Subdivision The move to Canberra and eventual separa - National Library of Australia Conservation Management Plan - The move to Canberra and eventual separation of the National Library | Zoe
The move to Canberra and eventual separation of the National Library
The move of Parliament and its library to Canberra in 1927 did not advance the separation of the parliamentary and national functions of the library, despite Binns, an advocate of the National Library, becoming Parliamentary (and National) Librarian.
Because the space allocated to the Parliamentary Library in the Provisional Parliament house was severely limited, one-third of the West Block, then being constructed, was intended for use by the National Library. However, this space was almost entirely lost in late 1928, shortly before completion, to make way for office accommodation for the Bureau of Census and Statistics, then being transferring from Melbourne. The National Library retained two small offices, but this space too was finally handed over to public service use in 1930. The Prime Minister promised the return of the West Block space to the Library when the Administration Building was completed in 1930, but the Great Depression stopped that plan (the Administration Building not being completed until 1956), and the National Library was left homeless except for storage space in the basement beneath the Senate Chamber.[22]
Charles Daley, then Secretary of the Federal Capital Commission, describes how the National Library, ‘became a species of “poor relation”, suffering more discomfort, perhaps, over a longer period, than any other Commonwealth instrumentality in Canberra.’[23] Things did not improve much over the following decades, as witnessed by visiting eminent United States librarian, John Bouchard, who, while advising Harold White on the designs for the current Library building in the late mid-1960s, commented that it was the worst-housed library of its importance in the world.[24]
The Commonwealth National Library, as well as being available to parliamentarians, also fulfilled the role of Canberra’s lending library, extended lending rights to Canberra high-school children in 1928, and to all Canberra residents in 1930. The public library function was initially serviced from the basement of Provisional Parliament House (now Old Parliament House), on Saturday mornings. Access to the collection was also provided to the new Canberra University College, it being one of the conditions imposed by the University of Melbourne in sponsoring the college that access to the National Library collection be allowed.[25]
Under Binns’ management the Commonwealth National Library continued to develop, and won praise in the Munn-Pitt Report on Australian libraries, funded by the Carnegie Corporation in 1934, whereas the general state of Australian libraries was found to be alarmingly backward. The Munn-Pitt report was influential in providing recognition of the worth of a national library, and its potential role in coordinating a number of key library functions on a national basis.
In 1935, stimulated by the Munn-Pitt report, the government finally recognised the importance of the national collection by providing funds for that function separate from funding necessary to support the rest of the Parliamentary Library. The funds went largely to the construction of a new, small, National Library building on Kings Avenue, designed by E H Henderson, in 1935.[27] An alternate site, on the Senate gardens side of Parliament House, was first proposed, then vigorously debated, and rejected. The new building was intended to be the first stage of a larger development, but the extensions never happened. The building was overcrowded from the start, and temporary storage for much of the national collection remained a necessity. The Kings Avenue National Library building was demolished in September 1970 to make way for the Edmund Barton Offices.
Figure 24. Commonwealth National Library, Kings Avenue, Canberra, ACT, about 1939Source: National Library of Australia, nla.obj-146684068
While Binns and White continued to lobby the Government for funds to extend the 1935 National Library building, the war and post-war priorities got in the way, and it was not until the 1950s, and the start of the major expansion of Canberra by government departments, that the funding of the National Library was again visited by government.
Prime Minister Menzies was lobbied by the Joint Library Committee, donors of library material and others in 1951 and 1952 about the urgent need for a new home for the National Library, and the totally sub-standard housing of what was now a major national collection. At the same time, Menzies was authorising funding through his department to purchase substantial formed collections for the Library, and the Prime Minister’s Department expressed its nervousness about the expenditure of substantial funds by a body with no legislative basis. Menzies responded to these various pressures in 1953 by proposing a committee to look into the future role, functions and control of the National Library, and recommend whether changes were needed. However, Menzies was apparently not able to get the person he wanted to head up the inquiry, so the committee was not actually appointed until 1956, by which time Menzies, initially reluctant to see funds put into Canberra’s development, had also swung around to a pro-Canberra development attitude.[28]
Harold White, who had succeeded Binns as Parliamentary (and National) Librarian in 1947, wanted to consolidate the Parliamentary and National wings of the Library, as well as the Archives Authority function which had been created during World War 2 and made a responsibility of the Library in 1952, under one management and one roof. Others, including visiting American Library planning expert Keyes Metcalf, advised the separation of the three functions of the Library. The Committee, chaired by Sir George Paton, Vice-Chancellor of the University of Melbourne, reported to Parliament in April 1957. The committee recommended the separation of the three functions — Parliamentary Library, National Library and Archives Authority — and its recommendations formed the basis of the National Library Act of 1960. [29]
Under the new Act, the National Library was placed under Ministerial control, with a governing Council of nine, consisting of two members elected by the Senate and House of Representatives, and the remainder appointed by the Governor-General in council. The function of archives authority for the Commonwealth was separated and transferred to the Prime Minister’s Department. An Amendment Act in 1973 increased the National Library of Australia Council from 9 to 12 members, changed the designation of the National Librarian to Director-General, and made that person also a member of the Council.[30]
In the meantime, the location and design parameters for a national library building were also being decided.
2.3.2 Deciding the location for the National Library of Australia Building
In 1912, a design submitted by Walter Griffin was chosen for Canberra as the nation’s capital. Griffin’s initial and subsequent designs reflected his concept of the ordered structure of a democracy, creating a Parliamentary Triangle with a Capitol Building (being a ‘people’s palace’ rather than part of the legislature) crowning Capital Hill at the apex, a parliament house a little down the triangle or pyramid of civic structure, then a group of government buildings flanking the Land Axis and the judiciary immediately south of the proposed lake, symbolically located between the executive, legislature and bureaucracy, and the people. The civic and community functions formed the base of the triangle to the north of the lake, being the foundation of the democratic structure reflected in the planning. Here were to be located public gardens, a stadium, theatre and opera house, galleries for graphic and plastic arts, and museums for national history and archaeology.[31]
While the community/national institutions functions were to be north of the lake, a library was, in Griffin’s scheme, to be co-located with Parliament, presumably in recognition of the Parliamentary Library’s key parliamentary function, and possibly in line with the model of the Library of Congress.[32] A plan exists for a Parliament House drawn in Griffin’s office, which shows a large library connecting directly to the lobbies of the chambers of parliament.[33] The Griffin plan for the parliamentary zone sat, largely unimplemented, for the next four decades.
The issue of the development of Canberra rose again in the mid 1950s, when Prime Minister Menzies resolved to accelerate the development of Canberra as the national capital. A primary consideration driving Menzies’ wish to see the city develop was his desire to have his ministers and their departments co-located. This meant the provision of housing and infrastructure to allow the move of public servants from Melbourne to Canberra, and the creation of the buildings and institutions in which the public service departments would work.[34]
Menzies promoted Allen Fairhall to the Ministry of the Interior in 1956 to further this aim, and Fairhall moved to implement the recommendations of a 1955 Senate Select Committee (chaired by Senator John McCallum) on the city’s development. A key stone of the new approach was the creation of a single authority to oversee the development of Canberra, and in August 1957 the National Capital Development Commission Bill was introduced. Menzies demanded changes to the Bill to strengthen the independence of the proposed National Capital Development Commission (NCDC), to avoid the inter-departmental arguments that had previously slowed or stalled development. Fairhall was also directly involved in getting British town planner Sir William Holford to advise on Canberra’s development, and appointed John Overall, Chief Architect of the Department of Works, as the first Commissioner of the NCDC.[35] The creation of the NCDC and the commissioning of Holford would have an important influence on the location and construction of the future National Library building.
Griffin’s structured geometry and ‘City Beautiful’ concepts were substantially diminished by the NCDC. William Holford’s view, supported by the NCDC, was that the Griffin plan was outdated given the rapidly expanded use of the motor car and newly developed ideas of how to locate monumental buildings in a less formally structured landscape. Holford’s report recommended the location of Parliament House on the southern lake shore, embracing a large monumental plaza between widely separated wings, and placed the national institutions, including libraries, on Camp Hill behind the Provisional Parliament House site.[36]
In 1959, the NCDC, freed from the constraints of the Griffin plan, and heavily influenced by Holford’s vision, issued a new plan for Canberra’s central area, which replaced Griffin’s plan gazetted in 1925 (based on his 1918 plan) as the direction for the development of the parliamentary and related areas. The NCDC working plan of 1959 shows a new site for the National Library at the northwestern corner of the Parliamentary triangle, where it would eventually be built.[37] The mint was at first considered for this location, but others (possibly led by Grenfell Rudduck, Associate Commissioner of the NCDC) suggested the library go there, and Menzies also felt that the library should be close to the Parliament.[38] The Library was to flank the proposed lakeside Parliament House on its west, while the High Court would reflect it on the eastern side. Paul Reid, chief architect of the NCDC from 1968 to 1982, points out that this was not unlike the arrangement in Washington.[39] Harold White grasped this planning initiative, and used it to help his argument for the development of the National Library, with a tunnel connection to Parliament to enable it to service members. Provision for the tunnel remained a feature of the planning of the building, but was never constructed.[40] The National Library Act 1960 created the separate National Library, and the decision to proceed with a new building on the planned site followed soon after.
In 1964 Sir William Holford refined his plan for the parliamentary area, in line with the intervening NCDC planning, and reflected the location of the National Library on the western, and the High Court on the eastern side of the proposed lakeside Parliament House. Holford proposed a common podium level for each building. A decision had also been taken to construct a building for Treasury south of the Library site (opened in 1970). The Library and Treasury building architecture was to be of a ‘non-assertive character’ so as not to draw attention from the proposed lakeside Parliament building.[41]
In 1968, the year the National Library building was opened, the Cabinet rejected the lakeside location for Parliament House, favouring a Camp Hill or Capital Hill location. The House of Representatives and the Senate had opposing views about a Camp Hill versus Capital Hill site, and a stalemate lasted five years until Parliament in a joint sitting in 1974 decided on Capital Hill.[42]
In response to the 1968 decision, the NCDC issued a new plan for the Parliamentary Zone in 1969, with a Camp Hill location for Parliament House. This plan, by Roger Johnson, located a vast monumental plaza, the ‘National Place’, in place of the now relocated parliament house, between the just-completed National Library to the west and the High Court site and a new National Gallery site to the east.[43] The High Court was completed in 1980 and the National Gallery in 1982.
An east-west visual axis now linked the Library with the High Court and National Gallery sites across the National Place, an axis that had not existed in the now defunct lakeside Parliament House proposal, as the parliament buildings would have sat between the Library and High Court buildings. The Holford/NCDC liking of asymmetry meant that the new Court and Gallery buildings did not have to be echoes of the Library in form or location. Hence the entrance axes of the Library and Gallery do not line up, although the Gallery entrance location and bridge to the High Court Forecourt address the general east-west axis in accordance with the design briefs for those buildings. The east-west axis has been given greater emphasis by the construction of Reconciliation Place (2002), which reinforces the alignment between the entrances of the Gallery and the Library, and the re-configuration and upgrade works to the entry drive and fountain east of the Library entrance in 2010.
