Cape Otway Lightstation Conservation Management Plan 1994 and addendum

197 Pages·2015·11 MB·English

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CAPE ,OTWAY LIGHTSTATION
CONSERVATION MANAGE:MENT PLAN
May, 1994
CLIVE LUCAS, STAPLETON AND PARTNERS PTY. LTD.
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CAPE OTWA Y LIGHTSTATION
Cape Otway, Victoria
THIS DOCUMENT WAS REVIEWED AND UPDATED IN
CONSERV ATION
199& SUBSEQUENT TO THE PROPERTY'S TRANSFER
I\l-\NAGEMENT PLAN
TO STATE OWNERSHIP. THE RESULTANT ADDENDUM
ISATTACHED FOLLOWING THE APPENDICES.
STATEMENTS IN THE ADDENDUM SUPERCEDE ANY
CONFLICTING STATEMENTS IN THE ORIGINAL PLAN.
PLEASE REFER TO THE ADDENDUM WHEN
CONSIDERING ANY POLICY OR IMPLEMENTATION
ASPECTS OF THIS DOCUMENT.
Preparedfor:
NOTE:
The Australian Maritime
Theaddendum has been cited asadocument
Safety Authority, Canberra
in the citation for addition of the lightstation
to the Victorian Heritage Register. The
r
citation makes provision for HeritageVictoria
permit exemptions for works in accordance
with the addendum.
Prepared by:
Clive Lucas, Stapleton
and Partners Pty. Ltd.
155 Brougham Street,
Kings Cross, Sydney, N.S.W. 2011
Telephone: [phone]
Facsimile: [phone]
Date:
Draft, April, 1993
Final, May, 1994
© Clive Lucas, Stapleton
& Partners Pty. Ltd., 1994
1
Front Cover Illustration
Source: 1
Illustrated Sydney News, 29th September, 1870
1
EXECUTIVE SUl\-1MARY
CAPE OT\VA Y LIGHTSTA TION
The cultural significance of Cape Otway Lightstation is that:
It contains the oldest surviving officially built lighthouse on the Australian mainland which
is also, architecturally, more accomplished than the earlier surviving lights in Bass Strait and
Tasmania. Italso contains the largest and oldest group of lighthouse keepers' quarters in
Australia .
All of the buildings and features should be preserved and conserved - unless
removal or alteration is essential for continuing navigational or maritime use (see
5.2.2.3 &4)
Fabric introduced since 1950 could be altered or removed it this is needed for the
conservation and interpretation of the place (see 5.2.2.4)
Fabric introduced since 1950 could be removed or changed in certain
circumstances (see 5.2.2.4)
The place should be interpreted as:
containing the oldest surviving officially built mainland lighthouse of finer architectural
design than the earlier surviving Australian lights, accompanied by the oldest and biggest
group of early lightkeepers' quarters building inAustralia
Restoration and reconstruction of the place to an earlier configuration would be
valuable, however this would require a substantial interpretive program for both
buildings and landscape.
The lighthouse should continue to be used as a lighthouse and at least one of the
quarters used as a residence (see 5.2.4.1)
New uses could be introduced if compatible with the conservation of the place (see
5.2.4.4)
Procedures at the place should be guided by the provisions of the Australia
ICOMOS BUlTaCharter (see 5.2.5.1)
A Conservation Management Plan should be adopted, complied with and
regularly reviewed (see 5.2.5)
The fabric of the place could be adapted and new buildings and features
constructed but this should be done only within defined guidelines (see 6.3)
TABLE OF CONTENTS
Page
PART I THE CONSERVA TION ANALYSIS
.e,
1.0 Introduction
1.1 Current Situation 1
1.2 Heritage Listings 1
1.2.1 Australian Heritage Commission 1
1.2.2 Historic Buildings Register 2
1.2.3 National Trust of Australia (Victoria) :..2
1.2.4 Shire Council :.: ::..2
