Detached siting parallel to the frontage; . Symmetrical or asymmetrically designed double fronted forms; . Contemporary interpretation of the wall materials found on heritage places in the same street for walls visible from the street; . Simple hipped corrugated iron roof form, except in streets with predominantly Edwardian or Interwar character where more complex hipped and gable roof forms are appropriate. Alternative roof materials may include slate in predominantly Victorian streets or terracotta in predominantly Edwardian or Interwar streets; . Rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped, windows when visible from the street; . Eaves and verandahs or porches in street elevations. It is policy that alterations and additions to existing dwellings should: . Be single storey scale when viewed from the street; . Be sited to the rear of the existing building; . Promote side setbacks that reflect the existing spacing between dwellings; . Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street; . Promote roof forms and materials compatible with the heritage place; . Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street;

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. Retain contributory features such as chimneys; . Avoid windows in upper floor elevations facing the street; . Promote ground floor windows visible from the street that are rectangular, timber framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-10 Newport Civic and Commercial Heritage Precinct Policy

17/07/2014 Proposed C107 This policy applies to all land included within Newport Civic & Commercial Heritage Deleted: C101¶ Precinct (HO22) and Melbourne Road Commercial Heritage Precinct (HO20) including places individually listed in the Schedule to the Heritage Overlay in the Melbourne Road Commercial Heritage Precinct (HO20).

Policy basis

Newport shopping centre developed because of its proximity to the railway station, originally known variously as ‘Geelong Junction’, ‘Greenwich’ or ‘Newport Junction’. The 1880’s was an era of speculative development and grand Victorian buildings including the former Newport Hotel erected in 1887, the former Commercial Bank erected in 1888 and the two storey Italianate shop at 15-17 Mason Street, erected in 1891 illustrate the optimism for the future development of this area. The recession of the 1890’s meant that development temporarily ceased, until expansion of industries in the early part of the twentieth century led to increased residential development and consequently, expansion of this shopping centre. Most of the development of the centre therefore occurred within the Edwardian and Interwar period, which included the construction of the Edwardian brick station complex in 1912 to cater for the growing population. The Newport Civic and Commercial precinct today comprises a number of individually notable Victorian-era buildings interspersed amongst groups of Edwardian and Interwar- era shops, which share common siting, scale, and use of materials, which create cohesive groupings that contribute to the character and identity of this centre. This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct. Deleted: 2014

Objectives

To conserve and enhance the historic character and amenity of Newport that is an integral part of its identity and enhances its appeal as an important local retail centre. To retain the distinctive cultural heritage significance of this precinct which is derived from: . The strong associations between the historic development of this precinct and the development of the railway, and later, the expansion of major industries in the area during the early twentieth century; . The uniform Interwar era shops of single storey scale, attached siting with roofs concealed behind parapets in Melbourne Road (north of Mason Street); . The fine examples of predominantly Edwardian and Interwar commercial buildings of similar scale, face brick or rendered masonry construction, attached siting, and roofs concealed behind decorative parapets that give this centre its unique historic character and identity; . The rare surviving examples of early shopfronts and other detailing such as early or original signage;

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. The visual prominence and setting of historic landmark buildings such as the Former Masonic Temple, Newport Station complex, Newport Hotel, and the former Bank of Australasia. Significant vistas along Melbourne Road to the Masonic Temple and the Newport Hotel remain.