2.3.3 Design and construction of the National Library Building
In 1965 the NCDC set out its beliefs about the desired architectural style of new buildings in the Parliamentary triangle,
‘[The] architectural merit of the buildings [should be] based on the enduring qualities of appropriate scale, good proportions and fine materials… and not merely patterned in the prevailing international style… The buildings in the city’s business and residential areas may reflect changing functions and fashions in design but those in the central areas should be modelled in such proportions and fit their functions and environment in such a way that they satisfy the needs of the nation for a far longer period…’
‘In Canberra buildings are seen in straight elevations from great distances… it is necessary for the facades of the buildings to be simple and sufficiently large in scale to be easily apparent when viewed from comparatively great distances.’[44]
Because of the then-likely close relationship between the library building and the proposed lakeside Parliament House, the design brief for the National Library building required it to be, in the words of John Overall, Commissioner of the NCDC and Chairman of the National Capital Planning Committee, ‘a large, attractive, but unassertive building befitting the central area, while not dominating it.’[45] Prime Minister Menzies himself took an interest in the design, and was openly adverse to the idea of a modern building, preferring to see ‘something with columns’.[46]
The building was designed by Sydney architect Walter Bunning of the Sydney firm Bunning & Madden in association with T E O’Mahony, commencing in 1961 following a limited competition. Bunning & Madden set up a Canberra office headed by Noel Potter, which took on a number of other prominent architectural commissions in the national capital. O’Mahony had designed the recently completed Fisher Library at the University of Sydney. Keyes Metcalf, a prominent American librarian and Director of the Harvard University Library, and a world-leading authority on library design, was engaged as a consultant to advise on the National Library.
Bunning and O’Mahony, accompanied by National Library librarian Courtenay Key, undertook a tour of libraries in the USA, to inform the design of the national library.[47]
The design was influenced by the work of the prize-winning American architect, Edward Durrell Stone, whose American Embassy in New Delhi (1958) inspired early sketches for the National Library building.[48] Stone liked his buildings to stand as isolated objects in open space, a requirement for the National Library, and he used luxurious materials on often box-like buildings.[49] Walter Bunning’s own trip to Greece and the Parthenon was another major influence in the design, Bunning being inspired by the classical icon.
The Library was designed to replicate the geometric rhythm of the Parthenon, but when finally built had one fewer row of columns. This was a result of NCDC cost-cutting. Initially intending to build one of Bunning’s smaller side wings as the first National Library building, it was found that this would be too small for current needs (as both library and institutional monument), so the central large building was to be built instead. However, funds would not stretch to the extent needed, so in April 1962 the decision was made to leave the lower ground floors largely unfinished, to extend the construction timeframe by two years, and to remove one bay of the building, with its columns, from the design.[50]
Bunning also felt that his design was in harmony with Griffin’s 1912 plan, in which buildings are drawn in a classical mode. Bunning had supported maintaining the integrity of Griffin’s plan at the 1955 Senate Inquiry (the McCallum Report). He felt, also, that the design in what he called the ‘Contemporary Classical’ style, reflected the spirit of early colonial architecture.[51]
The National Library building comprised two main elements: a bookstack in a two-level podium to house 2.5 million books in a windowless and airconditoning-efficient way, and which could be expanded to take 11 million books; and a three-storey building centred on the podium, with the public and staff spaces with sizeable windows and fine views of Lake Burley Griffin, to which parallel side wings could be added in the future.[52] The depth of the podium was restricted by the threat of water ingress—the level of Lower Ground 2 is generally on RL 1836, 300 mms above the 80-year flood level adopted by the NCDC.[53]
Walter Bunning himself stated that the design requirements for the National Library of Australia required the building to ‘look well’ when seen from all sides:
‘The possibility of an unusual form of design did not arise because the programme called for a building which is generally without large internal spaces requiring dynamic special treatment. The scale of the internal spaces is generally more akin to those of an office building although room disposition, particularly of the ground floor, resulted in a plan shape which is a great deal wider than the modern standard office building.’[54]
The building was based on, but did not adhere in detail to, Greco-Roman architecture, and, in the words of Bunning,
‘is clearly a contemporary derivation in the spirit of classical design. This was considered to be appropriate not only because of the tribute to the background from which Western culture has developed but also because of the sheer monumentality of its expression. It is an architectural language which was inherent in the colonial buildings of Australia’s early beginnings…
The building is clad in the finest material procurable, marble, granite, slate, bronze and copper; all traditional materials noted for their lasting qualities. In the interior, use is made of the finest Australian timbers.’[55]
The building had to be flexible enough to allow growth. The podium was designed to allow expansion of stack areas without interfering with the building above. This expansion (on the western and northern sides only) took place between 1979 and 1986. Two flanking buildings were envisaged as building extensions, but have not been constructed (see Figure 25).
Figure 25. 1962 masterplan showing proposed extended podium and flanking buildings, and extent of stage I podiumSource: National Library of Australia
Work on the construction commenced in May 1964. Former Prime Minister Menzies laid the foundation stone in 1966, and Prime Minister Gorton opened the Library in 1968.
The incorporation of artworks was a deliberate part of the building design. Leading artists were approached to prepare works for the Library.
Tom Bass, a noted sculptor also responsible for the ‘Ethos’ statue in Canberra’s Civic Square, designed the Library Lintel Sculpture above the main library entrance. The three-panel sculpture is Bass’s largest work, and depicts themes derived from Sumerian seals, representing the sun (enlightenment), the tree of life, and the ark of knowledge. Commissioned in 1966, the work was installed in 1968.[56]
Leonard French designed and made 16 stained glass windows for the entry foyer space of the Library (described in Section 2.2 above). The windows were installed as the building structure was being completed, in 1967.[57]
The series of seven copper panels above the General Reading Room bay windows on the exterior lake side of the building are a less-well known artistic element of the building, and are often overlooked altogether. The proposed panels for this location, designed by Andor Metzsaros, were rejected by the Commonwealth Art Advisory Board, and the replacement panels were designed within Bunning & Madden’s office by Arthur Robb, ostensibly as part of the architectural design rather than as artworks, to avoid scrutiny by the Art Advisory Board. The panels, installed in 1968, have striking patterns of circles, diamonds, crosses and other shapes, based on gladiator’s shields, and echoing the geometric patterns in Leonard French’s windows.[58]
Figure 26. Sketch plan, National Library of Australia, Ground Floor, 1968
Source: National Library of Australia, nla.obj-144067167
Macintosh HD:Users:duncanmarshall:Desktop:NLA Early Images:nla.obj-144067167:nla.obj-144067167-1.jpg
The fountain opposite the entry steps proposed by Robert Woodward (designer of subsequent water features at the High Court and National Gallery) was similarly rejected by the Art Advisory Board, and the Bunning & Madden office designed the final version.
Tapestries for the interior of the foyer were originally commissioned from Jean Lurçat, but he died in 1966, and the commission was offered to Mathieu Matégot, generally considered as Lurçat’s successor. The three tapestries by Matégot were designed to harmonise with Leonard French’s windows, and Matégot was asked by the Library’s Council (who did not agree with Bunning’s concept that national symbols were redundant in the Library’s artwork) to portray the Australian experience. The tapestries are described at Section 2.2 above. The tapestries were commissioned in 1966 and hung in 1968.[59]
The Henry Moore sculpture, ‘Two piece reclining figure No. 9’, was commissioned for the front of the Library, and correspondence between Moore and Bunning’s office indicates that Moore agreed to a location to the north-east of the front, to avoid conflict with Tom Bass’s sculpture over the entrance.[60] Moore subsequently also endorsed the final detailed placement. Another factor in the placement of the Moore sculpture was apparently the antipathy of the Chairman of the Library Board, Grenfell Price, to modern art—Price called the Moore piece ‘Henrietta’ and described it as ‘gutless and spineless’, and wanted it as far away from the Library as he could get it.[61]
On 15 August 1968, Prime Minister John Gorton opened the National Library on its four-hectare site. Gorton referred to it as ‘$8 million without the books’, and it had taken seven years to plan and build. Harold White declared ‘the new building is like the promised land after forty years in the wilderness.’ The 700 year old Inspeximus Issue of the Magna Carta, bought for the Commonwealth National Library in 1952, was housed in the King’s Hall of Parliament House. White had it transferred to the new building for the opening, but parliamentarians were outraged, and Senate voted 40 to 7 in a free vote to have it reinstated in Parliament House, where it stayed.[62]
In the weeks leading up to the opening, the staff had moved its collections from the scattered repositories around Canberra. One million books, nearly 3.5 million metres of movie film, 400,000 aerial photographs, 200,000 maps, 25,000 pictures and prints and great quantities of microfilm, manuscripts, periodicals and newspapers were moved from the temporary storage spaces. These included the Nissen huts on the current site of the National Gallery (dubbed the ‘Tunnels’), the wooden hospital buildings at Acton, a disused mortuary, a furniture store in Queanbeyan, a shed at Duntroon, rooms at the Institute of Anatomy, a store at Kingston railway yards, an explosives shed at Mugga quarry (for nitrate film), and the basement of the Administration Building.[63]
In the words of historian Eric Sparke, the building became ‘beloved by the tourists and hated by the cognoscenti’.[64] This ambivalence continues. Jennifer Taylor in her major survey of post-1960 buildings in Australia said, ‘It is an uneventful building surrounded by a restrained colonnade with some classical pretensions that evidences an unsuccessful attempt to attain the monumentality requested by the client.’[65] A recent guide to Canberra architecture appears to share this view, though it points out that the building has become one of the most popular iconic monuments of the Parliamentary Zone.[66]
Figure 27. Exterior of the National Library of Australia, Canberra, May 1968Source: National Library of Australia, nla.obj-136760924
Figure 28. Officials and dignitaries being addressed at the opening of the National Library of Australia, Canberra, 1968Source: National Library of Australia, nla.obj-137368649
Figure 29. Main Reading Room from eastern end, National Library of Australia, Canberra, 1968Source: National Library of Australia, nla.obj-144064880
Figure 30. Front view of the National Library of Australia with forecourt and fountains, 1968Source: National Library of Australia, nla.obj-144065762
Figure 31. Foyer of the National Library of Australia, 1968Source: National Library of Australia, nla.obj-144065913
Figure 32. Display cases in the foyer of the National Library of Australia, 1968. This exhibition space is now the bookshop.Source: National Library of Australia, nla.obj-144066066
Figure 33. View from mezzanine looking into entrance foyer of National Library of Australia, 1968Source: National Library of Australia, nla.obj-144066249
Figure 34. Card catalogue at National Library of Australia, 1968. This space is now in the vicinity of the Central Foyer to the Main Reading Room.Source: National Library of Australia, nla.obj-144066439
Figure 35. Ferguson Room on first floor at the National Library of Australia, 1968Source: National Library of Australia, nla.obj-144066800
Figure 36. Conference room at the National Library of Australia, 1968Source: National Library of Australia, nla.obj-144067016
Figure 37. Tom Bass at the installation of his Library lintel sculpture above the entrance to the National Library of Australia, 1968Source: National Library of Australia, nla.obj-147734197
Figure 38. Portrait of Harold White, Director-General, in his office, National Library of Australia, 1968Source: National Library of Australia, nla.obj-149578493
Figure 39. Ken Myer addresses the audience at his farewell ceremony, Canberra, 5 February 1982. Note the foyer and mezzanine spaces, showing areas now enclosed for the bookshop and Ferguson Room.Source: National Library of Australia, nla.obj-147926941
2.3.4 Major changes to the National Library building over time
Bunning & Madden continued their work with the Library after its opening, designing and overseeing the fit-out of the lower ground floors, and undertaking other internal changes throughout the building through the 1970s and 80s.
