This HMP sets out a structure to assist PM&C for the future management of Kirribilli House and Garden are to ensure the operational duties continue to be carried out, while protecting the identified heritage values and achieving EPBC Act compliance. For historic heritage, it is to conserve the heritage significance through retention of buildings, fabric and landscape elements of significance including the preservation of the historical layout.
7.2 Opportunities and constraints
Opportunities and constraints arising from the identified heritage significance of a place establish
a baseline from where other issues such as maintenance and owner requirements can be considered. Future management decisions for Kirribilli House and Garden will have due regard to their heritage significance and requirements under the CHL.
Kirribilli House and Garden displays a high degree of significance due to the following:
As the Official Sydney residence of the Australian Prime Minister since 1957
The site evidences the early land grants to prominent Sydney residents
Association with early public campaign to protect harbourside development in the 1920s
Association with Admiralty House and forming part of a continued landscape that is Kirribilli Point
The site has rare qualities as a surviving Victorian Rustic Gothic residence in a harbour setting and includes the remains of one of the earliest bathing pools on Sydney Harbour
The site has representative values for its Victorian Rustic Gothic style of house and garden and
The site is important to the people of Australia and is associated with various prime ministers, dignitaries, and significant people in the community.
Opportunities arising from this significance and use of the site are:
Maintain a high quality of care and management of the site
Interpreting the heritage values of the site including the different phases of development
Presenting a cohesive landscape of Kirribilli Point that includes both Kirribilli and Admiralty House
Potential for development or rebuilding of areas that are poorly presented and placing unnecessary pressures on security and privacy of the site and
Review and re-design of the garden to emphasise heritage significance and introduce other elements of significance of the site.
Constraints arising from this significance and use of the site are:
Operational, security and privacy requirements from the use of the site as a place of residence of the Prime Minister and visits by dignitaries
Physical constraints of the site for development and
Maintenance requirements and upkeep of the site resulting from age, building materials, siting, and damp issues of the site.
7.3 Planned Works
The following works are currently planned for this site:
Repairs to the garden paving
Seawall stabilisation
All works will be undertaken in accordance with Policy 7 of this HMP.
7.4 Policies and guidelines
The role of the conservation policies in this HMP is to provide specific guidelines for the conservation, on-going care, development and use of Kirribilli House and Garden so that its cultural significance is appropriately maintained, enhanced, and interpreted. Future management decisions for Kirribilli House and Garden will have due regard to their heritage significance.
7.5 Management Policies
7.5.1 Implementation and review of HMP
Whilst Kirribilli House and Garden remains a Commonwealth property, this HMP must be reviewed at least once every five years in accordance with Section 341X (1) of the EPBC Act. The review should assess the content of the plan and determine its effectiveness in protecting the heritage values of the place and make recommendations for updating or re-writing the plan as required. The review is to be undertaken with assistance from a heritage specialist and be conducted in accordance with the requirements of the EPBC Act and Regulations for the review of management plans for Commonwealth Heritage places. The review is to focus on amending responsibilities, include commentary on any works undertaken since the last HMP review, and consider any changes or planned changes of use.
Policy 1. Adoption and review of HMP
The conservation policies set out in this plan should be adopted by PM&C and implementedRelevant policies should be cross referenced to other management documentsA copy of the HMP should be retained on siteThis HMP must be updated every five years by PM&C with the assistance of a heritage specialist to ensure it remains relevant to the use of Kirribilli House and Garden and to ensure statutory compliance is maintainedThis HMP should also be updated after any significant changes to the site have occurred. At a minimum, the review must:Assess whether the plan is consistent with the Commonwealth Heritage management principles in force at the timeAssess whether the plan is effective in protecting and conserving the Commonwealth Heritage values of Kirribilli House and GardenMake recommendations for the improved protection of the Commonwealth Heritage values of Kirribilli House and GardenThe listed Commonwealth Heritage values will be monitored, reviewed and reported on annually as part of the PM&C Annual Reporting Cycle. This information will be provided to DCCEEW every three years, as outlined in the PM&C Heritage Strategy.
7.5.2 Change in Ownership or Lease
Kirribilli House and Garden is a Commonwealth asset on Commonwealth land within NSW, managed by PM&C. If the asset leaves Commonwealth ownership or control (change of lease), ongoing heritage protection would be required under S341ZE of the EPBC Act. An update and revision of this HMP would then be required to accurately consider and reflect the new site ownership and management arrangements.
Responsibility for undertaking the review of the HMP should fall to the new owner and should be undertaken within six months of the sale, and/or prior to the undertaking of any changes to Kirribilli House and Garden. To ensure that this requirement is recognised by the new owner it should form part of the sale/transfer documents between PM&C and the new owner.
Under S341ZE of the EPBC Act, PM&C must notify the Minister of the proposed divestment and establish an appropriate mechanism to protect the Commonwealth Heritage values of the place during the sale/transfer process and after the property has left Commonwealth control (such as a covenant
in the sale/transfer documents, or equivalent arrangements).
A copy of the updated HMP should be lodged with Heritage NSW of the Department of Planning and Environment as NSW heritage legislation would apply in the absence of Commonwealth ownership. The heritage values of Kirribilli House and Garden should therefore be nominated by PM&C for formal protection under the NSW heritage system in the event of divestment.
Consultation with Heritage NSW of the Department of Planning and Environment will be necessary at least 12 months prior to the property leaving Commonwealth ownership, to ensure the appropriate nominations are in place to provide ongoing heritage protection. PM&C should also consult with the Metropolitan Local Aboriginal Land Council and submit the consultation outcomes to Heritage NSW.
Kirribilli House and Garden has been assessed as having outstanding heritage values and thus potentially reaching the threshold for inclusion on the NHL. Along with inclusion on the NSW SHR, a NHL listing would provide an additional layer of protection of the heritage values of the site. It is recommended that the site should be nominated for inclusion on the NHL.
Policy 2. Change in Ownership or Lease
PM&C must notify the Minister responsible for heritage of the intention to divest or lease the site, in accordance with the timeframes specified under S341ZE of the EPBC ActThis HMP should be reviewed to reflect the new site ownership and management arrangements. The HMP should be updated within six months of a Change of Ownership or Lease agreementIf the site is to leave Commonwealth ownership or control (change of lease), the updated HMP should be lodged with Heritage NSW of the Department of Planning and EnvironmentConsultation should occur with the Metropolitan Local Aboriginal Land Council and the consultation outcomes submitted to Heritage NSWKirribilli House and Garden should be nominated for inclusion on the NHL and NSW SHR.
7.5.3 Expert advice, skilled trades
This HMP was prepared using a range of expert advice. For successful long-term interpretation and implementation of this Plan, continuity of competent advice is important to avoid implications from
ill-advised decisions.
Policy 3. Expert advice
Persons with suitable expertise and experience in conservation projects should be engaged for the resolution of conservation issues, as well as for input into the design and administration of conservation work on the place. Expert persons may include heritage architects, heritage landscape architects, heritage consultants, traditional (stone/slate/plaster) material contractors and arborists.
7.5.4 Training and resources
Occupants, staff, managers and contractors should be inducted and made aware of the heritage significance of Kirribilli House and Garden. Contractors should be given a copy of the Heritage Induction Training Manual provided in Appendix P.
Policy 4. Training and resources
All personnel on site should be inducted and made aware of the heritage significance of Kirribilli House and GardenA copy of the Heritage Induction Training Materials should be provided to contractors undertaking works on site.
7.5.5 Roles and responsibilities
Ownership and property management of Kirribilli House and Garden including heritage management and Capital Works is managed by PM&C HOST. Other stakeholder management roles and responsibilities are set out in Section 1.6.
Policy 5. Roles and responsibilities
All stakeholders should be familiar with the roles and responsibilities of each agency.