Policy

It is policy to encourage infill development that has: . Respect for the double storey scale fronting Hall Street and Melbourne Road (south of North Road). Development above two storeys should be setback from the main facade to minimise visibility from Hall Street; . Respect for the single storey scale fronting Melbourne Road (north of Mason Street). Upper storeys should be setback to minimise visibility from Melbourne Road and protect the vista to the Masonic Temple; . Attached siting with zero frontage setbacks; . Face or rendered brick to the facade facing Hall Street or Melbourne Road, and a contemporary interpretation of traditional building materials and forms at the rear of properties; . Hipped roof forms concealed behind parapets, with hipped or skillion roofs at the rear; . Upper floor windows in facades facing Hall Street or Melbourne Road should be rectangular with vertical proportions if single or a horizontal bank, if grouped; . Upper floor facade articulation should incorporate contemporary interpretations of traditional building forms in the precinct such as projecting window bays, or recessed balconies; It is policy that alterations and additions to existing dwellings should: . Incorporate contemporary interpretations of building styles and forms found in the precinct in facades facing Hall Street or Melbourne Road; . Promote upper floor additions that are setback to minimise the visual impact upon Hall Street and Melbourne Road; . Avoid separations between buildings at the front; . Incorporate the traditional use of buildings as retail or commercial at the street frontage and residential above or behind. It is policy that: . Early examples of painted or other types of advertising signage are conserved.

22.01-11 Industrial Heritage Places Policy

17/07/2014 Proposed C107 This policy applies to all land zoned Industrial 1, Industrial 3 or Special Use that is Deleted: C101¶ included within the Heritage Overlay.

Policy basis

Since the mid-nineteenth century, a dominant theme in the development of Hobsons Bay has been the growth of industry. Some of Victoria’s most significant industrial heritage is now found within the city. Industries associated with meat and meat processing, engineering and fuels including coal, gas, electricity and petroleum have been dominant in Hobsons Bay over a long period of time. Many industries have been important not only locally, but also to the Victorian and national economy. Significantly, early industries such as the railway workshop and shipyard provided plentiful and steady employment for local

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residents. While many large industries have disappeared, industry in Altona, particularly at the petro-chemical complex, continues to employ a significant proportion of the labour force resident in the area. The Hobsons Bay Heritage Study Amended 2016 has identified a wealth of industrial Deleted: 2014 heritage in the area, including places such as the former Commonwealth Oil Refinery complex in Altona North, that are no longer used for their original purpose and have been redeveloped, to complexes such as the former Melbourne Glass Bottle works (now ACI) that continue processes commenced more than a century ago. The conservation of industrial heritage places presents specific management issues, as it is often the use of the site that is of primary historical significance. While fabric such as buildings or plant contributes to the significance of industrial heritage places by illustrating development over time, the on-going replacement and upgrading of this fabric is often an integral part of the operation of the use. . This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016relating to this precinct. Deleted: 2014

Objectives

To ensure the continued viability of industrial heritage places for the uses and processes historically carried out on the site as an essential part of their significance and conservation. To increase awareness about the importance of industrial heritage in the municipality. To ensure that heritage issues are given appropriate consideration at an early stage when making decisions about the future use and development of industrial sites. To retain the distinctive cultural heritage significance of industrial heritage places which is derived from: . The traditional and on-going use of industrial heritage places over a long period; . The important influence of the industrial heritage places on the economic and social development of the city; . The sheer size and extent of nineteenth century industries in Newport and Spotswood, which demonstrates not only their local economic importance, but also their importance to the economy of Victoria; . The probable national significance of the Newport, Spotswood and North Altona region as one of the most historically important centres in relation to the development of the petroleum and petrochemical industries in Australia; . The surviving examples of early industrial building types, plant and equipment; . The associated infrastructure such as railways, pipe-lines, roads and wharves that are essential in understanding the complex historical interrelationships that occurred in the development of industries (particularly the petroleum and petrochemical industries) in the area.

Policy

Where a permit is required by the Heritage Overlay, it is policy that applications for development should have regard to: . The continued viability of the historic use of the site; . The balance between achievement of conservation objectives and economic viability, and occupational health and safety; . The conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment;

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. The retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it; . Keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority. When a use is discontinued and a site is redeveloped, new development including subdivision should have regard to: . The retention of as much significant fabric as possible; . The creative interpretation of the history of the heritage place through the design or layout of new development including buildings, subdivision, landscaping, movement systems and public art; . The incorporation of a publicly visible historic marker, which provides the history of the site and may include text, images or maps to the satisfaction of the Responsible Authority.