In 1979 Bunning & Madden in conjunction with Harry Seidler & Associates were engaged to carry out the extension of the podium levels. The work comprised the extension of the two lower ground levels in a northerly and westerly direction, by 2 and 3 modular 7.2 m bays respectively. The trachyte stone podium walls were taken down and reinstated and extended to fit the enlarged perimeter, and the podium platform was greatly increased in size. Two courtyards were designed for the northern wall of the podium, to provide light and views out to readers and workers in the new spaces.
The courtyard adjacent to the new Map Reading Room was one storey deep, and intended to have a commissioned work of sculpture by Ron Robertson-Swan of Sydney or Clement Meadmore of New York installed (though this was not achieved), while the courtyard adjacent to the current Newspaper Reading Room was two storeys deep.
The work included the fit-out of the extended space, including a new Map Reading room and stack, extension of the Sound and Music area, and office/work area for the AUSINTEL (Australian International and Ethnic Library) operations.
While design and contract documentation for the extension was ready by March 1981, progress to completion was slow. Work was deferred for budgetary reasons until March 1983, and work was effectively closed down by union bans due to asbestos issues from 25 July 1983 to 3 November 1983. This extended practical completion to 11 February 1986.[67] Work was again held up by a major fire in March 1985, and was completed in 1986, at a cost of $11.2 million.[68] Bunning & Madden’s engagement ended in 1988.
The 1985 fire started on the fifth floor, and direct fire damage was restricted to the roof area, airconditioning plant and the wiring in two major vertical ducts, and all concentrated at the southern end of the building. However, water and smoke damage was widespread.[69]
Extensions, new fitout or modifications for new uses since original completion have included:[70]
completion of LG2—1971;
completion of LG1—1971, and Fit-out for Newspaper and Microfilm Reading Room and stacks (south side)—1972-73;
conversion of stack on Level 2 to office space—1974-75;
conversion of stack on Level 1 to office space, and removal of Australian Reading Room (Ferguson)—1974-75, offices refurbished 1991-92;
re-partitioning of office space north side Level 4—1974-5;
old Petherick room repartitioning (Level 2) and AUSINTEL offices (Level 3)—1980-81;
addition of more standard lights at front steps to Podium—1980;
marble cladding rectification—1979-80;
computer services relocated on Level 2—1981-82;
fit-out of Conservation work area, Level 4—1983-86;
podium extension to north and west—1983-86, with associated fit-out of:
Map Reading Room and Stacks relocation to extended LG1;
Sound and Music area fit-out, LG1 (initial fitout completed 1979);
AUSINTEL working area (where Newspapers is currently located);
repairs following fire – 1985-86;
modification of General Reading Room—1990-92;
creation of Petherick Reading Room—1990-92, extended 2000;
Exhibition Gallery and area, Ground Floor—1990-92;
restaurant and Library shop built in foyer space—1990-92;
Treasures Gallery, Exhibition Gallery, Main Reading Room entry and central foyer construction—2010-2011;
bookshop refurbishment—2011;
refurbishment of the Manuscripts Reading Room – 2011;
finalisation works for the Treasures and Exhibition galleries. Refurbishment of Main Reading Room, Library Bookshop, passenger lifts, Level 1 office accommodation, Manuscripts Reading Room, Conference Room and several collection storage areas, and initial stage of the Foyer refurbishment, including restoration of the original marble floor. Continuation of the fire and mechanical services upgrade project – 2011-12;
continuation of the fire and mechanical services upgrade project, construction of a new storage area for corporate records, refurbishment of the data centre , disability access improvements, including a wheelchair lift to the Theatre stage – 2012-13;
refurbishment of the Executive and Public Programs office area (Level 3), installation of an equipment lift to storage areas on Lower Ground 2 (LG2) – 2013-14;
commencement of Reading Room Integration project to complete the refurbishment of the prominent public areas of the Library with works being undertaken on Levels 2, 1, Ground and Lower Ground 1. The project was to improve and modernise the public spaces. Outcomes included the integration of the Pictures and Manuscripts, Maps and Petherick Reading Rooms on the first floor (as the Special Collections Reading Room) and the integration of the Main and Newspapers and Microforms Reading Rooms on the ground floor. The project also sought to improve sustainability, upgrade building services such as fire systems and air-conditioning plant, and meet compliance requirements. The Manuscripts Reading Room was re-named the Nan Kivell Room. Also, refurbishment of change-room facilities on Lower Ground 2, installation of new energy efficient lighting and control systems in the Main Reading Room and Foyer, upgrade of the fire detection system throughout the building, refurbishment of collection storage areas to facilitate replacement of motorised shelving, increasing storage capacity and improving efficiency – 2014-15;
completion of the Reading Room Integration Project, including refurbishment of LG1 public spaces for café and work areas, installation of new energy efficient lighting and controls in the Treasures and Exhibition galleries, fire corridors, plant rooms and lift lobbies – 2015-16; and
café refurbishment, ground floor – 2016.
2.5 Design and Aesthetic Context and Character
Building architecture and aesthetics
As noted in Section 2.2, the building displays a number of the features of the Late Twentieth Century Stripped Classical style, and also a number of notable interiors. These are analysed in the following section.
The building is believed to be regarded by the community as being beautiful as a landscape element, though other than the frequent use of the image of the building as a key landscape element of Canberra, no documented evidence addresses this apparent value.
Furniture
Furniture throughout the building was designed by Frederick Ward and Arthur Robinson in collaboration with the architects, and many pieces remain in use or storage. A Heritage Furniture Register is regularly updated by the Library. The Heritage Furniture Register relates to furniture of significance because of its association with the design or evolving history of the Library. Selection criteria are included in a policy underpinning the Register. Other historical furniture pieces have been donated to the Library from time to time, and are not related to the design of the building and its fitout. These items are regarded as part of the Library object collection, rather than as part of the Heritage Furniture Register protected under policies in this plan.
2.6 Evidence of Scientific value
While the building contains evidence of its design, construction and use, there is no indication that this evidence is likely to establish new facts about Australia’s cultural history. There is no evidence of major archaeological deposits associated with the place.
2.7 Evidence of Social Value
Evidence of social value can be measured by a number of expressions of community regard for a place. These include:
• Community awareness of the Library: a national survey[71] suggests that 52% of Australians are aware of the Library, and that 1.4 million people took part in public program activities during a year, but this does not provide heritage-related information without further questioning.
• Expressions of community concern for a place: while there has been, from time to time, expression of public support or concern, regarding the Library, these have been about library functions rather than about the building’s heritage values. A recent such example relates to funding for Trove.
• Use of the image of the place as an icon, and the sense of the building being a Canberra landmark. The Library has featured in much tourism promotional material, and documentary footage about Canberra, but there is no analysis of this usage to suggest this is related to respect for or recognition of heritage values within the community, other than as a symbol of the national capital. However, it is suspected these iconic and landmark qualities have been diminished as other developments have taken place, such as the completion of the Australian Parliament House in 1988.
• The association of the place with Aboriginal tradition and values: while there is a general recognition of the Molonglo River (now within Lake Burley Griffin) as a centre for Aboriginal activity, no specific associations have been identified for the National Library of Australia site.
The findings of a 2009 social value study of Lake Burley Griffin are relevant to the Library. The Library featured in three of the top 10 views rated as important to peoples enjoyment of places around the lake. The views were:
the distant view of the Library, and Parliament House, from Commonwealth Park;
the view of Black Mountain from alongside the Library; and
the view of the Library from under Commonwealth Avenue Bridge.[\[72\]](#_ftn72)
In a detailed discussion, the study noted,
‘This survey has shown the National Library of Australia to be a significant icon for the people of Canberra. It was:
the second most frequently visited place (Figure 6) \[figure numbers refer to the original report\],
the third most favoured place to visit for long-stay reasons (Figure 14),
the most liked building (Figure 21),
it features in three of the top 15 views (Figure 30),
one of the top three places liked for design (Figure 21),
equal first most favoured place for functions (Figure G5),
one of the top four places for seeing what’s new (Figure G7),
one of the top ten places for number of ‘liked’ comments (Figure 19), and
one of the top ten places visited for memories (Figure 13).
The pattern of number of visits per year by age group for the National Library was significantly different from that for all places combined (Figure 34): This can be seen by comparing Figures 33 and E2. Number of visits per year to all places was highest for people aged between 45 and 54, and lowest for people under 25 (Figure 33). For the National Library, however, number of visits per year was highest for people over 65, slightly lower for people aged between 55 and 64 and slightly lower again for people under 55. Number of visits per year was relatively constant for people under 55 (Figure E2), compared with the pattern seen for most other places where number of visits generally reduces with age for people under 55 (Figures E1, E3 - E6, E8, E11 - E19 and E21 - E22). People under 25 visited only four other places about the same number of times as they visited the National Library – Commonwealth Park, Parkes Way, Black Mountain Peninsula and the International Sculpture Garden/ANU South Campus (Figures E1, E9, E10 and E20). Further analysis would be useful to clarify whether younger people are visiting the National Library itself or whether they are primarily cycling or walking past. Only about 20% of people under 25 gave reasons for visiting the National Library (Figure M3).
More than 10% of people born in the ACT gave ‘special memories’ as a reason for visiting the National Library (Figure N3) compared with the average of 5.9% for all places (Figure 13), suggesting that the Library will continue to grow in importance as a significant component of Canberrans’ shared sense of place.’[73]
Interestingly, highly rated reasons given for visiting the Library were art/sculpture, getting from A to B, special memories and to see what is new, with functions being given a much lower rating.[74]
The social value research for the heritage management plan for the Parliament House Vista offers no specific evidence about the Library.[75]
Analysis of Evidence
This analysis has been prepared by the consultant using the evidence presented in Chapter 2 which has been analysed against the Commonwealth Heritage Criteria (reproduced at Appendix D), and judgements have been reached on the basis of the professional expertise of the consultant. The analysis is divided into sections related to the Commonwealth Heritage Criteria.
This analysis leads to a statement of significance which differs in some ways from the official Commonwealth Heritage values.
(a) the place has significant heritage value because of the place’s importance in the course, or pattern, of Australia’s natural or cultural history
From the historical overview above, a number of issues stand out as being important in the course and pattern of Australia’s cultural history. These include:
• the development and realisation over a 60 year period from Federation of the idea of a national library collection, and the construction of a building of high quality to house the national treasures;
• the distinction given to the Library as the first national institution to be located within the Parliamentary Zone, and the impact of that decision on subsequent planning of the zone; and
• the role taken by the Library in providing national bibliographic and other library functions during the period of rapid development of electronic resources in information technology. It is important for housing Australia’s valuable book collections, manuscripts, printed materials, audio recordings, paintings and other treasures.
The Library meets this criterion.
(b) the place has significant heritage value because of the place’s possession of uncommon, rare or endangered aspects of Australia’s natural or cultural history
As the only Australian national library, the Library holds a rare and important place in Australia’s history since its opening in 1968.
The Library meets this criterion.
(c) the place has significant heritage value because of the place’s potential to yield information that will contribute to an understanding of Australia’s natural or cultural history
As indicated in Section 2.6 above, while the building contains evidence of its design, construction and use, there is no indication that this evidence is likely to establish new facts about Australia’s cultural history. There is also no evidence of major archaeological deposits associated with the place.
Accordingly, the Library does not meet this criterion.
(d) the place has significant heritage value because of the place’s importance in demonstrating the principal characteristics of:
(i) a class of Australia’s natural or cultural places
(ii) a class of Australia’s natural or cultural environments
The Library may be considered part of the group of libraries in Australia, being a class of cultural places. However, while certain characteristics are obvious (eg. reading rooms and book stacks), there is no known research into the full characteristics of this class, such as a type profile, which would enable a meaningful analysis.