7.5.6 Internal works approval and record keeping
Works undertaken to modify elements of Kirribilli House and Garden need to be approved by PM&C. Works may include:
determining if EPBC Act referral is necessary
determining if a HIA is required for proposed works
design works referencing the HMP
engaging a specialist to provide advice and undertake the submission of the draft HIA
undertaking EPBC Act self-assessment
undertaking consultation with DCCEEW
undertaking the attainment of approvals
commencement of works
documentation of the works.
Policy 6. Internal approval and record keeping
All works that are the responsibility of PM&C shall be in accordance with the PM&C approval process included in HOW TO: Procurement Address Heritage Considerations (Department of the Prime Minister and Cabinet, 2023)Implementation of policies and works should be recorded by PM&C and records shall be maintained in the ShareHub systemDetails of day to day property maintenance will be kept by JLL with regular reports provided to PM&C filing on its ShareHub system.
7.5.7 Legislative approvals process
Kirribilli House and Garden is a Commonwealth property and hence must be managed in accordance with Schedule 7A and 7B of the EPBC Regulations (see Table 1‑3 EPBC Act Compliance Checklist) and the policies in this HMP. If proposed works are likely to have a significant impact on the environment, approval must be sought through the EPBC Act referral process. The first step in assessing the impact of any proposed works is to prepare a self-assessment, in the format of a Heritage Impact Assessment. This should be prepared by a qualified heritage specialist. If the self-assessment finds the action will or might have a significant impact on the Commonwealth Heritage listed values, the action will need to be referred to the Minister for Environment and Water in accordance with Sections 26 and 29 of the EPBC Act. Advice can be sought from DCCEEW on this process and any potential actions. Any proposed works should consider alternatives to minimise impacts to heritage values.
Policy 7. Legislative approvals process
Kirribilli House and Garden must be managed in accordance with the Commonwealth Heritage Management Principles set out in Schedule 7B of the EPBC RegulationsConsultation should be undertaken early on EPBC Act referrals with DCCEEW heritageApproval should be sought through the EPBC referral processConsideration should be given to alternatives to minimise heritage impacts.
7.5.8 National Construction Code (NCC) and Disability Discrimination Act (DDA) compliance
If compliance with the NCC and DDA to meet health, safety and energy efficiency requirements are likely to have a substantial impact on significant fabric or heritage values. Alternative engineered solutions that minimise impacts should be considered and promoted.
Policy 8. NCC and DDA compliance
Compliance with the NCC or DDA should focus on responding to the spirit and intent of the ordinances if strict compliance would adversely affect the significance. An alternative engineered solution may need to be sought if deemed-to-satisfy provisions cannot be met. Uses which require an unacceptable degree of intervention for upgrading to code compliance should be avoided.
7.5.9 Safety
Kirribilli House is required to meet current safety standards as both a workplace and as a building. Measures should be taken to balance the Commonwealth Heritage Values of the place with these safety obligations. All buildings and workplaces are required to meet various safety codes, including Kirribilli House. As a workplace, PM&C, with staff at the property, are required to ensure a safe work environment at all times and they must ensure that all incumbents and their families, as well as staff and visitors to the property are aware of any safety risks.
Policy 9. Safety
PM&C should aim to comply with the performance requirements of the Building Code Australia (BCA) when they apply. Any strategies or solutions to make Kirribilli House comply with the BCA requirements should balance the cultural significance of the place with the objectives of the BCA. If conflict occurs, external heritage and architectural advice may be requiredWorks that improve the health and safety of the property are necessary, however they should be planned and designed ina sympathetic manner, so they do not negatively impact the Commonwealth Heritage values of the placeShould there be a conflict between the provision of safety measures and the protection of heritage fabric, safety should be the overriding factor which determines the measures necessaryAlternative solutions and compromises should be pursued wherever possible so that a solution is designed which meets both safety and heritage considerationsIt should be noted however, that whilst the BCA does not affect these items retrospectively, WH&S compliance is a current legislative obligationAn asbestos management plan should be implemented for any remaining asbestos.
7.5.10 Access for people with a Disability
Access for people with a disability is currently inadequate. Although the DDA is not prescriptive,
it would be best practice for Kirribilli House to have a policy for providing dignified and easy access. The DDA makes it illegal to discriminate against a person on the basis of their disability. It is not specifically about buildings, however it has an effect on buildings in which the design and construction prevents access by people with a disability; as the owners of those buildings can be deemed to be discriminating against people on the basis of a disability.
Policy 10. Access for people with a disability
The following procedure should be applied when considering changes to heritage buildingsReview the significance of the place and identify the elements of greatest significanceUndertake an Access Audit to determine existing and required levels of accessibility; noting that some areas are exempt under the NCCEvaluate access options within a Commonwealth Heritage context. This process includes consultation with authorities and approval of the proposed actionPrepare the access policy or action planImplement the necessary action.
7.5.11 Planning and coordination
Proposing ad-hoc changes can have an adverse impact on the significant values of the place.
Over time, when these ad-hoc measures are undertaken independently, without coordination,
planning or expert advice, they can result in compounding adverse impact on the values of the place.
Policy 11. Planning and coordination
A coordinated and planned approach is necessary when proposing changes to Kirribilli House and GardenThe proposed activity should be reviewed within a holistic management framework to avoid adverse impacts resulting fromad-hoc measures.
7.5.12 Stakeholder consultation
Early consultation with stakeholders is required to comply with the EPBC Regulations when managing heritage places. The EPBC Act requires public notification of a HMP. This consultation process may be undertaken once a final HMP is available. In accordance with the referral assessment process under the EPBC Act, any proposed action that will impact on the heritage values of Kirribilli House and Garden must also be notified for public comment.
Whilst works proposed to Kirribilli House do not need to comply with local planning requirements,
if significant works are proposed, it is recommended that North Sydney Council be informed.
Policy 12. Stakeholder consultation
Relevant stakeholder consultation should be undertaken early as part of managing the heritage place, allowing sufficient time for input in accordance with the EPBC ActThe HMP must be available for public notificationAny proposed action that impacts the heritage values of Kirribilli House must be notified for public commentIf substantial works are proposed, North Sydney Council should be informed as a good neighbour policy.
Please note that as per Section 1.8.1, public notification and exhibition of the draft HMP were carried out in 2023, prior to the finalisation of this document.
7.6 Security
7.6.1 Security and privacy
Management of Kirribilli House and Garden requires a high level of security and privacy.
Policy 13. Security and privacy
Elements of this HMP will be made available to government departments and external stakeholders on a need-to-know basisSections of the Heritage Induction Training Manual shall be made available to relevant contractors working on the site (see Appendix P)
7.6.2 Security Infrastructure
Home Affairs are responsible for the security infrastructure at Kirribilli House. The Australian Federal Police provide 24-hour physical security for the site. Extenuating circumstances may result in the disturbance of heritage fabric. The security of the property and the people within it will always outweigh any other requirements.
Policy 14. Security Infrastructure
Security requirements at Kirribilli House are fundamentally important for the safety and functionality of the house and those who work/live thereInterior security measures, such as distress buttons, are a high security priority. For security reasons they need to be placed in prominent, easily reached locations within the rooms, however whenever possible they should not be inserted into significant fabricWhile security is an essential operational requirement, any changes should be implemented in a way that minimises heritage impact where possible.
7.7 Site-wide policies
7.7.1 Conservation principles
The Australia ICOMOS Burra Charter, known as The Burra Charter (Australia ICOMOS, 2013),
is widely accepted in Australia as the underlying methodology by which all works to sites/buildings which have been identified as having national, state, and regional significance, are undertaken.