Decision Guidelines

It is policy that before deciding on an application the Responsible Authority consider, as appropriate: . Whether the proposed buildings, works or demolition will support the viability of the historic industrial use carried out on the site; . Whether there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation; . Whether the proposed interpretation will provide adequate information about the historic use and development of the site.

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11 /12/2008 SCHEDULE 2 TO THE SPECIAL USE ZONE

Proposed C107 Deleted: C62(Part 1) Shown on the planning scheme map as SUZ2

PETROLEUM REFINERY AREA

Purpose

To provide for the operation and modernisation of the petroleum refining industry in a manner that does not affect the safety and amenity of nearby residential areas. To provide for the orderly and proper development of the area and for adequate landscaping to reduce the visual impact of the refinery.

1.0 Table of uses 11/12/2008 C62(Part 1) Section 1 - Permit not required

USE CONDITION Apiculture Must meet the requirements of the Apiary Code of Practice, May 1997.

Car park

Industry Must be a petroleum refinery in accordance with Clause 2.0 of this schedule.

Mineral exploration

Mining Must meet the requirements of Clause 52.08-2.

Minor utility installation

Natural systems

Railway

Road

Search for stone Must not be costeaning or bulk sampling

Service station

Section 2 - Permit required

USE CONDITION Mail centre

Utility installation (other than Minor utility installation)

Animal keeping Must meet the requirements listed in the Code of Practice for the Welfare of Horses Intensive animal husbandry

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Section 3 - Prohibited

USE Dry cleaner

Laundromat

Rural industry

Any use not in Section 1 or 2

2.0 Use of land 19/01/2006 VC37 For the purpose of this schedule a petroleum refinery is defined as an industry using plant, equipment and facilities for the conversion of crude oil and other feed stocks into finished and intermediate petroleum products and by-products. This includes facilities for the receipt of crude oil and other feed stocks, facilities for the storage of crude oils, intermediate and finished products and by-products, pumping, pipeline and distribution facilities, units for the removal and control of impurities and by-products, waste treatment facilities, utilities including steam raising and electrical generating equipment, control rooms, laboratories, research facilities, administration, warehousing, maintenance, training and amenity buildings and facilities and other associated works. Land may be used as a petroleum refinery provided that the land south of Kororoit Creek Road and to the west of the 3 metre contour (Australian Height Datum) is maintained as a conservation area to the satisfaction of the responsible authority. The use of the land for a petroleum refinery is exempt from the standard and reduced parking requirements of Clause 52.06 if parking is provided on the site to the satisfaction of the responsible authority.

Application requirements

An application to use land must be accompanied by the following information, as appropriate: . The purpose of the use and the types of processes to be utilised. . The type and quantity of goods to be stored, processed or produced. . How land not required for immediate use is to be maintained. . Whether a Works Approval or Waste Discharge Licence is required from the Environment Protection Authority. . Whether a licence under the Dangerous Goods Act 1985 is required. . The likely effects, if any, on the neighbourhood, including:  Noise levels.  Air-borne emissions.  Emissions to land or water.  Traffic, including the hours of delivery and despatch.  Light spill or glare.

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Decision guidelines

Before deciding on an application to use land, the responsible authority must consider, as appropriate: . The State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies. . The effect that the use may have on nearby existing or proposed residential areas or other uses which are sensitive to industrial off-site effects, having regard to any comments or directions of the referral authorities. . The effect that nearby industries may have on the proposed use. . The drainage of the land. . The availability of and connection to services. . The effect of traffic to be generated on roads. . The interim use of those parts of the land not required for the proposed use.

3.0 Subdivision 19/01/2006 VC37 Exemptions

An application is exempt from the notice requirements of Section 52(1)(a), (b) and (d), the decision requirements of Section 64(1), (2) and (3) and the appeal rights of Section 82(1) of the Act. This exemption does not apply to land within 30 metres of land (not a road) which is in a residential zone or Business 5 Zone, land used for a hospital or school or land in a Public Acquisition Overlay to be acquired for a hospital or school.