1.3 Definition of the Property :-..3
1.4 Other Issues r.. 3
1.4.1 Natural and Aboriginal Significance :-..3
1.4.2 The Methodology 3
1.4.3 Commonwealth Lights 4
2.0 Significance Analysis
2.1 Documentary Evidence 10
2.1.1 Archival Sources 10
2.1.2 Departmental Sources 10
2.1.3 Other Departmental Sources 11
2.1.4 Parliamentary and Other Official Sources 12
2.1.5 Manuscripts and Theses 12
2.1.6 Books 12
2.1.7 Newspapers and Periodicals 13
2.2 Physical Evidence 34
2.2.1 General 34 l
2.2.2 Principal Buildings 34
2.2.2.1 Building 1(Lighthouse) 34
2.2.2.2 Building 2 (Quarters 1,Head Keeeper's Quarters) 34
.r,
2.2.2.3 Building 3 (Quarters 2, Assistant Keeper's Quarters and Visitor's Flat) :.;34
2.2.2.4 Building 4 (Workshop) :":.34
2.2.2.5 Building 5 (Garage) ~.34
2.2.2.6 Building 8 (Former Signal Station) '..34
2.2.3 Lighthouse Database ~ 35
2.2.4 Other Buildings 36
2.2.4.1 Building 2A - Quarters L Laundry 36
2.2.4.2 Building 6 - Tourist Information Panel 36
2.2.4.3 Building 7 - OfficeIWeather Room 36
2.2.4.4 Building 9 - Garage at Former Signal Station 37
2.2.4.5 Building 10 - Radio Beacon Room 37
2.2.4.6 Building 11 - Radar Building 37
2.2.4.7 Building 12 - Pump House (for secondary water supply) 37
2.2.5 Vegetation 37
2.2.6 Site Features 37
2.2.7 Abbreviations in Survey of Physical Fabric 39
2.3 Analysis of Physical and Documentary Evidence 57 I
2.3.1 Cape Otway 57
2.3.2 Cape Otway Lightstation 58
2.3.2.1 General ·: 58
I
2.3.2.2 Building 1 (Lighthouse) 59
2.3.2.3 Building 2 (Quarters 1,Head Keeper's Quarters) Building 2A (Laundry) 60 l-
2.3.2.4 Building 3 (Quarters 2, Assistant Keeper's Quarters and Visitor's Flat) 61
2.3.2.5 Building 4 (Workshop) 62
2.3.2.6 Building 5 (Garage) 63
2.3.2.7 Building 6 (Tourist Information Shelter) ~ 63
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2.3.2.8 Building 7 (OfficefWeather Room) .: 63
2.3.2.9 Building 8 (Former Signal Station) 63
2.3.2.10 Building 9 (Garage at Former Signal Station) 64
2.3.2.11 Building 10 (Radio Beacon Room) 64
2.3.2.12 Building 11 (Radar Building) 65
2.3.2.13 Building 12 (Pump House) 65
2.3.2.14 Other Site Features 65
2.3.2.15 Other 66
2.3.2.15.1 Fog Signal :66
2.3.2.15.2 Supplies 67
2.3.2.15.3 Tramway 67
2.3.2.15.4 Cattle yards 67
2.3.2.15.5 Military Buildings 67
2.3.2.15.6 Cemetery 67
2.3.2.15.7 Miscellaneous 67
2.4 Discussion of Cultural Significance 68
2.4.1 Historical Significance 68
2.4.1.1 Cape Otway and Bass Strait 68
2.4.1.2 Lightstations in Victoria 68
2.4.1.3 Early Lightstations in Bass Strait 68
2.4.1.4 Other Early Lightstations in Australia 69
2.4.1.5 Manned Lightstations 69
2.4.1.6 Rarity of Lightstation 69
2.4.1.7 Telegraph Station 69
2.4.2 Architectural Significance 69
2.4.2.1 Lighthouse 69
2.4.2.2 Houses 70
2.4.2.3 Architect : 71
2.4.2.3.1 Henry Ginn 71
2.4.2.3.2 Mortimer Lewis 71
2.4.2.3.3 Other 72
2.4.2.4 Other Buildings 72
2.4.2.5 Other Features 73
2.4.3 Technological Significance 74
2.4.3.1 Lighthouse Technology 74
2.4.3.2 Manufacturers 76
2.4.3.2.1 Chance Bros 76
2.4.3.3 Lantern 77
2.4.3.4 Pedestal 77
2.4.3.5 Optic ; 77
2.4.3.6 Other Machinery 78
2.4.4 Landscape Significance 78
2.4.4.1 Landform 78
2.4.4.2 Vegetation 78
2.4.5 Archaeological Significance 78
2.4.6 Aesthetic Significance 78
2.4.7 Social Significance 78
3.0 Statement of Cultural Significance
3.1 Definitions 80
3.2 Primary Significance 80
3.3 Secondary Significance 80
3.4 Ranked Zones of Significance 82
3.4.1 Buildings 82
3.4.2 Interiors : 82
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·3.4.3 Landscape 83
3.4.4 Archaeology 83