There are seven principles that guide the care of heritage places:
1. The place itself is important
2. Understand the significance of the place
3. Understand the fabric
4. Significance should guide decisions
5. Do as much as necessary, as little as possible
6. Keep records
7. Do everything in a logical order.
The use of the terms, conservation, preservation, reconstruction, adaptation, fabric, maintenance, repair, and compatible use in this report are defined in The Burra Charter.
Policy 15. Burra Charter and principles of conservation
Future work on the complex should be undertaken in accordance with the principles of the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter) and its GuidelinesThe Commonwealth heritage values of the place should be the basis for all future planning and development.
7.7.2 Setting
The picturesque landscape harbourside setting is a key contributory element to the heritage significance of Kirribilli House and Garden and its landmark qualities. The site is part of a continued landscape that includes Admiralty House on Kirribilli Point. Having met CHL Criterion B, D and E that relates to the setting of the place, it is crucial that the policy below be adopted to protect and maintain the CHL values of Kirribilli House and Garden.
Policy 16. Setting
The landmark qualities of Kirribilli House and Garden should be retained and protectedThe picturesque landscape harbourside setting should be retained, protected and promoted. This includes such key elements as the Victorian picturesque qualities (sweeping lawn, meandering paths, dramatic views and wild character), topography, rock outcrops, sandstone cliffs, harbour views and access to waterwayRetain and protect the continuous harbour foreshore landscape that is reminiscent of the early Port Jackson shoreline.
7.7.3 Streetscape
Kirribilli House and Garden is a contributory item to Kirribilli Conservation Area, which has been characterised by a mix of small, medium and substantial late Victorian, Federation era houses with Inter-War dwelling houses and contemporary residential flat buildings on some of the waterfront sites. Buildings are integrated with the slope and generally have a homogenous scale with established gardens. Some earlier Victorian villas survive in Kirribilli Street and Upper Pitt Street. Also located on the waterfront are Kirribilli and Admiralty Houses.
Policy 17. Streetscape
Kirribilli House and Garden is a contributory item to the Kirribilli Conservation Area, hence contributory elements, including Victorian Rustic Gothic architecture, principal elevations, established garden, integration to topography and homogeneous scale, should all be retained and protected.
7.7.4 Significant views
Kirribilli House within Kirribilli Point forms part of the broader Sydney Harbour landscape which is appreciated from various vantage points including immediate views from Sydney Harbour (including Fort Dennison), moderate views from Sydney Opera House, Mrs Macquarie’s Chair, Garden Island, Kurraba Point and Cremorne Point and distant views from Bradley’s Head.
There is a harmonious relationship between the house, garden and the wider landscape which is the harbour setting. The site’s geographic position permits extensive harbour views from both the house and garden which include panoramas, framed and filtered views. This contributes to the picturesque setting and is part of the early planning of the site that evidence the key period of significance. Significant views identified have been included in Section 3.2.1 and 3.6 and are defined in Figure 7‑1 and Figure 7‑2.
Figure 7‑2.
Policy 18. Significant views
Significant views to and from Kirribilli House and Garden should be maintained and protectedThese include but are not limited to those identified in Figure 7‑1 and Figure 7‑2.Figure 7‑2.
A picture of an aerial shot map of the harbour near Kirribilli House outlining the significant views
Figure 7‑1: Significant views to Kirribilli House from various vantage points of Sydney Harbour (maps.six.nsw.gov.au
A picture of an aerial shot map of Kirribilli House grounds highlighting the significant views seen from the property
Figure 7‑2: Significant views from Kirribilli House and Garden (maps.six.nsw.gov.au)
7.7.5 Heritage curtilage
Kirribilli House retains its original physical curtilage which is defined by the existing site boundary.
The site has maintained the early subdivision from Admiralty House estate and sold in 1854 to
Adolph Feez who built the house in 1856. The earliest access to the site is likely to have been from the harbour and the earliest plans included boat access on the eastern boundary. The earliest plans also show access from Kirribilli Avenue.
A visual curtilage can be extended to include vistas from the harbour and beyond from various vantage points.
Policy 19. Heritage curtilage
The physical curtilage defined by the existing site boundary including access to the foreshore and Kirribilli Avenue should be retained and protectedA visual curtilage that includes vantage points of Kirribilli House and Garden from the harbourside should be retained protected.
7.7.6 Masterplans
Kirribilli House and Garden and Admiralty House are major elements of Kirribilli Point that form part of the continuous Sydney Harbour landscape. There are both built and natural elements from both sites that are historically significant which should be preserved and promoted. Developing a masterplan will assist in identifying areas for future development, planning and maintenance of the site and minimise any detrimental effects from ad-hoc activities.
Policy 20. Masterplans
When opportunity presents, undertake one masterplan for Kirribilli House and Garden and Admiralty House to guide future works. Include a study of the historical development of the site architectural style, massing, geometry/axis, vistas, and circulation (vehicular/pedestrian) studies. The plan should include a review of existing infrastructure/services and develop a site wide methodology for implementing new work. The plan should identify areas of future development including scale, height, massing and materials for potential future development. The masterplan should include a landscape masterplan that incorporates both sites as one landscape element of Kirribilli PointWhen opportunity presents, provide a detailed and updated version of the current Landscape Management Plan for Kirribilli House(Taylor Brammer Landscape Architects Pty Ltd, 2020) to include the heritage significance of areas of the garden, identify specific historic elements relating to significance, consolidate information fromGeoff Britton’s landscape assessment (Design 5, 2010: Appendix H) and the AECOM Tree Survey, 2023Using the above information, compile a detailed landscape design for the garden with clear heritage and design principles for each garden areaThe landscape masterplan/updated Landscape Management Plan should study water drainage and succession planting to re-establish the lost tree canopies. It should also identify plant species on site that have high water consumption and propose alternative sub-species (whilst retaining the heritage values) that are more resilient. It should also consider reducing the ongoing erosion of the sandstone cliffA qualified heritage architect, heritage landscape architect and relevant service consultants should be engaged to undertake this workThis HMP should be updated in the next review to include findings from the masterplan and the updated Landscape Management Plan.
7.7.7 Grounds generally
The garden at Kirribilli House is significant as it evidences the key historic phases; Vestiges of the pre-European landscape, Phase 1 –19th Century to 1920 (Pleasures of the People-Society, Culture and Entertainment), Phase 2 – 1920 to 1956 (Government resumption) and Phase 3 – 1957 to 2023 (Official residence of the Prime Minister). Detailed policies relating to contributory elements of the garden relating to each phase are included in Section 7.8. The following policies are aimed at conserving the grounds generally.
Policy 21. Grounds generally
Retain and protect contributory elements from each key historic phase according to their level of significance. Key elements include:- Vestiges of the pre-European landscape evidenced in the indigenous vegetation, rock outcrops, and sandstone cliffs, reminiscent of the early Port Jackson shoreline- Phase 1 – 19th Century to 1920 (Pleasures of thePeople-Society, Culture and Entertainment) evidenced in the picturesque qualities, sweeping lawn, meandering stone paths, terracing, dry stone walling, fencing, dramatic views(panoramic, framed and filtered) and floristic (leaf form, colour, and texture).- Phase 2 – 1920 to 1956 (Government resumption) evidenced in the plantings associated with significant people- Phase 3 – 1957 to 2023 (Official residence of the Prime Minister) evidenced in the instruction of terracing, steps, trees, and plants (exotic and native)Retain a high quality of garden maintenance by engaging trade professionals with proven experience in horticulture, garden maintenance and heritage gardensEngage arborists as required to manage the health and safety of older treesPrior to removal and pruning of trees consider impacts to significant views (panoramas, framed and filtered)Do not introduce new structures in the garden except for temporary structures such as marquees and climbing framesDo not introduce new garden beds or new species of plants to the site unless implemented by a landscape masterplan or management planKeep a record of plants that have been part of memorials, functions, planted or gifted by dignitariesBuilt memorials should be avoided in the garden to retain the Victorian style and residential significance of the place. Australian artwork/sculptures may be incorporated if they are sympathetic to the significance of the placeOutdoor furniture, fixtures and fittings should be sympathetic of the heritage values of the place. Retain cast iron urns and sundialsRetain and repair as necessary the boundary fences to the sitePrior to implementing the Landscape Management Plan(Taylor Brammer Landscape Architects Pty Ltd, 2020) for detailed works to hard and soft landscaping, resolve the inconsistencies of heritage landscape principles from Geoff Britton’s assessments updated information from AECOM’s Tree Survey 2023 through a landscape masterplan/detailed management plan or landscape design.