Decision guidelines

Before deciding on an application to subdivide land, the responsible authority must consider, as appropriate: . The State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies. . Any natural or cultural values on or near the land. . Streetscape character. . Landscape treatment. . Interface with non-industrial areas. . Whether the development would prejudice the continued operation of the petroleum refinery.

4.0 Buildings and works

19/01/2006

Proposed C107 Deleted: VC37 Permit requirement

A permit is required to construct a building or construct or carry out works. This does not apply to a building or works which:

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. Provide or alter plumbing and electrical services. . Involve the minor rearrangement of car parking areas and landscaping provided that these areas are not diminished. . Rearrange, alter or renew plant if the areas of plant external to existing buildings is not increased. . Are a temporary shed or structure, not exceeding 100 square metres in floor area, which is outside driveway, car parking, loading or landscaping areas. . Any works carried out by a public authority or a municipal council in association with the development of new plant or buildings. . Comply with a direction or licence under the Dangerous Goods Act 1985 or a Waste Discharge Licence, Works Approval or Pollution Abatement Notice under the Environment Protection Act 1970.

Deleted: Other exemptions are listed in Application requirements Clause 62.01¶

An application to construct a building or construct or carry out works must be accompanied by the following information, as appropriate: . A plan drawn to scale which shows:  The boundaries and dimensions of the site.  Adjoining roads.  Relevant ground levels.  The layout of existing and proposed buildings and works.  Driveways and vehicle parking and loading areas.  Proposed landscape areas.  External storage and waste treatment areas. . Elevation drawings to scale which show the colour and materials of all buildings and works. . Construction details of all drainage works, driveways and vehicle parking and loading areas. . A landscape layout which includes the description of vegetation to be planted, the surfaces to be constructed, a site works specification and the method of preparing, draining, watering and maintaining the landscape area. The layout is to include landscape buffers along Millers Road and Kororoit Creek Road frontages and all other boundaries of the refinery. . The type of use and the process to be employed. . Dust control, drainage and maintenance of areas not required for immediate use. . The type and quantity of goods to be stored and whether a licence is required under the Dangerous Goods Act 1985.

Exemptions

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Decision guidelines

Before deciding on an application to construct a building or construct or carry out works, the responsible authority must consider, as appropriate: . The State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies. . The views of the Environment Protection Authority, the Department of Natural Resources and Environment and the Minister administering the Dangerous Goods Act. . The adequacy of information supplied on the type of use and the processes to be employed. . Drainage of the land . The views of a relevant waterway management authority constituted under the Water Act 1989 or any other Act about any proposed development within the flood plain of the Kororoit Creek. . Availability of services. . Effect of traffic on surrounding roads. . Layout of the site and design of buildings including methods of minimising the visual impact of the refinery on:  nearby residential areas.  Kororoit Creek Road.  Millers Road.  Kororoit Creek.  Altona Coastal Park.  Cherry Lake. . Layout of the site and design of buildings including:  The relationship of the buildings and works to the street and adjoining properties.  The set backs from Millers Road and Kororoit Creek Road. . Access and egress, car parking, access roads and loading bay layout.

5.0 Advertising signs 19/01/2006 VC37 This zone is in Category 2.

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14/03/2013 SCHEDULE TO THE HERITAGE OVERLAY Proposed C107 Deleted: VC85¶ The requirements of this overlay apply to both the heritage place and its associated land.

PS Heritage Place External Internal Tree Outbuildings Included Prohibited Name of Aboriginal Map Paint Alteration Controls or fences on the uses may Incorporated heritage Ref Controls Controls Apply? which are not Victorian be Plan under place? Apply? Apply? exempt under Heritage permitted? Clause 43.01-2 Clause 43.01-3 Register under the Heritage Act 1995? Heritage Precincts listed alphabetically by name of precinct

note - precincts generally contain a mix of contributory and non-contributory buildings – refer to Citation in Hobsons Bay Heritage Study for details. HO201 Melbourne-Geelong Railway Bridge and No No No No No No No Stone Ford over the Laverton Creek intersection Merton Street and Railway Avenue, Altona Meadows There is no HO202 Deleted: HO202 HO203 Main Outfall Sewer (Hobsons Bay Section) - - - - Yes No No Deleted: Standard Vacuum Refining Ref No Company Complex (former)¶ 351- 381 Millers Road, Altona Millers Road to Princes Highway, Brooklyn H1932 Deleted: No Deleted: No Deleted: No Deleted: No Deleted: No Deleted: No Deleted: No