PART IT- THE PLAN- CONSERVATION GUIDELINES
4.0 Constraints and Opportunities
4.1 Inherent Constraints Arising from Statement of Significance 97
4.1.1 Generally :: 97
4.1.2 Detailed Constraints Arising From Statement Of Significance 97
4.2 User Requirements 98
4.2.1 Australian Maritime Safety Authority 98
4.3 Interpretative Opportunities 98
4.3.1 General 98
4.3.2 Interpretation of the Fabric of the Place 99
4.3.3 Introduced Interpretive Devices ~ 99
4.3.4 Public Access 100
4.3.5 Content of Interpretation 100
4.4 Non Heritage Statutory Requirements 100
4.5 Other Constraints and Opportunities 100
4.5.1 General 100
4.5.2 Popularity 100
4.5.3 Access 100
4.5.4 Marine Conditions 101
4.5.5 Asbestos Cement 101
4.5.6 Disabled Access 101
4.5.7 Natural Environment 101
4.5.8 Theft and Vanda1ism 101
4.6 Development Opportunities 102
4.6.1 Generally 102
4.6.2 Development at the Place for Lightstation Purposes by AMSA 102
5.0 Policy Statement
5.1 Definitions 104
5.2 Policy Recommendations 104
5.2.1 General 104
5.2.2. Policy for Treatment of the Fabric 104
5.2.2.1 Definition of Curtilage and Setting 104
5.2.2.2 Definition of Significant Fabric 104
5.2.2.3 Fabric to be Preserved 105
5.2.2.4 Fabric that Should with Qualification be Preserved : 105
5.2.2.5 Fabric that Should be Maintained 105
5.2.2.6 Confirmation of Date of Fabric 105
5.2.2.7 Fabric that May be Removed 105
5.2.2.8 Fabric Tthat Should be Removed 106
5.2.2.9 Views to the Place that Should be Preserved 106
5.2.2.10 Views from the Place that Should be Preserved : 106
5.2.3 Policy for Interpretation of the Place 106
5.2.3.1 Need for Interpretation 106 f
5.2.3.2 Interpretive Approach 106 J
5.2.3.3 Contents of Interpretation 106
5.2.3.4 Elements of Outstanding Significance to be Emphasised 106
5.2.3.5 Presentation of Fabric 107
.._)
5.2.3.6 Identification of Adaptations 107
5.2.3.7 Restoration/Reconstruction Works : 107
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5.2.3.8· Essential Restoration/Reconstruction \Vorks ~ 108
5.2.3.9 Provision for Future Restoration/Reconstruction 108
5.2.3.10 Strategy for Introduced Interpretive Devices 108
5.2.3.11 Explanatory Literature 109
5.2.3.12 ..Interpretive Signs 109
5.2.3.13 Access to Public 109
5.2.3.14 Access to Specialists 109
5.2.4 Policy for Use of the Places 109
5.2.4.1 Historical Uses and Land Uses that Should be Continued :: 109
5.2.4.2 Historical Uses that Should be Continued with Qualification 110
5.2.4.3 Control of Requirements of Historical Uses 110
5.2.4.4 NewUses 110
5.2.4.5 Alteration of Uses 110
5.2.4.6 Historic Place ··110
5.2.4.7 Organisation of the Uses at the Place 110
5.2.4.8 Structural Capacity III
5.2.4.9 Statutory Requirements III
5.2.4.10 Investigation III
5.2.4.11 Services 111
5.2.4.12 Use by Disabled 111
5.2.4.13 Vehicle Access 111
5.2.4.14 Car Parking III
5.2.4.15 Pathways 111
5.2.4.16 New Compatible Uses 111
5.2.4.17 Education and Tourism 112
5.2.4.18 Incompatible Uses 112
5.2.4.19 Uses to be Encouraged 112
5.2.4.20 Uses to be Discouraged 112
5.2.4.21 Inappropriate Activities in the Place and Setting 112
5.2.5 Conservation Procedures at the Place 112
5.2.5.1 Bun'a Charter · ·..· 112
5.2.5.2 Management of the Place · 112
5.2.5.3 Control Over all Fabric and Activities 113
5.2.5.4 Setting of the Place 113
5.2.5.5 Professional Advice 113
5.2.5.6 Professional Conservation Team 113
5.2.5.7 Skilled Trade Team 113
5.2.5.8 Reference Documentation 113
5.2.5.9 Archaeological Finds 113
5.2.5.10 Collection Of Significant Removed Fabric 113
5.2.5.11 Systematic Photographic Survey 113