In addition, the Library may be considered atypical of libraries in some ways because of its size and national role.
In this context, analysing the Library under this criterion would not seem possible at this time, and may not prove worthwhile given its atypical characteristics.
As noted in Section 2.2 above, the building displays all seven of the indicators of the Late Twentieth Century Stripped Classical style of architecture, including the two key indicators (symmetrical façade and regular bays of vertical proportion).
Other Canberra examples of this style include the Civic Square Complex (1961), Law Courts of the ACT (1963), Reserve Bank of Australia (1965), City District Police Station (1966) and Treasury Building (1969).[76] Some of these examples are slightly earlier than the Library, a few are good examples displaying many or all of the style indicators (eg. the Law Courts), while others are only moderate examples of the style (eg. the Police Station).
In this context, the Library is a good and confident Canberra example of the style, which is also both large and prominent in the city.
The Library meets this criterion regarding its architectural style.
(e) the place has significant heritage value because of the place’s importance in exhibiting particular aesthetic characteristics valued by a community or cultural group
While the evidence of community-based values is somewhat limited, none the less there is sufficient to conclude that the Library is an icon and landmark for the Canberra community. This relates, at least in part, to the presence of the building in several prominent Canberra views:
the distant view of the Library, and Parliament House, from Commonwealth Park; and
the view of the Library from under Commonwealth Avenue Bridge.
Other findings from the survey related to Lake Burley Griffin support this conclusion. In this survey, the Library was the most-liked building, was highly regarded for its design, and it featured in three of the 15 most-liked views around the lake. Reflections in the lake are part of these views.
The Library meets this criterion.
(f) the place has significant heritage value because of the place’s importance in demonstrating a high degree of creative or technical achievement at a particular period
Building
The Library is part of the significant planned cultural landscape of the Parliamentary Zone. It occupies a prominent and strategic location on the western side of the zone, making it one of Canberra’s landmark features. Along with several later buildings that front the southern shore of Lake Burley Griffin, the Library contributes to the planned aesthetic qualities of the Parliamentary Zone which include a broadly symmetrical landscape with freestanding buildings set amongst rows and drifts of trees, hedges and sweeping lawns. The elegant and classically-derived proportions of the Library reinforce these qualities, as does the openness of the vista across Lake Burley Griffin.
The building displays fine craft construction and the use of high quality materials which are evident in the internal and exterior details and finishes.
Integrated with the original design are major artworks by Tom Bass and Leonard French, the copper panels by Arthur Robb, together with the tapestries of Mathieu Matégot hung in the entry foyer.
Notable Interiors
The building features a number of interior spaces which are notable for their design qualities. An analysis of these spaces is provided below.
A range of furniture is housed within the Library that is of heritage significance because of its specific design as part of the original building. This furniture collection is detailed in the Library’s Heritage Furniture Register. The register is reviewed every twelve months and newly identified items that satisfy the assessment criteria outlined in a heritage furniture assessment report (Betteridge 2012) may be added to it over time. The furniture associated with the original design of the Library, and key developments in Library use, as reflected in the Heritage Furniture Register, are regarded as sharing the same heritage significance as other elements of the building’s fabric.
Summary
In summary, the Library meets this criterion regarding its contribution to the landscape of the Parliamentary Zone, its fine craft construction and high quality materials, integrated artworks, notable interiors and historic furniture.
(g) the place has significant heritage value because of the place’s strong or special association with a particular community or cultural group for social, cultural or spiritual reasons
There are several groups with specialised interests that would hold the Library in very high regard, including the Friends of the National Library, the Petherick and other frequent readers, and the staff of the Library. But these would not be regarded as ‘a community or cultural group’ as required by the criterion.
There is some evidence (through visitation figures, awareness surveys, and tourism and media images used) that the Australian community, especially that part that has visited the Library or which has lived in Canberra, values the place highly. But this regard is not as yet supported by sufficient research that shows that association is ‘strong or special’ compared, say, to other iconic places in the national capital or elsewhere in the nation. Nor is it clear that community regard attaches to the national collection, library functions, the building, or some combination of these.
Despite the lack of specific evidence to demonstrate this value, it is still thought likely that the Library is highly valued by at least the Canberra community for its cultural use as a library, for its national collections and exhibitions, and as a prominent and longstanding element in the national landscape of Canberra.
The Library may meet this criterion but further research is required to substantiate the value.
None the less, the current official Commonwealth Heritage values concludes that the Library does have associations which meet the threshold. Accordingly, until this can be formally reviewed, the current value is included in the statement of significance in the following chapter.
(h) the place has significant heritage value because of the place’s special association with the life or works of a person, or group of persons, of importance in Australia’s natural or cultural history
There are a range of possible associations which could be considered under this criterion, related to Walter Bunning, Tom Bass, Leonard French, Mathieu Matégot, Edward Petherick, Sir John Ferguson, Sir Rex Nan Kivell, Kenneth Binns and Sir Harold White.
Bunning was the lead architect for the Library building. He is of some importance in Australian history for his lead role in a prominent post-war Sydney architectural practice. This practice produced a number of important buildings, mostly in Sydney. He was also prominent in his contributions on the link between housing and town planning in Australia, and was very active on government committees and professional boards. Bruce Hall was also designed by Bunning and Madden and is the other prominent Canberra building he is associated with, though this is to be demolished.
Every designer or creator has an association with the thing created, but the criterion requires a special association which goes beyond the ordinary. In this case, the Library has a special association with Bunning as his best-known design, and for his intimate involvement with the project.[77]
‘As principal architect, he interested himself in all aspects of construction and furnishings, including the design of art works, and in 1965 visited France to arrange for the weaving of tapestries to hang in its foyer.’[78]
Bass was the sculptor responsible for the major artwork at the entrance to the Library. He is an important figure in Australian art, especially public art in the post-war period. He was responsible for over 60 major sculptures, and his other major Canberra work is Ethos from 1962 in Civic Square. The Library has a special association with Bass as the location for his Lintel Sculpture, one of his two prominent major sculptures in Canberra.[79]
French created the stained glass windows on the ground floor of the Library, and was an important Australian artist known principally for stained glass works. French completed other major glass works for the National Gallery of Victoria and the Haileybury Chapel in Melbourne. The NGV work is an especially large installation. In Canberra, French also completed a number of murals or paintings, including a large work Regeneration at University House. The NGV would lay claim to a special association with French given its size, prominence in perceptions of his career, and majesty. However, it is not clear that the Library work has such an association.[80]
Matégot was a Hungarian/French designer who was prominent in the 1950s, and designed the tapestries in the Library foyer. However, his only known association with Australia was to design the tapestries using Australian themes. Accordingly, the connection to Australia’s cultural history is only slight, and does not meet the requirements of this criterion.[81]
Petherick was a prominent Australian book collector in the nineteenth and early twentieth centuries. He sold his extensive private collection of Australian material to the then Commonwealth National Library, which later became the National Library of Australia. The collection was the basis of the Library’s Australian holdings. A condition of the sale was that the Commonwealth employ him to continue a bibliography, which was achieved by way of a special Act of Parliament in 1911. Petherick is an important figure in Australian history, and he has a special association with the Library as the home of his collection. The association is also marked by the naming of a reading room in his honour.[82]
Ferguson was a bibliographer and judge with an early interest in Australian history and bibliography, the latter to become a major preoccupation. His major work was the Bibliography of Australia 1784-1900. Ferguson was closely involved in the Royal Australian Historical Society and other prominent bodies. He was also a passionate collector of books and other items. In 1937 he proposed that the Ferguson Collection be established within the Library and the offer was promptly accepted. He began transferring material in 1938, and in 1954 the Library purchased his poetry collection and thereafter the numerous instalments were sold rather than donated. In 1970, following his death, the remainder of the collection was purchased from the Ferguson family. The Ferguson Collection is the largest and most diverse collection ever acquired by the Library, with early books on Australia, New Zealand and the Pacific forming its core. Ferguson is an important figure in Australian history, and he has a special association with the Library as the home of his collection.[83]
Nan Kivell was born in New Zealand but lived for most of his life in England where he became an art dealer and collector. Nan Kivell was a private collector of books, paintings prints, documents and artefacts related to Australian, New Zealand and Pacific history. From the late 1940s he began to loan material from his collection to the then Commonwealth National Library, and in 1959 sold the collection of over 15,000 items to the Commonwealth for a modest price. He also made subsequent gifts to the Library. In 1966 and 1976 he was honoured by Australia. While not Australian, Nan Kivell is an important figure in Australian history for his collecting activities related to Australia and his major contribution to Australia’s cultural heritage and scholarship. The Library has a special association with Nan Kivell as the repository of the vast bulk of his collection. The association is also marked by the naming of a room in his honour.[84]
Kenneth Binns was a librarian who joined the Commonwealth Parliamentary Library and in 1919 was made responsible for its Australian section, later the Commonwealth National Library. An early important acquisition in 1923 was the Endeavour journal in which Binns played a significant role. Later significant acquisitions for the Library included the papers of Australia’s first Prime Minister, Edmund Barton, Ellis Rowan’s vast collection of botanical art, and the architectural drawings of Hardy Wilson. Binns was made Parliamentary Librarian in 1928 and held that post until 1947. Unlike the preceding administration, he also enforced the legal deposit system. During his tenure, the Library ‘emerged as a national institution, and many of its successful developments originated during his administration.’[85] Binns is also an important figure in Australian history with a special association with the Library through the development of its collections and programs.
White was a librarian who began as a cadet in the then Commonwealth Library in the early 1920s who rose to become Parliamentary Librarian and ultimately the first National Librarian. White was a driving force in the creation and development of the National Library, including the current building, and its collections. He also played an important role in promoting the development of libraries generally in Australia, and librarianship as a profession. White is an important figure in Australia’s history, and the Library has a special association with him given his instrumental role in its creation.[86]
In summary, the Library meets this criterion for special associations with Walter Bunning, Tom Bass, Edward Petherick, Sir John Ferguson, Sir Rex Nan Kivell, Kenneth Binns and Sir Harold White.
(i) the place has significant heritage value because of the place’s importance as part of Indigenous tradition
While there is a general recognition of the Molonglo River (now within Lake Burley Griffin) as a centre for Aboriginal activity, no specific associations have been identified with the National Library of Australia site by representatives of the Ngunnawal community when previously consulted.
Statement of Significance
4.1 Statement of Significance
This section contains a statement of significance for the Library, based on the evidence and analysis presented in the preceding chapters. References to criteria (eg. Criterion (a)) in the following text relate to the Commonwealth Heritage Criteria (reproduced at Appendix D). The references are provided after the relevant text.
This statement of significance differs in some ways from the official Commonwealth Heritage values. Apart from some re-wording, the key differences are:
an expanded description of values under criteria (a), (f) and (h);
value under criterion (b) has been added; and
the values indicated under criterion (e) have largely been shifted to criterion (f), given the lack of evidence to support the use of (e).
The National Library of Australia is a place of considerable heritage value related to its history and role, for its landmark qualities, for a range of creative qualities related to its contribution to the significant cultural landscape of the Parliamentary Zone, architecture, construction, notable interiors, integrated artworks and original furniture, and its associations with a range of important people.