7.7.8 House generally
Kirribilli House is significant as it evidences the key historic phases; Phase 1 – 19th Century to 1920 (Pleasures of the People-Society, Culture and Entertainment), Phase 2 – 1920 to 1956
(Government resumption) and Phase 3 – 1957 to 2023 (Official residence of the Prime Minister). Detailed policies relating to contributory elements of the garden relating to each phase are included in Section 7.8. The following policies are aimed at conserving the house generally.
Policy 22. House generally
Retain and protect contributory elements from each key historic phase according to their level of significance. Key elements include:Phase 1 – 19th Century to 1920 (Pleasures of the People-Society, Culture and Entertainment) evidenced in the picturesque setting, modest scale, irregular massing, steeply pitched gabled roofs with highly decorated bargeboards, prominent gable, gabled dormer, slate roof, textured masonry walling, bay windows, timber verandah and tall medieval looking chimneys, fireplaces, timber joinery- Phase 2 – 1920 to 1956 (Government resumption) evidenced in the single storey addition (wet), bay window replacements to double hung window, gabled roof, and room to first floor, hallway widened, addition of bathrooms, garagePhase 3 – 1957 to 2023 (Official residence of the Prime Minister) evidenced in the service wing, single storey additions to either side of porch, replacement of shutters, verandah infill for storeroom, timber valence reconstruction, security screens, eastern gable windows, main stair reconstruction, and conservation worksConserve and promote the relationship of the house to the garden such as verandahs and garden elementsRetain and protect the internal arrangement of spaces, inter-relationships of rooms and volumes of spacesRetain and conserve the hierarchy of public and private spacesThe house may be altered to suit the function as an Official Prime Minister’s Residence whilst respecting the heritage values of the placeNew work should not replicate previous styles but be of a contemporary style and sympathetic to the heritage values of the placeReconstruction works should be identifiable through subtle variation in detail and should be dated.
7.7.9 Maintenance and repair
Systematic maintenance will conserve significant fabric longer for the ultimate benefit of future generations. A site wide maintenance plan is provided in Section 8.0.
Policy 23. Maintenance
Implement the General Maintenance Plan included in this HMP in accordance with the policies contained in this HMPThe maintenance plan should be adopted by JLL under their contractual obligationsThe maintenance plan should be integrated into the PM&C asset maintenance processes. A Heritage Asset works/maintenance record should also be prepared and maintained for each activityPrior to undertaking any maintenance works, confirmed that the activity proposed is maintenance and complies with the policies an in this HMP. This should be confirmed by PM&CA dedicated budget should be implemented to guide on-going maintenance work on the significant elements identified in this HMPAdequate funding arrangements for maintenance and urgent repairs identified in this HMP should be put in placeIncrease rate of maintenance following inclement weather such as high winds and storms. Inspect all weatherproofing elements of the buildingsEnsure all contractors are made aware of the heritage values of the place by providing the Heritage Induction Training Manual (Appendix P) to all contractors on site.Undertake a structural condition assessment of the site every five years by a qualified structural engineer.
7.7.10 Emergency Works
Emergency works should always be undertaken as a priority, wherever possible they should seek to be completely reversible. Emergency works (such as rectifying storm damage, repairing water leaks or attending electrical malfunctions) are a necessary aspect of managing the maintenance, safety and condition of Kirribilli House. By their very nature, they often have to be undertaken quickly with little planning. If works occur (due to safety or security reasons) that are not sympathetic, such work should be ‘undone’ as soon as practicable.
Policy 24. Emergency Works
Emergency works must always be undertaken as quickly as possible.Any emergency works should be recorded by PM&C, with the issue, condition prior to repairs and condition after repairs (including photographs) recorded as a minimum.PM&C, as the agency responsible for contractors carrying out emergency works to the fixed building elements, should be notified as soon as possible to inspect the temporary repairs and decide on a more permanent solution.All emergency works should be reversible whenever possible.
7.7.11 Climate change, sustainability, and resilience
Sustainable and resilient methods are required to manage the adverse effects of climate change. The skilled craftsmanship and composition of old materials result in heritage buildings that are durable. The re-use of existing buildings and fabric reduces the embodied energy required for new development. Hence, adaptive re-use of heritage buildings should be considered as a first measure before new development is considered. An energy audit/thermal assessment of Kirribilli House and Garden will identify areas energy expenditure.
The Australian Public Service (APS) must comply with the APS Net Zero Emissions by 2030 policy. APS Net Zero will be achieved by actively reducing emissions from APS operations as well as through offsets. This initiative will also encourage transparency by requiring Commonwealth entities to publicly report on their emissions, whilst supporting the uplift of climate capability across the APS.
Extreme weather patterns in the future mean that there will be periods of extreme drought and wet weather as well as erratic events and increased climate induced disasters. Environmental factors specific to Kirribilli House and Garden in the future include:
Increase in ambient humidity levels and condensation within buildings leading to mould and damp
Dry weather patterns creating shrinking of fabric and cracks to structure
Intense rainfalls and storms causing inefficient water drainage from buildings and areas of the garden, damage to property
Long periods of rain
The existing rising damp conditions to worsen.
Policy 25. Climate change, sustainability, and resilience(a) Assessments/audits
Comply with the APS Net Zero Emissions by 2030 policy.Should the opportunity arise, undertake the following assessments/audits:- Undertake an initial and periodic energy, water and thermal comfort assessment of Kirribilli House and Garden to identify areas of deficiencies, ideally over a year (to account for season)- Assess the existing ventilation in buildings and implement methods of improvement to minimise humidity in buildings e.g., sub floor ventilation- Assess rain and surface water runoff across the whole site and in buildings. This may include installing sensors to measure ground moisture. Implement improvements especially during torrential rainfall events- Assess the viability of measures to reduce water and energy consumption in the garden (additional rainwater tanks, automatic watering, solar powered garden lights, drought tolerant plants and grasses).
(b) Implementation
Implement low impact measures sympathetic to heritage values such as upgrades to fittings and fixtures (e.g., light fittings, water closets, taps) and services (air conditioning units, gas fireplaces)Increase the rate of maintenance to existing buildings during periods of extreme weather eventsPromote adaptive reuse of buildings. Demonstrate and exhaust all other measures to ensure existing buildings are used efficiently prior to constructing new buildings and structuresSolar panels should be avoided on the main house structure to avoid impact on significant views of the house. Solar panels may be installed on the laundry building if an HIA has determined that physical and visual impacts are minimal. The works will require permission from OOSGGNew work/developments should incorporate sustainable design and construction methodsUndertake any catch-up maintenance activities. Ensure that cyclical maintenance and emergency maintenance are activated immediately.
(c) Management plans
Develop a Sustainability Action Plan for the site and include all sustainability measures. Include a risk register and identify risks to heritage elements including loss of heritage significant plant species, loss of lawns, property damage from high winds, erosion impact to garden, risk to heritage fabric from damage, increase in pests and diseases in garden. Include measures to educate staff, contractors on creating an awareness of sustainability issues.Develop and implement a Disaster Risk Management Plan for the site that identifies potential risks to the site and its heritage values to prepare Kirribilli House and Garden for future events. This plan should identify elements of the site that maybe sacrificial losses.