5.2.5.12 Collection of Information about Conservation Works ~ 113
5.2.5.13 Conservation Practice 114
5.2.6 Policy for Adoption and Review of the Conservation Management Plan 114
5.2.6.1 Adoption of Conservation Policy 115
5.2.6.2 Amendment of Master. Development Plan 115
5.2.6.3 Compliance with Conservation Policy 115
5.2.6.4 Review of Conservation Management Plan 115
5.2.6.5 Distribution of Conservation Management Plan 115
6.0 Implementation
6.1 Statutory Heritage Obligations 116
6.1.1 Commonwealth 116
6.1.2 State 116
6.1.3 Local ~ 116
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6.2 Essential Maintenance 116
6.3 Intervention and Development Guidelines 117
6.3.1 General 117
6.3.2 Guidelines for Intervention in Significant Fabric _ 117
6.3.2.1 Permissible Intervention 117
6.3.2.2 Fabric that May be Removed 117
6.3.2.3 Areas of Archaeological Importance 117
6.3.2.4 Investigation for Research 119
6.3.2.5 Intervention Permissible to Guide Conservation Work 119
6.3.3 Guidelines for Adaptation of the Fabric 120
6.3.3.1 Adaptation of Landform 1'.20
6.3.3.2 Adaptation of Landscape and Vegetation 120
6.3.3.3 Adaptation of Exteriors of Buildings 121
6.3.3.4 Adaptation of Interiors of Principal Buildings 121
6.3.3.5 Adaptation for Structural Reasons 122
6.3.3.6 Adaptation for Replacement of Existing Services 122
6.3.3.7 Adaptation for Installation of New Services and Equipment in
Connection with New Uses 123
6.3.3.8 Adaptation for Fire Safety and Other Statutory Requirements 123
6.3.3.9 Adaptation to Accommodate Asbestos 123
6.3.4 Guidelines for Additions and New Buildings 123
6.3.4.1 Alteration of Landfonn, Landscape and Vegetation 123
6.3.4.2 Additions to Principal Buildings 123
6.3.4.3 Nature of Additions 123
6.3.4.4 Additions to Other BUildings , 124
6.3.4.5 New Buildings 124
6.3.4.6 Nature of New Buildings 124 r
6.3.4.7 Other New Elements 124
6.3.4.8 Mobile and Temporary Structures for Compatible Uses "·124
6.3.4.9 Outdoor Furniture, Rubbish Bins, Signs, Picnic and :.~,
Other Facilities For AMSA and Tourist Use ~125
6.3.4.10 Roads and Car Parks 125
!
6.3.4.11 Vehicles :.125
6.3.4.12 Floodlighting 125
6.3.4.13 Unavoidable Intervention 125
6.3.4.14 Intervention in the Setting 125
7.0 Appendices
7.1 Author Identification 126
7.2 Author Acknowledgments : 126
7.3 The Burra Charter 126
7.4 Australian Heritage Commission's Register Criteria 129
7.5 Section 30 of the Australian Heritage Commission Act.. 130
7.6 Effect of Section 30 131
7.7 Glossary of Lighthouse Terms Used 132
7.8 Physical Survey of Principal Buildings 134
7.9 Photographic Survey of the Place 155
L
1.0 INTRODUCTION
CUVE LUCAS. STAPLETO:--; &PARTh"ERS PTY. LID.
PART I - THE CONSERVATION ANALYSIS
1.0 Introduction
1.1 Current Situation
Cape Otway Lightstation, constructed in 1848, is located on the south-west coast of Victoria
about 70 miles from Port Philip on the south-western extremity of Cape Otway.
The lightstation is currently manned, and continues to function as part of Australia's maritime
navigation network.
..
In recognition of the heritage significance of its lightstations, the Australian Maritime Safety
Authority (AMSA) seeks to ensure an appropriate level of human presence which would allow
for the protection of the built and natural environments. To this end, Al\1SA intends to retain a
minimal property holding for any needed aid to navigation, the remaining land at each
lightstation will be either sold or leased to a government authority or, failing that, a private
interest.