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LIST OF AMENDMENTS

Amendment In operation Brief description number from

C96 5 NOV 2015 The amendment rezones lots 222-238 and 240-258 Koroit Creek Road, Williamstown North from Industrial 3 Zone to General Residential Zone, Schedule 3, apply the Environmental Audit Overlay and a new schedule to the Design and Development Overlay.

C107 Deletes the Heritage Overlay (HO202) on the Mobil Altona Refinery at 350 Millers Road, Altona. Amends Schedule 2 to Clause 37.01 to delete the reference to incorrect reference to Clause 62.01. Amends the date of the Hobsons Bay Heritage Study referred to throughout the Planning Scheme from 2014 to 2016.

LIST OF AMENDMENTS PAGE 1 OF 1 H O B S O N S B A Y P L A N N I N G S C H E M E

D W R I N V T G DS S

D O R R

T P S A P R O T CR H

B R Y A N S N A L R GILLIGA L E N A

L B R IL E D H R M S K R E O C T L N E Y cI Y E M L

R C

E R

A H

G V T

O A V

H ROS D S N I S L W L I Paisley M Station RD

KO ROR OIT

CR EEK

0100200

R R D metres T C

E T

S N

R A

U G S

R C

E E

L C

L A I R

LEGEND Part of Planning Scheme Map 9HO Area to be deleted from a Heritage Overlay (D-HO202) AMENDMENT C107

001

Heritage Place Name Standard Vacuum Refining Co. Complex (Former) Address 351-381 Millers Road, Altona North Heritage Overlay No. Not applicable Deleted: HO202 Heritage Precinct(s) Not applicable

Significance

Local Style & Type

Industry - Oil Refinery Deleted: Victorian cottage Significant Dates

1949-53 Designer

Stephenson & Turner Builder

Braun Transworld

Statement of Significance

What is Significant? The Standard Vacuum Refining Co complex (former), now Mobil Oil Refinery, comprising the buildings and plant generally constructed between 1949-60, at 351-381 Millers Road, Altona North.

How is it Significant? The Standard Vacuum Refining Co complex is of local historic, social, technical and aesthetic significance to the City of Hobsons Bay.

Why is it Significant? Historically, it is significant for its strong associations with the development of the oil industry in Australia as one of the oldest continuously operating oil refineries in the country. It is also significant as a major refinery and office complex that illustrates the immense industrial expansion of the City and Victoria in the post World War 2 period. The size of the complex had a significant impact on the economy of the State of Victoria and led to the establishment of a petro-chemical complex within this area with a number of associated firms such as Australian Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex have associations with the important architectural firm of Stephenson & Turner. (AHC criteria A4 and H1) Socially, it significant for its strong associations with the local community as one of the first major industries in the Altona area and one of the largest employers over a long period. It is also significant for its associations with the development of the labour movement in Australia through the introduction of the concept of collective bargaining techniques, which were first used at this site. (AHC criteria D2 and G1) Deleted: 2014

Hobsons Bay Heritage Study Amended - 2016- Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 351-381 Millers Road, Altona North Page 1 of 6

Page 669 of 1082

Technically, it is significant for early plant and equipment such as the Thermofor Catalytic Cracking Plant, which is unique in the State. (AHC criterion F1) Aesthetically, although altered, the c.1955 office block is significant as a good example of modernist design that illustrates the progressive nature of the Standard-Vacuum company and investment made in the establishment of the complex at the time. (AHC criterion E1)