7.7.12 Indigenous cultural management
It is recognised that Kirribilli House and Garden is located within a larger cultural landscape of high social, cultural, and spiritual significance for Indigenous peoples and will apply a precautionary approach to the management of heritage values.
Policy 26. General
The overarching aim for the management of the Indigenous heritage values should be done in partnership with Indigenous stakeholders.Consider the preparation of an interpretation strategy covering intangible Indigenous heritage values in the context of the broader intangible cultural landscape. This should be undertaken with Indigenous consultation.Indigenous stakeholders should be consulted regarding any potential impacts if any Indigenous heritage values are identified in relation to Kirribilli House and Garden. Consultation, in all instances, should be undertaken in a manner consistent with the Ask First Guidelines.Should a plan be formulated for the management of the garden, there may be an opportunity for consideration to be given to Indigenous plantings to be added to the existing landscape, to allow for interpretation of the history of the location. Such a garden plan should be guided by the findings of the interpretation strategy and the consultation outcomes of the intangible cultural landscape values.
Prior to commencement of any new development activities/works within Kirribilli House and Garden, all relevant site personnel and contractors should be made aware of Indigenous heritage values. The discovery of unexpected Indigenous heritage should trigger ”Stop Works” as detailed in Policy 27.
Unexpected Indigenous Heritage Finds Procedure (excluding human skeletal remains)1. Discovery - All activity within a 10 m buffer of the artefact/site must stop immediately. Works can proceed outside of the buffer so long as the site is left in situ and protected from harm (e.g., through temporary high visibility fencing).2. Notification - The contractor and/or stakeholder responsible for undertaking the activity must notify management about the discovery and seek advice.3. Impact Assessment - If required, undertake an assessment for the proposed activity/works in accordance with relevant heritage guidelines.4. Impact Mitigation - Implement management actions detailed in the assessment.5. Reporting - Update GEMS to reflect the presence of the new site and any implemented management actions.Unexpected Human Skeletal Remains Procedure - For any confirmed or suspected human skeletal remains, the following procedure should be followed:1. Discovery - All activity within a 10 m buffer of the remains must stop immediately. Works can proceed outside of the buffer so long as the site is left in situ and protected from harm (e.g., through temporary high visibility fencing). The remains must not be left unattended.2. Notification: The contractor and/or stakeholder responsible for undertaking the activity must notify management of the discovery. They, in turn, must notify the Coroner’s Office and the Military Police, who will notify appropriate local authorities. If it is confirmed by these authorities that the remains are Indigenous Ancestral Remains, they should, as soon as practicable, report the existence of the remains to Indigenous stakeholders and relevant State-based heritage authorities.3. Impact Assessment and Mitigation: Management should consult with Indigenous stakeholders and an appropriately experienced and qualified heritage consultant. In general, the first management option should be avoidance of the location. If this is not possible, then relocation of the remains to a designated keeping place, or reburial at a location near to the original (but within an area that will not be impacted) should be undertaken. The wishes of the Indigenous stakeholders should guide these actions. The excavation and handling of any Indigenous skeletal remains should follow best practice scientific guidelines (e.g., NSW Heritage Office, 1998).4. GEMS Update:- Update GEMS to reflect the presence of the remains and implemented management actions.
Consider the development of a standard Indigenous stakeholder access process, acknowledging security and safety constraints.
Policy 28. Indigenous stakeholder process
Kirribilli House and Garden is an active, high security area with access needing to be arranged in advance through appropriate personnel, with all visitors subject to security clearance and induction processes. Existing security and induction procedures notwithstanding, should Indigenous values be identified in the future, the development of a standard Indigenous stakeholder access process should then be developed, which could potentially provide approval for on-site cultural practices, such as smoking ceremonies. In general, should any interested Indigenous community members wish to enter for cultural reasons, they should contact the appropriate management contact who should facilitate the visit.
Indigenous stakeholders should be given the opportunity to review and comment on any public disclosures pertaining to the Indigenous heritage values of Kirribilli House and Garden.
Policy 29. Review and comment on public disclosures regarding Indigenous heritage values
The investigation of intangible Indigenous cultural heritage values, and in the event that finds occur during future works, may result in the identification of Indigenous values relating to Kirribilli House and Garden. Should information regarding such Indigenous heritage values be proposed for release into the public domain, Indigenous stakeholders should be afforded the opportunity to review and comment on any disclosures prior to their release. All comments received should be considered and inform the final disseminated disclosure.
7.7.13 Services
The insertion of any new services should be carefully considered and consider the original structure and fabric of the heritage buildings to minimise impact.
Policy 30. Services
Services should be minimised in their extent and carefully planned to minimise damage to significant fabricNew, replacement and upgraded services should use existing conduits and ducts wherever possibleCeiling-mounted fittings, such as detectors and light fittings with minimal fixings are recommendedSurface-mounted vertical risers are permitted, provided their style and finish is compatible with the cultural significance of the space through which they pass. Wherever possible, vertical risers should be in minor spaces of least cultural significanceLight fittings and electrical accessories (switch plates, GPOs) should not be period reproductions but discrete modern fixturesAir-conditioning units should be discreet in location and appearance. Any associated works should be positioned to avoid damage to significant fabricExternal air-conditioning units should be concealed from view, not located on the front façade of the building, and positioned to avoid damage to significant external fabric.
7.7.14 Archaeological monitoring
Areas of high archaeological potential have been identified at the subject site. If excavation is proposed in these areas, further investigation by a suitably qualified archaeologist would be required prior to commencement of works.
Policy 31. Archaeological monitoring
Any excavation in areas of high archaeological potential should be carried out under archaeological supervision by a qualified archaeologistIf underfloor deposits are planned to be removed, engage an archaeologist to remove and assess to determine the presence of any artefactsIn the event of uncovering any unexpected item or archaeological deposit, implement an unexpected finds procedure must be followed (see Figure 4‑27).
7.7.15 Carparking and circulation
The site has limited potential for incorporating carparking and vehicular access without impacting on the garden setting of the site. The driveway loop originates from the Phase 3 – 1957 to 2023
(Official Residence of the Prime Minister) and is graded as an item of moderate significance,
hence may be modified for future requirements.
Policy 32. Carparking and circulation
An increase to the number of carparking spaces currently provided is not recommended i.e., spaces for permanent garaged vehicles and informal parking of cars on drivewayThe driveway loop may be modified for future carparking and vehicular access but must have little to no impact on the garden setting.
7.7.16 Public access
There is limited public access due to security and privacy reasons. However, the site holds many functions where large number of people can attend the site at any one time. Open days of the house and garden are also held. It is important that the heritage significance of the site is communicated, and significant fabric is protected during these times by implementing a Visitor Management Strategy.
Policy 33. Public access
Undertake and implement a Visitor Management Strategy for the site.Public open days should occur every year however the level at which the property is open to the public should be decided in conjunction with the incumbentsAt a minimum the grounds should be open for inspection during open daysCare should be taken to protect artworks and furniture during open daysInterpretative materials should be available on the day
7.7.17 Archival recording
An archival photographic record of any fabric or equipment that is proposed and approved for removal should be prepared by a suitably qualified heritage specialist in accordance with the Photographic recording of heritage items using film or digital capture (Heritage Office 2001,
revised 2006) guideline. The record should aim to capture the item prior to, during and after the proposed works. A copy of the archival record be provided to the local council and the NLA.
Currently there are several sites that hold vast amount of historical information relating to the site including, State Records, NLA, State Library of NSW, Stanton Library and PM&C. This information should be consolidated, and a central repository of information should be established.
Policy 34. Archival recording
Undertake an archival photographic record of any fabric or equipment that is proposed and approved to be demolished. The works should comply with Photographic recording of heritage items using film or digital capture (Heritage Office 2001, revised 2006) guidelineProvide a copy of the archival record to PM&C, council and NLA(with redacted information on security)Establish a central repository of information of historical data.