A.\1SA in consultation with the Australian Heritage Commission (AHC) has agreed to undertake
a Conservation Management Plan to ensure appropriate conservation of the properties by new
lessees or owners for those lightstations included in the Register of the National Estate (RNE).
1.2 Heritage Listings
1.2.1 Australian Heritage Commission
Cape Otway Lightstation is registered on the Register of the National Estate (RNE 003690
2/01/14010001/01) .
A place is included on this register as:
"... being components of the natural environment of Australia, or the cultural environment of Australia, that
have aesthetic, historic, scientific or social significance or other special value for future generations, as well
as for the present community".
The statement of significance for the registration is:
"Cape Otway Lighthouse station is of national significance as the 8th navigation beacon erected in
Australia. The light has continuously operated since 1848, marking the important landfall for British
emigrant ships since rounding the Cape of Good Hope. The light tower and quarters are typical of lighthouse
architecture of the mid-19th century. The site and telegraph station are notable as the mainland terminal of
Victoria-Tasmania telegraph cable first laid in 1859."
The boundary for the registration is the Commonwealth lighthouse reserve.
Inclusion of a place in the Register (and this includes the Interim List of the Register) imposes
obligations on the Commonwealth Government authorities only under Section 30, of the
Australian Heritage Commission Act 1975. Commonwealth ministers, departments and
authorities are required not to take any action which would adversely affect a place in the
Register, unless there is no feasible and prudent alternative. If there is no such alternative, then
all reasonable measures must be taken to minimise any adverse effects.
Commonwealth ministers, departments and authorities are also required to inform the Australian
Heritage Commission of any proposed Commonwealth action which might significantly affect a
place in the Register. The Commission must be given a reasonable opportunity to consider and
comment on the proposed action.
CAPE OTWAY - CONSERVATION MANAGEMENT PLAN 1
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1.0INTRODUCTION
CUVE LCCAS. STAPLETO:\ &PART:\ERS PTY.LID.
Listing of a place in the Register does not give the Commonwealth Government any rights to
manage, acquire or enter private property. Nor does it provide any direct legal constraints or
controls over actions of state or local government, or of private owners.
Listing of a place does not mean that an owner is required to alter the way in which the property
is managed or disposed of. Nor does it mean that owners are required to give public right of
entry on private property.
1.2.2 Historic Buildings Register
Cape Orway Lightstation is not included in the Victorian Historic Buildings Register (HBR).
Non inclusion on this list reflects the Commonwealth ownership status of the lightstation, rather
than any heritage considerations.
1.2.3 National Trust of Australia (Victoria)
Cape Otway Lightstation is classified in the register of the National Trust of Australia (Victoria).
The register lists those buildings, sites, items, and areas which, in the Trust's opinion, fall within
the following definition:
"Those places which are components of the narural or the cultural environment of Australia, that have
aesthetic, historical, architectural, archaeological, scientific, or social Significance, or other special value
for furure generations, as well as for the present community"
The reason for listing is:
"(The) lightstation group consisting of 60ft tower (184648); headkeepers' and assistants' quarters (1857-8)
and storerooms (1848-57); together with a detailed former telegraph station (1859); all constructed of Parker
River Sandstone. The oldest remaining light, and the second to be established on the Australian mainland,
the relatively short tower is set on a high cliff, whilst the keepers' quarters shelter well back in a slight
hollow. The stone stair of the tower spirals around a hollow stone central column."
The registration includes the lighthouse, head keeper's quarters, assistant keeper's quarters,
storeroom, and former telegraph station.
Inclusion of a place in the Register does not have any legal effect, but it is widely recognised as
an authoritative statement on the significance of the place. .
The purpose of the Register is to alert responsible authorities, property owners and the public so
that those concerned may adopt measures to preserve the special qualities which prompted the
listing.
When the significance of a place is under threat, the Trust will take whatever action is deemed
appropriate to ensure its protection, including giving advice to the property owner and seeking
the use of the state heritage act or the plannirig powers of the local government authority. For the
purposes of such action, the Trust makes no differentiation between classified and recorded
listings in its Register.
1.2.4 Shire Council
The local government area for Cape Otway Lightstation is Otway Shire Council. The
Lightstation is included in this Council's Planning Scheme - Chapter 3. The Otway Planning
Scheme does not specify any restrictions to the use of the land.
CAPE OTWAY - CONSERVATION MANAGEMENT PLAN 2