History

Specific history Construction of the Standard-Vacuum refinery complex at Altona North was commenced in 1946 and production commenced by July 1949. The 1950s was a boom time in the oil industry. In 1953 the total market for refined projects was around 43 million barrels, of which only 7 million were refined locally. By 1958, this figure had jumped to 71 million barrels, of which 63 million were refined locally. Consequently, Standard Vacuum made plans to extend the refinery soon after it came on stream. (Allom Lovell 2002:25-26) A Californian corporation, Braun Transworld, was contracted to build the new plant along with its engineering techniques. Early in 1953, it negotiated agreements with twenty unions and 1700 workers, which entitled employees to a weekly wage of £1 higher than award rates. Bonuses were also paid. Consequently, work began on the enlarged refinery in 1952 and was completed in a remarkable 22 months. The area covered by the new facility was 340 acres and at the same time the company also reclaimed four and a half acres of land and rebuilt the Breakwater Pier at Williamstown for delivery of crude oil to be piped to the refinery. Four huge transit tanks were also erected at Williamstown. The expanded refinery was opened on 4 April 1955 in ‘lavish style’ at a ceremony attended by over 1200 guest presided over by the Prime Minister, RG Menzies. Originally estimated at £7.5 million, the final cost of the expansion was subsequently increased to a massive £20 million. In telling comparison, Menzies pointed out that not long before the war, that had been the size of the total federal budget. (Priestly 1988:218) Although the refinery included 'a million feet of pipe with 60,000 welded joints, ... 300 miles of electrical wiring, six miles of paved roads, five acres of concrete paving and 19 buildings' in pride of place was the Thermofor Catalytic Cracking Plant, a towering landmark, 268 feet high. A number of new office and administration buildings designed by Stephenson & Turner, were constructed facing Millers Road and Kororoit Creek Road. The striking modern design of the two storey administration building (now the Pegasus Centre) at the south west corner of Millers Road and Kororoit Creek Road was cited in the RVIA 1956 Olympics guide to the State's architecture as an example of the industrial expansion of the post WW2 era. The new amenities block included a full cafeteria and an auditorium seating four hundred which was suitable for plays, concerts and film (Priestly 1988:217) The Williamstown Chronicle described the ‘dream standards’ of accommodation in the new administration block, which was air-conditioned and heated with natural light filtered by tinted glass, visor shade and outside aluminium louvers. Priestly (1988:217) observes that: It was Collins Street comfort set in sweeping plains, amoung the best mushrooming country near Melbourne. The noted landscape gardener, John Stevens, was involved with the landscape design of this complex, as well as the Shell Oil Refinery in Geelong. (Hendry, 2000) The expansion of the plant allow Standard-Vacuum to vastly extend the refinery's product range into motor vehicle fuels and, in 1956, it produced Australia's first locally made aviation gasoline. The size of the complex and its workforce led to the opening in 1953 of a dedicated railway station at a location, quite near to the old Williamstown Racecourse station, which was dismantled in 1951. The Standard Vacuum Platform as it was originally known was built initially for the use of employees of the new refinery. Its name was soon changed to Mobiltown and it was available to general passengers from 1958. Deleted: 2014