7.7.18 Movable items
There are several movable items associated with Kirribilli House and Garden. These include a wide variety of furniture, art and memorabilia predominantly lent and managed by the Australian Fund (see detailed identification, care and management set out in the catalogue by Australian Fund, The Australian Fund, 2022). Additional items found on site should be assessed and recorded by suitably qualified persons and conserved on site or protected in off-site storage.
Policy 35. Movable items
The existing management practice and collaboration with Australian Fund and PM&C should continueIf additional moveable items are found, they should be identified and assessed by a suitably qualified person and conserved on site, or protected in an off-site storage facilityMovable items should be assessed for suitability for incorporation in an Interpretation Plan for the site.
7.7.19 Heritage interpretation
There is an opportunity for the heritage significance of Kirribilli House and Garden to be promoted to the public by undertaking an Interpretation Strategy. The strategy should be prepared by a heritage consultant and appropriately funded. This strategy should include consideration of security and safety requirements whilst communicating the heritage significance of the site.
Policy 36. Interpretation
An Interpretation Strategy should be prepared for Kirribilli House and Garden by a suitably qualified heritage consultantThe Interpretation Strategy should consider privacy, safety, and security requirements of the siteConsider the use of wide range of media, digital, paper, physical (signage, fabric) and sensory elements (e.g., textured materials in the garden and soundscapes)Include associations with significant people for the house as well as the garden (include signage adjacent to significant plants).Consider displaying historic photographsIncorporate any oral histories (e.g., descendants of the Feez family, former Prime Ministers)Include Indigenous heritage values and consult with the Metropolitan Local Aboriginal Land Council and other relevant Aboriginal parties.If there is an opportunity, undertake an Indigenous Intangible Cultural Values study and to incorporate reference to Indigenous past in the garden through a cohesive approach.An Indigenous Interpretation Strategy may be prepared as a separate documentCreate a unified and consistent style, sympathetic to the heritage aesthetic of the site, for interpretation of the site e.g., style of fonts and colours for signs.
7.7.20 Signage and external lighting
There is limited signage on site that is in keeping with the residential character of the site. There is also a mixture of light fittings in the house and garden with majority of fittings originating from the 1957 modifications and some reproduced Victorian lamps.
Signage and external lighting can add to the character of the site. Signage and lighting should not adversely affect the significant heritage fabric and overall character of the site. When installing signage, the fixings should be reversible and not damage significant fabric.
Policy 37. Signage and external lighting
Should the opportunity, arise develop a complex-wide signage and external lighting plan for the site.Signage and lighting should be in harmony with the historic character of the site and compliant with current Australian health and safety standardsFree standing signage systems should be used for major directional signs, with smaller signs applied to selected areas with a minimum of fixingsSigns should not be attached to the brickwork walls of the buildingsIf the opportunity arises, a lighting designer or architect should be engaged to undertake a site wide study of existing lighting to the house and garden, and propose a lighting plan that is a contemporary design and sympathetic to the heritage values of the siteIncorporate sustainable lighting practices.
7.8 Contributory elements
Contributory elements (tangible and intangible) to the heritage significance of Kirribilli House and Garden have been identified in Table 5‑3: Schedule of significant (contributory) elements.
These elements are essential to the significance of the place and should be conserved according to the following policies.
Policy 38
(1) Curtilage
See policy 7.7.5.
(2) Relationship to Admiralty House
Conserve and protect views to Admiralty House and key elements within its gardenRetain the existing access points at the western boundary.
(3) Views and vistas to Kirribilli House
See policy 7.7.4
(4) Views and vistas from Kirribilli House
See policy 7.7.4
(5) Pre-European vestiges
Retain and protect features of the pre-European landscape including, plantings, rock outcrops and sandstone cliffs.
(6) Entrance gates, stone walls, and fences
Retain and conserve stone walls and wrought iron gates.Consider replacing the side entry gate to an interpreted detail of the early gate from 1913 (Figure 5-11Figure 5‑6)Fencing to the northern boundary may be altered to interpret earlier detailsThe fencing along the boundary to Admiralty House may be altered to a more open style of fence to interpret the connection between the two sites.
(7) Driveway, driveway loop and entrance forecourt
An entry precinct that is grand and in keeping with the Victorian themed garden style should be retainedPlant species should be sourced from available archival sources of the Victorian eraThe entry drive should not be increased in area for future useAn updated Landscape Management Plan should review the significance of the species of camellias to confirm their association with the work of Professor E G WaterhouseA Landscape Management Plan should seek to undertake further research and gain expert opinion are required to confirm appropriateness of the Jacaranda trees on the site.
(8) Upper eastern grassed banks and terraces
The steep grassed banks should be retained and existing view preserved.
(9) Lower eastern lawn terrace and eastern walk
The steep grassed banks of the lower terrace should be retained as an open space permitting views to the harbour and views to the house from the harbourPlantings to the south should be consistent with the Victorian eraOpportunities for reinstating Indigenous vegetation should be investigated.
(10) Northeast gardens and walks
The sandstone outcrops should be retained and not concealedThe meandering paths should be retainedPlantings should be appropriate to the Victorian era and should also address loss of privacy to the northern boundary from tree lossThe poorly executed sandstone paving on north-eastern and lower grounds should be reviewed.
(11) Northeastern terrace
The stone wall and paving should be reconstructed with a rustic theme, providing a focus for the existing rock outcropCourses should follow the horizontal bias with no vertical elementsPlantings should be consistent with the Victorian era, promote Indigenous vegetation, provide privacy, and retain filtered views.
(12) Clifftop garden
The wild character of the garden should be retained without impeding on viewsThe safety aspects of the garden should be reviewedIndigenous vegetation should be promoted.
(13) Foreshore and cliffs
The foreshore and cliff line with sandstone face should be retainedIndigenous plantings should be promotedSafety and design of the access pathways that lead to the boat harbour and bathing pool below should be reviewed.
(14) Harbourside ruins
The boat harbour, bathing pool, boatsheds and retaining walls should be retained and conservedAn archival record of existing structures should be undertakenFurther physical studies of this area should be undertakenExisting retaining walls should be stabilised
(15) Southern lawn terrace and rockeries
The stone flagged areas, rockeries, and terraces should be retained and conservedThe steel pipe handrail should be upgraded to comply with current access codes.
(16) Western garden including hedged lawn and kitchen garden
The hedged lawn and kitchen garden should be retained and conserved
(17) Paths and stairs
Existing paths and stairs should be retainedA landscape masterplan should study existing paths and stairs and propose a plan considering hierarchy of paths, detailing of edging, consolidation, and cohesive palette of materialsrandom stone paving to lower areas should be removed and replaced with bitumenThe drainage of paths away from the building line should be ensured
(18) Significant trees
All significant trees and plants identified in this HMP and Landscape Management Plan should be retained and protected.A program for succession of identified plantings should be undertaken, particularly to address loss of tree canopy and privacy along Kirribilli Avenue.
(19) Victorian Rustic Gothic style features
The stylistic features of the Victorian Rustic Gothic architecture should be retained, protected and conserved.
(20) North elevation
All pre-1957 fabric should be retained and conservedThe entry porch in its current configuration should be retained. Steps may be altered but should remain symmetrical to the porchDo not introduce new openings to 19th Century walls.
(21) East elevation
All pre-1957 fabric should be retained and conservedThe verandah in its current configuration should be retained, including existing doors and windowsDo not introduce new openings to 19th Century walls.
(22) South elevation
All pre-1957 fabric should be retained and conservedThe verandah in current configuration should be retained including existing doors and windowsDo not introduce new openings to nineteenth century wallsThe timber storeroom may be removed, and the original verandah may be reinstated.