The Library is historically significant in reflecting a key point and period in the long development of the concept of a national library for Australia. This commenced with the National Library being part of the Parliamentary Library in 1901, and reached maturity with the creation of a separate statutory entity in 1960, followed by the construction of the high quality National Library building. The building is also important as the home of the National Library of Australia which has provided national bibliographic and other library functions during a period of rapid development of electronic resources in information technology. It is important for housing Australia’s valuable book collections and magazines, newspapers, manuscripts, pictures, photographs, maps, sheet music, oral history and folklore recordings, paintings, ephemera, archived website, electronic collections and other treasures.
The close historical association between the Library and Parliament is reflected in the Library being chosen as one of the two institutions to flank the proposed (but later abandoned) Parliament House by the lakeside (the other being the High Court). This historical association is still reflected in the appointment by Parliament of a Member of the House of Representatives and a Senator as the members of the National Library of Australia Council.
The Library, constructed during the period 1961-1968 with the podium extensions in the early 1970s as originally planned, was the first of the permanent purpose built national institution buildings in the Parliamentary Zone, reflecting a major change in the planning of the national capital by bringing national institutions south of the lake.
(Criterion (a))
As the only Australian national library, the Library holds a rare and important place in Australia’s history since its opening in 1968.
(Criterion (b))
The National Library of Australia is a good and confident Canberra example of the Late Twentieth Century Stripped Classical style, which is both large and prominent in the city. Key features of this style displayed by the building include the symmetrical facade, horizontal skyline, regular bays of vertical proportion, colonnade, use of columns without bases or capitals, the use of a broad horizontal member at the roof line echoing classical entablature, and a central entrance.
(Criterion (d))
The Library is an icon and landmark for the Canberra community, related, at least in part, to the presence of the building in several prominent Canberra views across Lake Burley Griffin.
(Criterion (e))
The Library is part of the significant planned cultural landscape of the Parliamentary Zone. It occupies a prominent and strategic location on the western side of the zone, making it one of Canberra’s landmark features. Along with several later buildings that front the southern shore of Lake Burley Griffin, the Library contributes to the planned aesthetic qualities of the Parliamentary Zone which include a broadly symmetrical landscape with freestanding buildings set amongst rows and drifts of trees, hedges and sweeping lawns. The elegant and classically-derived proportions of the Library reinforce these qualities, as does the openness of the vista across Lake Burley Griffin.
The building displays fine craft construction and the use of high quality materials which are evident in the internal and exterior details and finishes. Interior spaces which are notable for their design, details, their use of high quality materials, and/or their distinctive original library function include:
entry foyer, twin stair cases and mezzanine (GR:55, L1:78);
café and bookshop (as enclosed parts of the foyer space, and evolved over time to meet changing use requirements);
Main Reading Room (the main body of the room as originally designed)(GR:31);
Council Room (L1:11);
former Director-General’s office (L1:01);
Chairman’s Room (L1:05);
Nan Kivell Room (L2:24);
Nan Kivell Room Foyer (L2: 25);
former Manuscripts Librarian’s office (L2:38);
former Keeper of Rare Books office (L2:11);
Asian Collections Reading Room (L3:58);
former viewing rooms and projection room (L3:30, L3:31, L3:34);
Lamson tube room (LG1:34);
Conference Room (L4:92);
Brindabella Room (L4:91);
Theatre (LG1:77); and
parts of Lower Ground 1 Foyer (LG1:48).
Integrated with the original design are major artworks by Tom Bass and Leonard French, the copper panels by Arthur Robb, together with the tapestries of Mathieu Matégot hung in the entry foyer.
A range of furniture in the Library contributes to this significance because of its specific design as part of the original building, or associations with key developments in Library use.
(Criterion (f))
The Library is highly valued by the community for its cultural use as a library, and for its national collections and exhibitions.
(Criterion (g))
The Library has strong and special associations with a range of important figures in Australia’s history. These are:
Walter Bunning – the principal architect of the building which is his best-known design, and with which he was intimately involved;
Tom Bass – the sculptor responsible for the major artwork at the entrance to the Library, one of his two prominent major sculptures in Canberra;
Edward Petherick – a prominent Australian book collector who sold his extensive collection to the Commonwealth, which is housed in the Library;
Sir John Ferguson – a prominent Australian collector who donated and sold his extensive collection to the Commonwealth, which is housed in the Library;
Sir Rex Nan Kivell – a prominent private collector who sold his extensive collection of Australian and other material to the Commonwealth, which is largely housed in the Library;
Kenneth Binns – Parliamentary Librarian and instrumental in the development of its collections and programs; and
Sir Harold White – Parliamentary Librarian and ultimately the first National Librarian who was instrumental in the creation of the Library and its building.
(Criterion (h))
4.2 Attributes Related to Significance
The following list of attributes are features that express or embody the heritage values detailed above, and these are useful in ensuring protection for the values.
<table cellspacing="0" cellpadding="0" style="margin-left:5.4pt; border:0.75pt solid #808080; border-collapse:collapse"><thead><tr><td colspan="2" style="width:428.65pt; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Table </span><span style="font-weight:bold">4</span><span style="font-weight:bold">.</span><span style="font-weight:bold"> </span><span style="font-weight:bold">Attributes relate</span><span style="font-weight:bold">d</span><span style="font-weight:bold"> to Significance</span></p><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold"></span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Criteria</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Attributes</span></p><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold"></span></p></td></tr></thead><tbody><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (a) –History</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The whole building including its podium extensions</span><span> and its national library use</span><span>, being:</span></p><ul style="margin:0pt; padding-left:0pt"><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the repository of Australia’s national library collection</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">an important building in its setting and location within the Parliamentary </span><span style="font-family:Times, serif">Zone</span><span style="font-family:Times, serif">.</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The Council Room, reflecting the continuing historical association between the Library and Parliament through the role of parliamentary appointees on the Council of the Library</span><span style="font-weight:bold; font-style:italic">.</span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (b) – Rarity</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The whole building</span><span> and its use as the national library</span><span>.</span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (d) –</span><span> </span><span>Representativeness</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The building’s Late Twentieth Century Strippe</span><span>d Classical style evidenced in:</span></p><ul style="margin:0pt; padding-left:0pt"><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the symmetrical </span><span style="font-family:Times, serif">façade;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">horizontal skyline;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">regul</span><span style="font-family:Times, serif">ar bays of vertical proportio</span><span style="font-family:Times, serif">n;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">colonnade, using co</span><span style="font-family:Times, serif">lumns without bases or capitals;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the use of a broad horizontal member at the roof lin</span><span style="font-family:Times, serif">e echoing classical entablature;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">central entrance.</span></li></ul></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (e) –</span><span>Aesthetic</span></p><p style="widows:0; orphans:0; font-size:10pt"><span>characteristics</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The </span><span>building and its</span><span> location in a prominent and strategic location on the western side of the base of the </span><span>Zone</span><span>, dominating views across Lake Burley Griffin</span><span>, including reflections</span><span>, making it one o</span><span>f Canberra’s landmark features.</span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (f) –Creative</span></p><p style="widows:0; orphans:0; font-size:10pt"><span>achievement</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The </span><span>National Library </span><span>building </span><span>contributes through its visual prominence, location, </span><span>freestanding character, </span><span>proportions and materials to the planned aesthetic qualities of the Parliamentary </span><span>Zone</span><span>.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>Fine </span><span>craft construction and the use of high quality materials</span><span> is reflected in:</span></p><ul style="margin:0pt; padding-left:0pt"><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the external building cladding and finishes of the building and podium;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the design and/or finely crafted details of the surviving original internal spaces of note, these being the:</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">entry foyer, twin stair cases and mezzanine (GR:55, L1:78)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">café and bookshop;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Main Reading R</span><span style="font-family:Times, serif">oom (GR:31)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Council Room (L1:11)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">former Director General’s office (L1:01)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Chairman’s Room (L1:05)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Nan Kivell</span><span style="font-family:Times, serif"> Room (L2:24)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Nan Kivell Room Foyer (L2: 25)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">former </span><span style="font-family:Times, serif">Manuscripts Librarian’s office</span><span style="font-family:Times, serif"> </span><span style="font-family:Times, serif">(L2:38)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">former Keeper of Rare Books office (L2:11)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Asian Collections Reading Room (L3:58)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">former viewing rooms and projection room (L3:30, L3:31, L3:34)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Lamson tube room (LG1:34);</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Conference Room (L4:92)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Brindabella Room (L4:91)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">Theatre (LG1:</span><span style="font-family:Times, serif">77)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:42.9pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">parts of lower ground 1 Foyer (LG1:48)</span><span style="font-family:Times, serif">;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the general use of marble window surrounds;</span><span style="font-family:Times, serif"> </span><span style="font-family:Times, serif">and</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the use of quality standardised special door </span><span style="font-family:Times, serif">frames</span><span style="font-family:Times, serif"> and hinges, some of which survive.</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="margin-left:1.7pt; widows:0; orphans:0; font-size:10pt"><span>The artworks </span><span>by Tom Bass, Leonard French, Arthur Robb</span><span> </span><span>and</span><span> Mathieu Matégot.</span></p><p style="margin-left:1.7pt; widows:0; orphans:0; font-size:10pt"><span></span></p><p style="margin-left:1.7pt; widows:0; orphans:0; font-size:10pt"><span>The furniture </span><span>specifically</span><span> designed as part of the original building, or </span><span>otherwise</span><span> associated with key developments in Library use.</span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (g) – </span><span>Social value</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The building’s use as a public library with the particular attributes being the publicly accessible parts of the building.</span></p></td></tr><tr><td style="width:81.35pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>Criterion (h) – </span><span>Significant people</span></p></td><td style="width:336.5pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The </span><span>original </span><span>building</span><span> design</span><span>, Bass sculpture, and use </span><span>of the building </span><span>as a repository for the Petherick</span><span>, Ferguson</span><span> and Nan Kivell collections.</span></p></td></tr></tbody></table>
Development of Policy—Opportunities and Constraints
5.1 Implications Arising from Significance
The Statement of Significance (Section 4.1 above) demonstrates that the National Library of Australia is a place of considerable heritage value. The implication arising from this assessment is that key aspects of the place should be conserved to retain this significance. The key features which should be conserved include:
the whole building including its podium extensions and its national library use;
Council Room;
the building’s Late Twentieth Century Stripped Classical style evidenced in:
the symmetrical façade;
horizontal skyline;
regular bays of vertical proportion;
colonnade, using columns without bases or capitals;
the use of a broad horizontal member at the roof line echoing classical entablature;
central entrance;
its location in a prominent and strategic location, and its freestanding character, dominating views across Lake Burley Griffin;
its proportions;
its fine craft construction and the use of high quality materials is reflected in:
the external building cladding and finishes of the building and podium;
the design and/or finely crafted details of the surviving original internal spaces of note, these being the:
entry foyer, twin stair cases and mezzanine (GR:55, L1:78);
café and bookshop;
Main Reading Room (GR:31);
Council Room (L1:11);
former Director General’s office (L1:01);
Chairman’s Room (L1:05);
Nan Kivell Room (L2:24)
Nan Kivell Room Foyer (L2: 25);
former Manuscripts Librarian’s office (L2:38);
former Keeper of Rare Books office (L2:11);
Asian Collections Reading Room (L3:58);
former viewing rooms and projection room (L3:30, L3:31, L3:34);
Lamson tube room (LG1:34);
Conference Room (L4:92);
Brindabella Room (L4:91);
Theatre (LG1:77);
parts of lower ground 1 Foyer (LG1:48);
the general use of marble window surrounds;
the use of quality standardised special door frames and hinges, some of which survive;
artworks by Bass, French, Robb and Matégot;
furniture specifically designed as part of the original building, or otherwise associated with key developments in Library use;
the building’s use as a public library with the particular attributes being the publicly accessible parts of the building;
the original building design; and
use of the building as a repository for the Petherick, Ferguson and Nan Kivell collections.