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Other key periods in the development of the plant include: . In 1958, Mobil announced the construction of a major petrochemical plant next to the Altona Refinery in Melbourne that produced its first products for sale in June 1961. . The discovery of vast reserves of crude oil and gas in the Bass Strait in the early 1960s changed the Australian refining industry dramatically, as all companies changed to processing the locally produced oil instead of importing their raw materials. In 1970 further expansion and modification of the Altona Refinery near Melbourne was completed, making it possible for Bass Strait crude to be processed in the plant. The refinery attracted the beginnings of Australia's most significant petro-chemical conglomerate. First came Australian Carbon-Black (now occupied largely by Cabot Australasia), which soon became noted for the carefully landscaped and maintained gardens in its grounds. The following year the Altona Petro-Chemical Company commenced producing ethylene and butadiene, materials used in the production of plastics and rubber. Other major companies followed: Australian Synthetic Rubber, BASF Australia, Commercial Polymers, Dow Chemical, BF Goodrich Chemical and Hoechst Australia, forming the Altona Petrochemical Complex. The companies operated independently, but were able to take advantage of being located close to each other in terms of using raw materials and sharing some services. The complex expanded over the next 20 years to meet increases in local and export demand. The complex now makes a vital contribution to Victoria's economy. It is one of Australia's largest industrial centres and is the biggest single employer in the Western suburbs, representing 1.3% to 2.2% of the state's manufacturing industry labour force. The complex accounts for 44% of the output of the basic chemicals sector of the Victorian economy and 3.3% of the total Victorian manufacturing industry input.1 Beyond those directly employed by the complex, many other jobs in the state stem from its activities. For every job provided in the complex, another 1.6 jobs are made available throughout the Victorian economy. 2Employment opportunities directly provided by the Altona Chemical Complex amount to about 9% of the western region's total labour force and about 23% of the manufacturing employment in the region. 3 After 1960 the refinery became known as PRA (Petrol Refineries Australia) and is now referred to as the Mobil Altona North Refinery. Mobil has now embarked on a long term program to modernise the Altona Refinery, including the installation of a new catalytic cracking unit, to help make the refinery among Australia's most efficient. The modernisation will equip the refinery with new, ultra-modern process equipment designed to meet increasingly stringent environmental and product quality requirements and providing the flexibility to handle a wide range of crude oil feedstocks' { Mobil Australia}. History of Mobil Oil Australia Mobil was the first oil company in Australia. It began as Vacuum Oil, opening the Queen Street, Melbourne, branch in February 1895, less than 30 years after Vacuum first started operations in the United States. Vacuum Oil's first salesman in Australia, Mr David Clarke, sold the company's first barrel of lubricating oil to a gold mining operation at Eaglehawk, near Bendigo, on his first day in the job. In March 1904, Vacuum Oil was officially incorporated under Victorian Law as a proprietary company, and in 1906 the company issued Australia's first ever chart of "Recommendations to Motorists" covering about 200 makes of car. By 1908, Vacuum was growing rapidly and merged with the Colonial Oil Co, a company marketing kerosene and motor spirit, adding to Vacuum's specialty lubricant products. In 1916, Vacuum introduced its "Plume" and "Laurel" brands to the Australian market and a year later brought its first 100 gallon, horse drawn tank wagon into service. As motor vehicles became more popular in Australia, Vacuum expanded its operations. In 1924 Vacuum opened its first bulk petroleum products terminal at Pulpit Point in Sydney and took delivery of its first imported bulk oil products cargo, a 1.5 million gallon shipment carried from the United States by the tanker "HT Harper". A decade later, Vacuum introduced "Ethyl", Australia's first Super

1Shire of Altona (1965) Altona, A Good Place to Live and Work (pamphlet) 2Thomas Mandeville (1985) The Impact of the Altona Chemical Complex on the Victorian Economy (pamphlet) 3Mandeville, op cit. Deleted: 2014

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grade motor spirit. Around the same time in the US, Vacuum's parent company, Vacuum Oil Inc, merged with the Standard Oil Company of New York to become Socony Vacuum, then Socony Mobil that ultimately became Mobil Corporation. Socony Mobil introduced the Flying Red Horse (Pegasus) logo. It appeared in Australia in 1939 and became one of Australia's best recognised corporate symbols. In October 1946, Mobil began constructing the Altona oil refinery. The refinery commenced operations in June 1949, initially making lubricating oil and bitumen from imported crude oil. In 1973 Mobil Oil Australia announced its return to the production of lubricating oils in Australia and commenced construction of a lubricating oil refinery alongside the existing Adelaide fuels product refinery. The lubricating oil refinery, the most modern one in Australia, opened in 1976. In 1985, Mobil Oil Australia negotiated a major asset swap with BP Australia in which Mobil vacated the Perth retail market in exchange for acquiring a large portion of BP's South Australian, Victorian and New South Wales retail market. Two years later, Mobil completed a major upgrade of its Yarraville bulk fuels terminal in Melbourne to create the most efficient and technologically advanced petroleum products terminal in Australia. In late 1990, MOA announced the purchase of Esso Australia's refining and marketing operations. This gave MOA 100 per cent ownership of Petroleum Refineries (Australia) Pty Ltd, the company that operated both the Altona and Adelaide refineries. Completed in January 1991, the acquisition lifted Mobil to second place among the petroleum marketing and refining companies in Australia. In December 1995 Mobil re-entered the West Australian market when it purchased the service station network and wholesale business of Amgas. A program of investment and expansion in Western Australia will take place over the next few years through upgrading the chain and building new sites.