(23) West elevation
All pre-1957 fabric should be retained and conservedRoom and gabled roof over the northwest corner of building should be retainedSingle storey parapet wing may be removed or alteredThe service wing may be removed or alteredThe awning entry may be removed or alteredDo not introduce new openings to 19th Century walls.
(24) Roof, chimneys, and rainwater goods
The roof, chimneys, and rainwater goods should be retained and conservedIf required install, safety anchors on internal slopes.
(25) Masonry walls
Masonry walls and associated elements should be retained and conservedRepairs and conservation work to masonry walls should follow traditional repair methodsDo not use cement render on pre-1950s wallsPaint finish should be retained.
(26) Verandah
The verandah and associated elements should be retained and conservedDo not infill any part of the verandahStoreroom/infill to verandah may be retained or removedFuture replacement of roof should be corrugated copper.
(27) Entry porch including front doors
The entry porch and doors should be retained and conservedThe entry steps may be altered but the symmetry and stone fabric should be retainedThe front doors may be relocated to its original location. The doorframe and fanlight should be retainedStone flagging to interior may be replaced with unglazed tessellated tile.
(28) Bay window including parapet and flat roof
The bay window and its elements should be retained and conserved
(29) French doors
The French doors and associated elements including hardware should be retained and conservedReinstatement of the earlier narrow doors to eastern elevation is not requiredSteel security doors have been designed sympathetically to the doors and should be retainedDo not modify early doors to include double glazing.
(30) Windows
The early casement windows, Gothic windows (porch) and multi-paned double hung windows should be retained and conservedAssociated elements including hardware should be retainedDo not modify early windows to include double glazing.
(31) Shutters
The early shutters (pre-1957) should be retained and conservedShutters of later date may be removed or modified.Do not modify early windows to include double glazing.
(32) Post 1950s additions
Additions may be retained or demolishedIf removed, the original details of the walls should be reinstated.
(33) Service wing
Service wing may be retained or demolished.
(34) Entry hall including Entry lobby
The entry hall and lobby in its current configuration should be retainedSignificant features should be protected and conserved
(35) Drawing room
Should be retained in its current configuration without reinstating original wall between roomsSignificant features should be protected and conserved
(36) Dining room
Should be retained in its current configuration without reinstating the opening size between dining and drawing roomSignificant features should be protected and conserved
(37) Prime Minister’s study
Should be retained in its current configurationThe glass doors to the east may be retainedSignificant features should be protected and conserved
(38) Green room
Should be retained in its current configurationShelving to either side of fireplace may be altered or removed and former door in this area may be reinstatedSignificant features should be protected and conserved
(39) Hallways and stairs
Should be retained in its current configurationThe narrow hall should not be reinstated at ground floorSignificant features should be protected and conserved
(40) Family room
Should be retained in its current configurationSignificant features should be protected and conserved
(41) Bedrooms
Should be retained in its current configurationFireplace may be reinstatedSignificant features should be protected and conserved.
(42) Bathrooms
Internal spaces and finishes may be modified and reconfigured as required.
(43) Spaces in service wing
Internal spaces and finishes may be modified and reconfigured as required.
(44) Internal joinery, including doors, architraves, and skirtings
All pre-1950s joinery should be retained and conserved in situ to reflect the different periods of developmentWhere joinery is polished, polish finish should be retained and not painted overConservation works should consider reinstating the polished/grained finish to early joinery.
(45) Services
See 7.7.12
(46) Garage
The garage may be altered internally.
(47) Guard house
The meandering paths should be retainedThe guard house may be altered or demolished.
(48) Storeroom
The storeroom may be altered or demolished.
(49) Moveable items
See 7.7.18
7.9 New work
7.9.1 Adaptive re-use
Kirribilli House and Garden was constructed as a residence in 1856 and used as a residence during the key period of significance Phase 1 – 19th Century to 1920. The site has continued its residential function when it became the Official Sydney Residence of the Prime Minister in 1957, hence the current use is consistent with the historical significance of the site. The residential use is evidenced in the planning of the house and garden as well as its physical fabric.
Policy 39. Adaptive reuse
The most compatible use for Kirribilli House and Garden is a residential useKirribilli House and Garden should be retained as an Official Sydney Establishment of the Prime Minister and its ownership continued by the CommonwealthBefore considering adaptive re-use an assessment should be made of the compatibility of new use to the site’s historical function, potential loss of associations with prime ministerial roles and potential impacts (physical and visual) on heritage significanceFuture adaptive reuse should also consider hierarchy of public and private use of parts of the site and where feasible allowing public access.
7.9.2 New development, additions and infills
The original house built in 1856 was located on the smoothed platform above the rock outcrop centred on the site. The house was extended to the west in the latter two phases. Minor infills and extension to the house have occurred also taken place during this time. Outbuildings were located as a garden structure on the central garden area, to the west of the site and harbourside structures to the eastern boundary. There is opportunity to restore the ruins of the harbourside structures. Modifications or replacement of the service wing from 1957 is possible. Elsewhere on the site, there is limited opportunity for development without potential impact to heritage significance. Any development of the laundry building which is owned by OOSG has potential to impact the heritage significance of Kirribilli House and Garden. There is additional opportunity for development if the site was consolidated with Admiralty House (investigated in Kirribilli House Master Plan Report (Phillip Cox & Partners Pty Ltd, 1981). Opportunities should be considered through a new masterplan study.
Policy 40. New development, additions and infills
There is minimal opportunity for new development, additions and infills at Kirribilli House and GardenUse of existing spaces should be maximised prior to considering alternatives to developAll other opportunities that have little or no impacts to heritage values should be exhausted prior to considering new developmentRestoration of the harbourside structures should be considered.There is opportunity to modify or replace the service wing from 1957New development should consider the existing architectural style, forms and masses and ensure that the proposed works are sympathetic and do not compete with the Rustic Victorian character of the placeNew work should adopt the principle of reversibility to mitigate potential impactsNew work should use high quality of materials
7.9.3 Changes to function of spaces
Kirribilli House and Garden is not a static house museum and it should continue to evolve with each incumbent as the requirements for its use change. Changes to the historical uses, however, should be carefully assessed for compatibility of spaces and only implemented once all other options have been investigated and discarded.
Policy 41. Changes to function of spaces
Change of use to spaces are permissibleAreas of low significance have high tolerance and flexibility for changesAreas of high significance have low tolerance and flexibility and compatible uses should be first considered before considering options.
7.10 Conservation in accordance with significance
Much of the cultural significance of Kirribilli House is embodied in the physical fabric of the place. Section 5.4.1 of this HMP sets out the grading scale for significant elements ranging from those elements of exceptional significance down to those that are intrusive. It follows that conservation action should be related to an element’s relative level of significance. Grading of significant fabric in each element/building is included in 5.4.3 and guidelines for managing change are identified in Section 5.4.2.
Policy 42. Conservation in accordance with significance
Much of the cultural significance of Kirribilli House and Garden is embodied in the physical elements and fabric of the place. Conservation action should be related to the elements or fabric’s level of significanceAny repair, conservation or reconstruction works to significant elements or facades must be undertaken with appropriate direction by a suitably qualified heritage consultant, architect and/or relevant materials specialist/s or conservator and with reference to historical documentation.
7.11 Conservation of Materials
7.11.1 Traditional materials
Kirribilli House and Garden consists of several traditional materials including slate, lead, copper, sandstone, brick, cast iron and timber.
Policy 43. Traditional materials
A heritage architect should be engaged to undertake works and provide advice on to traditional materialsWhen repairing or altering traditional materials, a qualified and experienced traditional trades contractor should be engaged to undertake the work or supervise the work.
7.11.2 Reconstruction
Kirribilli House and Garden has many details that are missing or have been undertaken in an inappropriate manner. When these works are proposed to be reconstructed, the work should be based on documentary evidence of an earlier state.