These implications do not automatically lead to a given conservation policy in Chapter 6. There are a range of other factors that must also be considered in the development of the policy, and these are considered in the rest of this chapter. Such factors may modify the implication listed above to produce a different policy outcome.
5.2 Legislative Requirements
Overview
The management of the Library operates within a legislative framework comprising the:
National Library Act 1960;
Australian Capital Territory (Planning and Land Management) Act 1988;
Parliament Act 1974;
Environment Protection and Biodiversity Conservation Act 1999;
Australian Heritage Council Act 2003;
Copyright Act 1968;
Building Code of Australia;
Disability Discrimination Act 1992; and
Work Health and Safety Act 2011.
These Acts and the Code are briefly described in the following table.
<table cellspacing="0" cellpadding="0" style="width:438.15pt; margin-left:5.4pt; border:0.75pt solid #808080; border-collapse:collapse"><thead><tr><td colspan="2" style="width:426.6pt; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Table 5.</span><span style="font-weight:bold"> </span><span style="font-weight:bold">Brief Description of Legislative </span><span style="font-weight:bold">and Code </span><span style="font-weight:bold">Requirements</span></p><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold"></span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Act or Code</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top; background-color:#cccccc"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold">Brief Description</span></p><p style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:bold"></span></p></td></tr></thead><tbody><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">National Library Act 1960</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>This Act establishes the Library and defines its functions.</span><span> </span><span>Apart from its functions to develop and maintain the national library collect</span><span>ion, the Library has the power:</span></p><ul style="margin:0pt; padding-left:0pt"><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to purchase or take on lease land or buildings, and to erect buildings, necessary for the purposes of the Library;</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to dispose of, or grant leases of, land or buildings vested in the Library;</span><span style="font-family:Times, serif"> </span><span style="font-family:Times, serif">and</span></li><li class="ListParagraph" style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to occupy, use and control any land or building owned or held under lease by the Commonwealth and made available </span><span style="font-family:Times, serif">for the purposes of the Library.</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The </span><span>Library</span><span> exercises these powers in relation to a number of properties, including the main National Library of Australia building at Block 4 of Section 27, Parkes.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Australian Capital Territory (Planning and Land Management) Act 1988</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="BodyText2" style="widows:0; orphans:0; font-size:10pt"><span>The Act establishes the National Capital Authority, and requires the Authority to prepare and administer a </span><span style="font-style:italic">National Capital Plan</span><span>. </span><span></span><span>The </span><span style="font-style:italic">National Capital Plan</span><span> defines Designated Areas and sets out detailed policies for land use and detailed conditions of planning, design and development within them. </span><span></span><span>Works approval must be obtai</span><span>ned from the Authority for all ‘works’</span><span> proposed within a Designated Area.</span></p><p class="BodyText2" style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The National Library of Australia is part of The Central National Area (Parliamentary Zone</span><span> and its Setting</span><span>), a Designated Area as defined in the </span><span style="font-style:italic">Nation</span><span style="font-style:italic">al Capital Plan</span><span>. </span><span></span><span>Therefore all ‘works’</span><span> require written approval from the National Capital Authority.</span><span> </span><span>An indicative development plan is provided</span><span> for the </span><span>Parliamentary Zone</span><span> and its Setting</span><span>.</span><span> </span><span>The Library is also part of the Humanities and Science Campus</span><span>, and additional provisions are provided about the campus</span><span>.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The National Capital Plan includes a precinct code for the Parliamentary Zone and its Setting, as well as a </span><span>general codes which set out the detailed conditions of planning, design and d</span><span>evelopment for this Designated Area</span><span>.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The land use for the National Library of Australia land and surrounding area is identified as National Capital Use.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>In the event of any conflict between the Authority</span><span>’</span><span>s land management powers and those of the National Library of Australia, the powers of the National Library of Australia prevail. </span><span></span><span>The National Library of Australia has principal responsibility for management of the land under its control and for funding the costs of such management.</span><a id="_ftnref87"></a><a href="#_ftn87" style="text-decoration:none"><span class="FootnoteReference" style="font-size:6.67pt; color:#000000">[87]</span></a></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Parliament Act 1974</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="BodyText" style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:normal; font-style:normal">Works proposed in the Parliamentary Zone also require approval of both Houses of Federal Parliament. </span><span style="font-weight:normal; font-style:normal"></span><span style="font-weight:normal; font-style:normal">The Joint Standing Committee on the National Capital and External Territories may inquire into development proposals within the Parliamentary Zone and make recommendations for their approval.</span></p><p class="BodyText" style="widows:0; orphans:0; font-size:10pt"><span style="font-weight:normal; font-style:normal"></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>Specified works require written approval from Parliament.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>In general, these provisions apply to external works, and matters of minor impact, including maintenance and repair, may simply be reported to the Joint Standing Committee.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Environment Protection and Biodiversity Conservation Act 1999</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p class="BodyText2" style="widows:0; orphans:0; font-size:10pt"><span>This Act imposes certain obligations on Commonwealth agencies to protect the environment. </span><span></span><span>This includes social, economic and cultural aspects of the environment.</span><span> </span><span></span><span>The EPBC Act requires approval from the Minister for</span><span> the Environment and Energy </span><span>for all actions likely to have a significant impact on matters protected under Part 3 of the Act.</span><span> </span><span>These include Commonwealth actions (section 28) and Commonwealth land (section 26).</span><span> </span><span>Actions by the National Library of Australia are Commonwealth actions and the National Library of Australia site is Commonwealth land.</span></p><p class="BodyText2" style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The Act requires the assessment </span><span>of property for potential heritage values, and the </span><span>development </span><span>of heritage </span><span>strategies for places entered into </span><span>the </span><span>Commonwealth </span><span>Heritage </span><span>Lis</span><span>t</span><span>.</span><span> </span><span>The Commonwealth Heritage L</span><span>ist requirements apply to the</span><span> National Library of Australia.</span><span> </span><span>Further details are provided below.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Australian Heritage Council Act 2003</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>This Act establishes the Australian Heritage Council, whose functions </span><span>include</span><span>:</span></p><ul style="margin:0pt; padding-left:0pt"><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to m</span><span style="font-family:Times, serif">ake assessments under Divisions 1A and 3A of Part </span><span style="font-family:Times, serif">15 of the EPBC Act 1999;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to advise the Minister on conserving and protecting places included, or being considered for inclusion, in the National Heritage List or Commonwealth Heritage List;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to </span><span style="font-family:Times, serif">nominate</span><span style="font-family:Times, serif"> places for inclusion in the National Heritage List or Commonwealth Heritage List;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to advise the Minister on a range of matters relating to heritage ;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to promote the identification, assessment, conservation and monitoring of heritage;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to organise and engage in research and investigations necessary for the performance of its functions;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to provide advice directly to any person or body or agency either of its own initiative or at the request of the Minister; </span><span style="font-family:Times, serif"></span><span style="font-family:Times, serif">and</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to make reports as outlined in the Act.</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The Council has a role in commenting on management plans for heritage places, and advising on matters related to new heritage listings or changes to existing listings.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Copyright Act </span><span style="font-style:italic">1968</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>This Act</span><span>, amended in 2000,</span><span> protects the moral rights of the creator of an art work (including a building), which includes architects, landscape architects and artists for designed aspects of the National Library of Australia. </span><span></span><span>These moral rights are the unassignable personal right of the architects, landscape architects or artists to:</span></p><ul style="margin:0pt; padding-left:0pt"><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">be acknowledged as the architect, landscape architect or artist for the designed aspects of the </span><span style="font-family:Times, serif">place</span><span style="font-family:Times, serif"> as the case may be (right of attribution);</span><span style="font-family:Times, serif"> </span><span style="font-family:Times, serif">and</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">to object to derogatory treatment of the designed aspects, as the case may be (right of integrity).</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>These rights extend to the members of teams working on a design, where these members contribute to or have some authorship of the design.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>Efforts by the Library to identify any moral rights holder for the original building have so far been unsuccessful.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Building Code of Australia</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The Code is the definitive regulatory resource for building construction, providing a nationally accepted and uniform approach to technical requirements for the building industry.</span><span> </span><span>It specifies matters relating to building work in order to achieve a range of health and safety objectives, including fire safety.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>As far as possible, Commonwealth agencies aim to achieve compliance with the Code, although this may not be entirely possible because of the nature of and constraints provided by existing circumstances, such as an existing building.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Disability Discrimination Act 1992</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; border-bottom:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The objectives of this Act include to eliminate, as far as possible, discrimination against persons on the ground of disability in the areas of:</span></p><ul style="margin:0pt; padding-left:0pt"><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">work;</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">access to premises; </span><span style="font-family:Times, serif"></span><span style="font-family:Times, serif">and</span></li><li style="margin-left:14.55pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">the provision of goods, facilities and services.</span></li></ul><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>Accordingly, Commonwealth agencies are bound to meet these objectives as far as is possible.</span><span> </span><span>In the case of the National Library of Australia, this may relate to both visitors and staff.</span></p></td></tr><tr><td style="width:95.55pt; border-top:0.75pt solid #808080; border-right:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span style="font-style:italic">Work Health and Safety Act 2011</span></p></td><td style="width:320.25pt; border-top:0.75pt solid #808080; border-left:0.75pt solid #808080; padding-right:5.03pt; padding-left:5.03pt; vertical-align:top"><p style="widows:0; orphans:0; font-size:10pt"><span>The</span><span> objectives of this Act include </span><span>to provide for a balanced and nationally consistent framework to secure the health and safety of workers and workplaces by:</span></p><ul style="margin:0pt; padding-left:0pt"><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">protecting workers and other persons against harm to their health, safety and welfare through the elimination or minimisat</span><span style="font-family:Times, serif">ion of risks arising from work;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">providing for fair and effective workplace r</span><span style="font-family:Times, serif">epresentation, consultation, co</span><span style="font-family:Times, serif">operation and issue resolution in relation to work health and safety;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">encouraging unions and employer organisations to take a constructive role in promoting improvements in work health and safety practices, and assisting persons conducting businesses or undertakings and workers to achieve a healthier</span><span style="font-family:Times, serif"> and safer working environment;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">promoting the provision of advice, information, education and training in relation to work health and safety;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">securing compliance with this Act through effective and appropriate compl</span><span style="font-family:Times, serif">iance and enforcement measures;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">ensuring appropriate scrutiny and review of actions taken by persons exercising powers and perfo</span><span style="font-family:Times, serif">rming functions under this Act;</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">providing a framework for continuous improvement and progressively higher standards of work health and safety;</span><span style="font-family:Times, serif"> </span><span style="font-family:Times, serif"></span><span style="font-family:Times, serif">and</span></li><li class="paragraph" style="margin-top:0pt; margin-left:14.55pt; margin-bottom:0pt; widows:0; orphans:0; padding-left:8.4pt; font-family:serif; font-size:10pt"><span style="font-family:Times, serif">maintaining and strengthening the national harmonisation of laws relating to work health and safety and to facilitate a consistent national approach to work health and safety in this jurisdiction</span><span style="font-family:Times, serif">.</span></li></ul><p class="paragraph" style="margin-top:0pt; margin-bottom:0pt; widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>This has implications for the National Library of Australia as it is related to National Library of Australia staff, contractors and visitors.</span></p><p style="widows:0; orphans:0; font-size:10pt"><span></span></p><p style="widows:0; orphans:0; font-size:10pt"><span>The health and safety of other users of the National Library of Australia is also generally dealt with under the </span><span style="font-style:italic">Building Code of Australia</span><span> and the Commonwealth’s common law duty of care to persons on its land or </span><span>in its </span><span>buildings.</span></p></td></tr></tbody></table>
The Library is owned by the Commonwealth, and is located in a Designated Area on National Land within the Central National Area, and as such its planning is controlled by the National Capital Authority. The ACT Government has no planning authority over the place, and its Heritage Act 2005 does not apply.