Description

The complex includes the following buildings: . The refinery itself comprising various equipment, pipes, tanks and stacks, all set out on a rectilinear grid between the railway, Millers Road and Kororoit Creek Road. It includes the 248 feet high Thermofor Catalytic Cracking Plant (now decommissioned), which is thought to be the last vertical catalytic cracker in Australia. . The auditorium, canteen and locker building, located at the north-east corner of Kororoit Creek Road and Millers Road, which has a flat roof, is clad with cream bricks and has aluminium framed windows with green glass panels. This is one of the buildings designed by Stephenson & Turner. . The former office/laboratory building (now the medical centre), which is a concrete block with a hip roof building facing Millers Road. . The former Administration buildings, designed by Stephenson & Turner, on the south west corner of the Millers-Kororoit Creek Roads intersection. This building was pictured in the guide to architecture in Victoria, which was produced by the RVIA for the 1956 Olympics. This building has since been changed by a general renovation in recent times. . A tank farm on the south side of Kororoit Creek Road. The number of tanks has been greatly expanded since the 1940s. The plant has also been expanded, with some additional land occupied to the east, but the original plant has not been radically changed. An aerial view of the site titled “January 1955 The new refinery already looks complete” shows little change from recent aerial views. (Priestley 1988:206)

External Condition Good External Integrity Substantially intact/some intrusions, with the exception of the administration and cafeteria. Deleted: 2014

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Context Set in an open industrial landscape which is complemented by the Kemcor Australia (now Qenos) plant further to the west, separated by Cherry Lake.

Comparative Analysis

The integrity of the plant is high to its 1940s-50s development stages and thus it is perhaps the most complete complex of its kind in the region from this key era. Another example is the Kemcor Australia (now Qenos) plant which has many new elements.

Thematic Context

Principal Australian Historical Theme(s) Utilising mineral resources, Extracting oil & gas Associations Standard-Vacuum Refining Company (Australia) Ltd., Mobil Refining Australia Pty Ltd, Stephenson & Turner

Recommendations

Statutory protection Hobsons Bay Planning Scheme: No Deleted: Yes Heritage Victoria Register: No Register of the National Estate: No National Trust Register: Recommended Management objectives Conserve elements that contribute to the significance of the place and ensure that new development is sympathetic to the historic character of the place in accordance with the relevant articles and conservation principles, processes and practice set out in the Burra Charter. Refer to the relevant Heritage local policy at Clause 22.01 of the Hobsons Bay Planning Scheme.

References

Hobsons Bay City Council, Hobsons Bay Thematic Environmental History, 2003 Graeme Butler & Associates (2001) Altona, Laverton and Newport Districts Heritage Study Strahan, L 1994 At the Edge of the Centre. The History of Williamstown. p.378 Priestley, S (1998) Altona. A Long View pp.206-07, 216-19 Standard Vacuum Refining Company (Australia) Ltd. 1955. Altona Story (SVRC) Mobil Australia web site history, www.mobil.com.au. Hendry, M in Australian Garden History V.12 N.1 (July/August 2000) p.19 Vines, G. (Biosis Pty Ltd), 2015, Altona Refinery Conservation Management Plan

Deleted: 2014

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Additional Images

The image on the cover is an overall view of the complex. Additional images are provided below.

Above: c.1955 view showing Thermofor Administrative building (Pegasus Centre) designed Catalytic Cracker in centre. Below: Cafeteria by Stephenson & Turner and constructed c.1955

Deleted: 2014

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