Policy 44. Reconstruction
Reconstruction is appropriate only where an element is incomplete through damage or alteration, and only where there is sufficient evidence to reproduce an earlier state of the elementReconstruction should be identifiable on close inspection.
7.11.3 Colour schemes and finishes
When repainting, the choice of paint colours should be based on an understanding of original colours and finishes used – through documentary and analysis of physical evidence (e.g., paint scrapes).
If repainting is required, original colour schemes should be re-instated for significant elements.
A colour palette and interior design advice was provided in the 2016 HMP and should be used to guide future works.
Policy 45. Colour schemes and finishes
Refer to Kirribilli House – Colour Palette and Interior Design Heritage Advice, Appendix O.
There are areas of the site that have been inappropriately repaired or conserved. These include the cement mortar repairs to masonry and conservation works where details are exact replicas.
When opportunity arises, undertake works to remedy areas. Works should be prioritised and only those items identified as intrusive should be modified.
When practical, previous inappropriate repair and conservation methods should be remedied with the use of traditional methods according to priority.
7.11.5 Heritage reporting on the review and implementation of the HMP
This HMP should be reviewed every five years and considered for full update every ten years or when large-scale changes are proposed that are not considered in this HMP. The implementation of the HMP should also be reviewed every five years.
Policy 47. Heritage reporting on the review and implementation of the HMP
This HMP should be reviewed every five years (or when large-scale changes are proposed that have not already been considered in this HMP)This HMP should be reviewed every ten years and considered for a full update.The implementation of the HMP should be reviewed every five years (assessing works priorities, if the HMP is actually implementing the policies and strategies, and the condition of the place and the condition of its listed Commonwealth Heritage values – see table below).These reviews should be documented as reports with findings and actions clearly documented,
<table cellspacing="0" cellpadding="0" style="margin-bottom:0pt; border:0.75pt solid #000000; border-collapse:collapse"><thead><tr style="height:17pt"><td style="width:244.1pt; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-right:5.03pt; padding-left:5.03pt; background-color:#008768"><p class="TableSolidFillH1"><span>Commonwealth Heritage Values</span></p></td><td style="width:187.7pt; border-left:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-right:5.03pt; padding-left:5.03pt; background-color:#008768"><p class="TableSolidFillH1"><span>Reporting and monitoring</span></p></td></tr></thead><tbody><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion A - Processes – Attributes: The fabric and form of the house</span></p></td><td rowspan="6" style="width:187.7pt; border-top:0.75pt solid #000000; border-left:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>When reviews are undertaken on the effectiveness of the implementation of the HMP policies, these should be applied to the Commonwealth heritage values through a qualitative assessment of the retention of the attributes listed against each relevant criterion (A, B, D, E, G and H). The success in retaining these attributes and thus the associated values that reside in them should be documented as reports with clearly stated findings and actions.</span></p></td></tr><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion B - Rarity – Attributes: The house, its curtilage and relationship to the harbour</span></p></td></tr><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion D - Characteristic values – Attributes: The building's form, its external styling and details, and its early and original fabric</span></p></td></tr><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion E - Aesthetic characteristics – Attributes:</span></p><p class="TableText"><span>The architectural appearance of the building, its landscape setting and relationship to the harbour</span></p></td></tr><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; border-bottom:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion G - Social value – Attributes: The house in its garden setting, plus the occasional public open days</span></p></td></tr><tr style="height:14.15pt"><td style="width:244.1pt; border-top:0.75pt solid #000000; border-right:0.75pt solid #000000; padding-top:2.85pt; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="TableText"><span>Criterion H - Significant people – Attributes: The whole of the building, both internally and externally</span></p></td></tr></tbody></table>
7.11.6 Knowledge gap analysis
A review of reports for the site has identified knowledge gaps. Opportunities should be sought for these to be addressed as part of future investigations and assessments.
Policy 48. Knowledge gap analysis
Opportunities should be sought to fill the following knowledge gaps:The heritage significance of the site predominantly lies in the Victorian era and there is insufficient representation of this evidence in the documentary and physical analysisAlthough there are several floor plans available for the site, the original house plans are yet to be locatedDiscussion of the significance of the pool and remnant boat shed ruinsDiscussion of the shared history of Admiralty House and the site and why the two sites are separately listedDemonstration of the wider landscape context of the harbour setting of the site and critical views and vistasConfirmation of the position and detail of the original staircaseThe detail of the original front doorThe detail of the original bay window on the eastern elevationThe early detail of the door(s) in the south wall of StudyThe detail of the original verandahThe detailing of the c.1860s verandah columns and bracketDetails of the original drawing room windowsThe early use of some of the spaces in the building c.1856-1880The exact position, configuration and use of the early outbuildings, c.1856-1920The position and thickness of some early internal walls, c.1856-1920Specific details about internal decoration, including some chimney pieces and gratesThe detail and configuration of the boat sheds and original staircase down to harbourDetails of original fencing and gates,
Policy
Responsibility
Priority
Timing
Policy 1. Adoption and review of HMP
PM&C to adopt and implement
High
0-1 year
Policy 2. Change in Ownership or Lease
PM&C to notify, review and consult
High
0-1 year
Policy 3. Expert advice
PM&C to engage appropriate experts
High
0-1 year
Policy 4. Training and resources
PM&C to induct
High
0-1 year
Policy 5. Roles and responsibilities
All stakeholders
High
0-1 year
Policy 6. Internal approval and record keeping
PM&C to implement
High
0-1 year
Policy 7. Legislative approvals process
PM&C to manage
High
0-1 year
Policy 8. NCC and DDA compliance
PM&C to ensure compliance
High
0-1 year
Policy 9:Saftey
PM&C to ensure compliance
High
0-1 year
Policy 10: Access for people with a disability
PM&C to implement
High
0-1 year
Policy 11. Planning and coordination
PM&C to plan and coordinate
High
0-1 year
Policy 12. Stakeholder consultation
PM&C to undertake
High
0-1 year
Policy 13. Security
PM&C to provide
High
0-1 year
Policy 14 Security infrastructure
PM&C to ensure
High
0-1 year
Policy 15. Burra Charter and principles of conservation
PM&C to ensure
High
0-1 year
Policy 16. Setting
PM&C to retain and protect
High
0-1 year
Policy 17. Streetscape
PM&C to retain and protect
High
0-1 year
Policy 18. Significant views
PM&C to retain and protect
High
0-1 year
Policy 19. Heritage curtilage
PM&C to retain and protect
High
0-1 year
Policy 20. Masterplans
PM&C to undertake
Medium
0-5 years
Policy 21-23. Grounds generally / House generally / Maintenance
PM&C to retain and protect
High
0-1 year
Policy 24 Emergency works policy
PM&C to undertake
High
0-1 year
Policy 25. Climate change, sustainability, and resilience
Policy 47. Heritage reporting on the review and implementation of the HMP
PM&C to implement
Medium
0-10 years
Policy 48. Knowledge gap analysis
PM&C to implement
Medium
0-5 years
7.12 Implementation plan
The following implementation plan should be utilised for the policies listed above.
8.0 Maintenance Schedule
8.1 Introduction
Regular, on-going inspection and maintenance is vital to the longevity of heritage buildings and to preserve their heritage significance. The following section provides the required catch up maintenance, a cyclical inspection and maintenance schedule.
8.2 Catch-up Maintenance
Kirribilli House and Garden has been well maintained, resulting in a good overall condition. Conservation of the exterior stonework has been carried out within the last five years. A few catch-up maintenance items were noted. Cleaning of the exterior has been added to the maintenance schedule in Section 8.3.
Part 7.0 - Kirribilli House and Garden Heritage Management Plan 2025–2030 - Managing heritage values | Zoe