The land vested in the National Library of Australia (Block 4, Section 27, Parkes) is limited to the footprint of its building and its podium, a small sealed service area at the LG2 level, an access road off King Edward Terrace, and small extensions to contain services venting to the west and north.
The National Capital Authority is both the planning and development control agency for works affecting the Library, and the manager of the immediately adjacent land surrounding the Library including the forecourt fountain and landscape.
The National Library of Australia undertakes appropriate consultation with the Department of the Environment and Energy in relation to its operations as they involve heritage issues. The National Library of Australia Heritage Strategy includes strategies for the Library to satisfy its various legislative and liaison obligations.
Because the obligations under the Environment Protection and Biodiversity Conservation Act 1999 are central to the management of the heritage values of the National Library of Australia, they are outlined in more detail below.
Environment Protection and Biodiversity Conservation Act 1999
The Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) is the primary legislation dealing with the Commonwealth’s responsibilities for heritage places. The Act has a number of elements that are relevant to the management of the National Library of Australia. In summary, these include:
the entry of the National Library of Australia in the Commonwealth Heritage List;
the requirement to take no action that has, will have, or is likely to have an adverse impact on the National Heritage values of a National Heritage place or the Commonwealth Heritage values of a Commonwealth Heritage place, unless there is no feasible and prudent alternative to taking the action, and all measures that can reasonably be taken to mitigate the impact of the action on those values are taken;
the requirement to refer the Minister for the Environment and Energy for approval any actions that are likely to have a significant impact on a place with heritage significance;
the requirement to prepare a Heritage Strategy, including the identification of heritage places in the context of the Commonwealth Heritage List, and the development of management plans for listed places;
the possibility of entry of the place in the National Heritage List, and the various additional referral, reporting and management requirements attached to that status; and
the requirement to manage listed places in accordance with the Commonwealth and National Heritage Management Principles.
These requirements are outlined in more detail below.
Referral and approvals of actions
The EPBC Act requires approval from the Minister for the Environment and Energy for all actions likely to have a significant impact on matters protected under Part 3 of the Act. These include Commonwealth actions (section 28) and Commonwealth land (section 26). Actions by the National Library of Australia may be Commonwealth actions and the National Library of Australia building is on Commonwealth land.
The Act provides that actions:
taken on Commonwealth land which are likely to have a significant impact on the environment will require the approval of the Minister for the Environment and Energy;
taken outside Commonwealth land which are likely to have a significant impact on the environment on Commonwealth land, will require the approval of the Minister; and
taken by the Australian Government or its agencies which are likely to have a significant impact on the environment anywhere will require approval by the Minister.
The definition of ‘environment’ in the EPBC Act includes the cultural heritage values of places. The definition of ‘action’ is also important. Action includes:
a project;
a development;
an undertaking;
an activity or series of activities; and
an alteration of any of the things mentioned above.
However, a decision by a government body to grant a governmental authorisation, however described, for another person to take an action is not an action in terms of the Act. (Sections 523-4 of the EPBC Act)
Commonwealth Heritage Listing
The National Library of Australia is on the Commonwealth Heritage List.
Commonwealth Heritage places are protected under provisions of the EPBC Act. In addition, all Commonwealth Government agencies that own or lease heritage places are required to assist the Minister and the Australian Heritage Council to identify and assess the heritage values of these places. They are required to:
develop heritage strategies;
produce a register of the heritage places under their control;
develop a management plan to manage these places consistent with the Commonwealth Heritage Management Principles prescribed in regulations to the Act;
ensure the ongoing protection of the Commonwealth Heritage values of the place when selling or leasing a Commonwealth Heritage place; and
ask the Minister for advice about taking an action, if the action has, will have, or is likely to have, a significant impact on a Commonwealth Heritage place.
Commonwealth Conservation Management Plans
As the National Library of Australia is a Commonwealth Heritage place, a conservation management plan has to be prepared that addresses a range of issues specified in Regulations to the EPBC Act (Environment Protection and Biodiversity Conservation Amendment Regulations 2003 (No. 1): Schedules 7A and 7B), to ensure that the place meets the Commonwealth Heritage Management Principles set out in the Regulations. Appendix G indicates the requirements for management plans, and how this CMP addresses them.
National Heritage Listing
The National Library of Australia would be able to be nominated for the National Heritage List by any person at any time. Any such nomination would be assessed by the Australian Heritage Council using criteria established in the Act. Separate National Heritage Management Principles and referral requirements apply to National Heritage places. However, at this stage, no such nomination has been made.
Heritage Strategies
If an Australian Government agency owns or controls one or more places with heritage values, it must prepare a written heritage strategy for managing the places to protect and conserve their Commonwealth Heritage values. The principal objective of a heritage strategy is to outline a strategic approach for the agency to effectively manage places which it owns or controls for the long-term protection and conservation of their Commonwealth Heritage values. Before making a heritage strategy, the agency must consult the Australian Heritage Council and take its advice into account.
The Heritage Strategy for the National Library of Australia is being revised and the revised version is expected to be completed in 2017.
5.3 Stakeholders
There is a range of stakeholders with an interest in and concern for the National Library of Australia. This is in addition to the National Library of Australia itself as the Commonwealth agency which occupies and manages the building.
Other stakeholders include the:
users of and visitors to the Library;
Commonwealth Parliament;
National Capital Authority (NCA);
Australian Heritage Council;
Department of the Environment and Energy (DoEE);
Department of Communications and the Arts;
people who hold moral rights regarding the National Library of Australia building and art works;
the Kamberri/Ngunnawal community, being the four groups recognised as representing ACT Aboriginal interests;
ACT Heritage Council;
Australian Institute of Architects;
Australian Institute of Landscape Architects (AILA);
National Trust of Australia (ACT);
Walter Burley Griffin Society;
Lake Burley Griffin Guardians; and
• the Friends of the National Library of Australia.
Within the Library, several groups would be regarded as internal stakeholders. These include:
• National Library of Australia Council;
• Corporate Management Group (CMG); and
• staff generally.
The interests of many of the external stakeholders are related to legislation which is separately described above. A brief summary of each key stakeholder is presented below.
Users of and visitors to the Library
There is a range of people who use or visit the Library for a wide variety of reasons. One key use is for research, and this can include students, individual members of the public, independent scholars and academics. Exhibitions and events also attract a wide range of people. The Library is also a major tourist attraction for local, inter-state and overseas visitors. The Library’s café also attracts people who just come to eat and drink, including public servants from nearby buildings. Function use of the Library’s venues also attracts people to the building.
Commonwealth Parliament
The Parliament controls works in the Parliamentary Zone through the Parliament Act 1974, as described in Section 5.2 above. A member from both the House of Representatives and the Senate are appointed by Parliament to the National Library of Australia Council.
National Capital Authority
The Authority is a Commonwealth statutory agency which plays several roles with regard to the Library and the surrounding Humanities and Science Campus. As noted in Section 5.2, the Authority is the planning and development control agency for works affecting the Campus. In addition, the Authority formally controls and manages the Library’s carparks, the entry driveway, fountain and associated plantings, the Moore sculpture to the northeast of the Library, Reconciliation Place, and the land between the Library and the lake.
Australian Heritage Council
The Australian Heritage Council undertakes a number of functions regarding Australia’s heritage as outlined in the previous section. In relation to the Library, the key ongoing roles are commenting on management plans for the Library, and advising on any changes to the existing Commonwealth Heritage listing.
Department of the Environment and Energy
The Department is responsible for managing the Environment Protection and Biodiversity Conservation Act as outlined in Section 5.2 above, and for providing advice to its Minister who makes decisions under the Act. As noted elsewhere, the Act is relevant to the National Library of Australia’s management of the heritage values of its building. Key roles relate to management plans for the Library as well as changes which might affect the heritage values of the place.
Department of Communications and the Arts
Although a statutory authority and established under its own Act of Parliament, the Library sits within the Arts portfolio, with other cultural agencies, of the Department of Communications and the Arts. The Department maintains portfolio oversight of the activities of the Library.
Moral Rights Holders
As outlined above, architects, landscape architects and artists responsible for the designed aspects of the National Library of Australia may hold moral rights under the Copyright Act 1968. This conservation management plan attempts to acknowledge the moral rights holders related to the building and integrated artworks.
In the context of the plan, moral rights holders are stakeholders who can expect to be acknowledged as the architect, landscape architect or artist for their designed aspects of the building or integrated artworks, and to be given the opportunity to comment on proposed actions that might result in the derogatory treatment of the designed aspects for which they were responsible (right of integrity). Other rights also apply.
In the case of the Library, moral rights are expected to arise in the case of the original building, the extensions completed in 1986, other designed changes, and artworks integral to the place (eg. stained glass windows, entry sculpture, tapestries and copper window panels).
Efforts by the Library to identify any moral rights holder for the original building have so far been unsuccessful.
ACT Aboriginal Community
The Kamberri/Ngunnawal community are recognised as the traditional Aboriginal community associated with the Australian Capital Territory.[88] The interests of the Kamberri/Ngunnawal community are represented by four groups formally recognised as being Indigenous stakeholders in the ACT, and the views of each group were sought as part of a consultation process related to the earlier version of the conservation management plan, which touched on a range of heritage and planning issues within the Parliamentary Zone.[89] These groups are the Buru Ngunnawal Aboriginal Corporation, King Browns Tribal Group, Little Gudgenby River Tribal Council and Ngarigu Currawong Clan.
There have been no reported Aboriginal sites located within the area managed by the National Library of Australia, and no undeveloped land exists within the National Library of Australia leased area. In previous discussions about planning for the National Library of Australia, and High Court and National Gallery Precinct areas, community representatives stressed that the land flanking the Molonglo River was an important resource to Kamberri/Ngunnawal people, the stories associated with that pre-Canberra land use should be respected, and reflected in the design of developments and interpretation within the Parliamentary Zone.
All groups stressed the need to commit to a process of consultation with the Kamberri/Ngunnawal community as and when developments within the precinct of Parliamentary Zone generally were being planned. Too often consultation happened too late for Indigenous views to be heard and for their ideas to be considered in the design stage of projects.
ACT Heritage Council
While it has no legislative role in the management of the Parliamentary Zone as noted in the previous section, the ACT Heritage Council has an overall interest in the heritage of the ACT, and hence in the National Library of Australia as a heritage place.
Australian Institute of Architects
The Institute is a professional non-government organisation concerned with architectural matters. Through various parts of the Institute, it has demonstrated its interest in the Parliamentary Zone, especially the architectural features. The ACT Chapter of the Institute has identified the National Library of Australia as a building of architectural interest, though not yet listed it in its Register of Significant Architecture.
Australian Institute of Landscape Architects (AILA)
AILA is the peak body for Landscape Architects in Australia. The ACT Chapter of AILA has identified the landscape setting surrounding the National Library of Australia, managed by the National Capital Authority, as having an integral contribution to the overall heritage character of the building.
National Trust of Australia (ACT)
The National Trust is a community based heritage conservation organisation. It maintains a register of heritage places, and one of its main roles is as an advocate for heritage conservation. Listing on the Trust’s register carries no statutory power, though the Trust is an effective public advocate in the cause of heritage and calls on substantial community support.
The Trust has registered the National Library of Australia as a building within the Parliamentary Zone, and the Leonard French windows have been separately listed.
Walter Burley Griffin Society
Established in 1988 in Sydney, the Society commemorates the lives and works of Walter Burley Griffin and Marion Mahony Griffin, and promotes the environmental ideals and community life they fostered in Australia. The Society also promotes the conservation of the Griffins’ legacy, including that in Canberra. The Society has been an active voice for conservation in Canberra, although its specific views about the Library as a prominent building in the heart of the planned national capital have not been sought.
Lake Burley Griffin Guardians
The Lake Burley Griffin Guardians were formed in 2015 as a non-profit community group committed to safeguarding the open space of Lake Burley Griffin and its lakeshore landscape setting. As a prominent feature in this landscape setting, the Library is likely to be a feature of interest to the Guardians, at least regarding external aspects of the Library. However, the specific views of the Guardians about the Library have not been sought.
5.4 Management Context, Requirements and Aspirations
Summary of Land Ownership and Management
The National Library of Australia building is part of Block 4 of Section 27, Parkes, which is wholly managed by the National Library of Australia. The land and building are vested in the National Library of Australia in accordance with its Act.
The land surrounding the National Library of Australia is managed by the National Capital Authority, and contains specific elements that are associated with the significance of the place (namely the forecourt area and the Henry Moore sculpture) as well as the landscaped setting that allows the building to be viewed in the round as originally intended.
National Library of Australia Organisation
The National Library of Australia has a relatively flat structure, headed by the Director-General, with six Assistant Director-Generals leading the main operational branches of the Library. They constitute the Corporate Management Group (CMG) that provides strategic and operational leadership for the organisation. As at June 2016, the Library had 367 full-time, part-time and casual staff. The specific responsibilities of the branches and staff within them are listed in the National Library of Australia Heritage Strategy.
The Library Council provides policy direction and overview as set out in the National Library Act 1960. Operational budget control rests with the Director-General, with delegated expenditure responsibilities to varying amounts for specific purposes at lower levels.
National Library of Australia Requirements and Aspirations
The National Library of Australia develops, curates and preserves a diverse collection, and provides services such as on site and online programs, exhibitions and education programs. Fulfilling these functions requires substantial stack areas, reading rooms, technical support areas (digitisation and imaging services, materials conservation, information and IT services), exhibition and public presentation areas, and staff work areas. All areas identified as having heritage values in this report continue to be used for ongoing library and support functions.
Over the decades, there has been a degree of change in the use of some areas, or change or refurbishment of their fitout. On the other hand, other spaces have remained unchanged in use or fitout. The current aspirations and planned changes potentially involving the building include:
lighting upgrade for energy efficiency (2017-19) – upgrades to internal building lighting to install energy efficient fittings and sensor lighting where appropriate;
marble facade upgrade project (2017-19) – survey of condition of marble fascia, columns and balcony and replacement or repair as required;
external window upgrade (2017-22) – repair or replacement of inefficient, aging window systems for energy efficiencies and maintenance;
ceiling repairs (2017-22) – scheduled maintenance of existing ceilings; and
parquetry flooring repairs (2017-18) – maintenance and repair of existing parquetry flooring.
These projects would entail varying degrees of heritage issues.
A Building Master Plan was completed in 2016 which considers many of the aspirations identified above. The Building Master Plan references the heritage values of the building for consideration with each planning initiative identified.
Maintenance budgets have not yet been addressed to separate out heritage related elements of work. Separation of heritage components may only prove to be feasible where specific heritage fabric (such as timber wall panelling and original fitout) is being maintained. Budgeting for life-cycle maintenance of the internal spaces of specific heritage significance identified in this plan, and of the external building facade and podium is critical to an effective conservation regime for the Library.
5.5 Analysis of Condition and Integrity
Information about the condition and integrity of the National Library of Australia is presented in this section in three ways: a brief summary statement; followed by an analysis of the condition and integrity of the attributes of the Library; and finally a table which summarises a number of condition and integrity issues.
As a general comment, the Library displays fair to good condition and medium to high integrity. Considerable internal refurbishment work in recent years has seen a general improvement in the condition of the interior. However, there are some elements of the fabric which are showing signs of deterioration such as the marble cladding. There have also been a number of changes to the building over the years, some of which have had an impact on integrity. This includes the changing use of some important spaces for changing user expectations and service requirements (eg. the former Keeper of Rare Book’s office), and physical changes such as the loss of the original card catalogue area, and creation of the outdoor café enclosure.
In the following table, the right-hand column identifies which issues relate to the condition of the place (eg. a corroded gutter would be a condition issue) and those which relate to its integrity (a missing gutter would be an integrity issue). It is often useful to distinguish between these matters, especially as integrity relates closely to significance.
While not under the management of the National Library of Australia, the management of the land surrounding the Library is important to the conservation of the Library’s heritage values.
The forecourt drive and fountain, designed as part of the original project to give an appropriate entry and setting for the front of the building, were renovated in 2010, retaining the relationship of the entry of the Library to the main east-west axis via Reconciliation Place.
The National Capital Authority has the responsibility of continuing appropriate management of the land surrounding the Library, to achieve the continued conservation of its setting and architectural prominence. The minimalist landscape and setting surrounding the National Library of Australia are intrinsic characteristics of the Library itself. They include:
the formal plantings of Populus nigra ‘Italica’ in front of the Library and the grassed terrace which reflect and support the Late Twentieth Century Stripped Classical style of the building. It is noted some of the poplars appear in poor condition or display poor form;
the western lawn area adjacent to the National Library of Australia provides views to Black Mountain which continues the play of orthogonal views and vistas throughout the Parliamentary Zone, a legacy from Griffin’s arrangement of terraces; and
the open northeastern lawn enables unencumbered views from the podium to Lake Burley Griffin and Mount Ainslie which is in keeping with the Griffin plan and allows full appreciation of the building from the northern side of the lake.[\[90\]](#_ftn90)
6. Conservation Policy and Implementation Strategies
6.1 Objective
The objective of the policies in this plan is to achieve the conservation of the cultural heritage significance of the National Library of Australia consistent with the ongoing operation of the place as the home of Australia’s national collections and centre for national bibliographic and other services, and as a key component of the Parliamentary Zone.
6.2 Definitions
The definitions for terms used in this plan are those adopted in the Burra Charter, The Australia ICOMOS Charter for places of cultural significance,[91] a copy of which is provided at Appendix F. The Burra Charter is the national standard for cultural heritage conservation acknowledged by government heritage agencies around Australia. Key definitions are provided below.
Place means a geographically defined area. It may include elements, objects, spaces and views. Place may have tangible and intangible dimensions.
Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations. Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects.
Fabric means all the physical material of the place including elements, fixtures, contents and objects.
Conservation means all the processes of looking after a place so as to retain its cultural significance [as listed below].
Maintenance means the continuous protective care of a place, and its setting. Maintenance is to be distinguished from repair which involves restoration or reconstruction.
Preservation means maintaining a place in its existing state and retarding deterioration.
Restoration means returning a place to a known earlier state by removing accretions or by reassembling existing elements without the introduction of new material.
Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the introduction of new material.
Adaptation means changing a place to suit the existing use or a proposed use. [Article 7.2 states regarding use that: a place should have a compatible use]
Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal, impact on cultural significance.
Interpretation means all the ways of presenting the cultural significance of a place.
6.3 Conservation Management Policy and Implementation Strategies
Policy 1 Significance the basis for management, planning and work
The statements of significance set out in Chapter 4 shall be a principal basis for future management, planning and work.
Policy 2 Adoption of Burra Charter
The conservation and development of the National Library of Australia, its fabric and uses, shall be carried out in accordance with the principles of the Burra Charter,[92] and any revisions of the Charter that might occur in the future. (Reproduced at Appendix F)
Policy 3 Adoption of policies
The policies recommended in this conservation management plan shall be endorsed as a primary guide for management as well as future planning and development work.
Implementation Strategy
3.1 The implementation of the policies and strategies will be guided by the priorities and timetable at Table 8 (above).
Policy 4 Planning documents for the National Library of Australia
All planning documents developed for the National Library of Australia and its immediate surrounds shall refer to this conservation management plan as a primary guide for the conservation of the heritage values of the Library as a whole. The direction given in those documents and in this plan shall be mutually compatible.
Implementation Strategies
4.1 The National Library of Australia will include reference to and endorsement of this plan in its corporate planning documents, the Building Master Plan, and any future planning or development documentation for works, maintenance or activities affecting the Library. This will include acknowledgment of the heritage values of the place.
4.2 The National Library of Australia will seek the agreement of the National Capital Authority to include reference to and endorsement of this plan, and recognition of the Library’s heritage values, in any future planning or development documentation for works or activities in the area surrounding the Library but outside the scope of this conservation management plan. This would include the conservation management planning for the Parliament House Vista heritage area and master planning for the Humanities and Science Campus.
Commentary: The National Capital Authority has developed heritage management plans for Lake Burley Griffin and Adjacent Lands and the Parliament House Vista area, both of which comment on the setting and heritage curtilage of the National Library of Australia. The policy establishes the principle that such planning should acknowledge and respect the significance of the Library and its setting, as described in this plan.
4.3 The Building Master Plan, the five year Capital Works Plan, and annual Capital and Maintenance Programs will be reviewed at a draft stage for proposals which might impact on the heritage values of the building. Policies and strategies from this conservation management plan will be implemented to ensure that Commonwealth Heritage values are conserved in the Library’s planning for and execution of works.
In addition, various services upgrade programs will be reviewed at planning stages to identify any potential impacts on heritage spaces and values.
Commentary: The Building Master Plan references heritage values of the building. The 5 year Capital Works Plan indicates projects that may affect areas of heritage significance and all projects on the annual maintenance program are assessed for implications on heritage values.
Policy 5 Compliance with legislation and related consultation
The National Library of Australia must comply with all relevant legislation as far as possible. With regards to the heritage significance of the Library, the National Library of Australia will develop clear procedures for complying with the Environment Protection and Biodiversity Conservation Act 1999.
In addition, the National Library of Australia must comply with the National Capital Plan.
To achieve timely compliance, consultation with administering Departments or agencies and the Minister for the Environment and Energy will be undertaken.
Implementation Strategies
5.1 The National Library of Australia will consult with the Minister for the Environment and Energy or his/her delegate as required under the EPBC Act, with regard to the conservation management plan (s341S of the Act).
5.2 Where the National Library of Australia is not able to achieve full compliance with relevant legislation, the reasons for not being able to comply will be appropriately documented and the authority responsible for the legislation consulted.
5.3 The National Library of Australia will develop procedures to trigger compliance and referrals required by the EPBC Act.
5.4 The National Library of Australia will consult informally with the Department of the Environment and Energy regarding the conservation management plan and any actions that it considers have, will have or are likely to have a significant impact on the Library as a Commonwealth Heritage place, noting that such consultation is not formally required under the EPBC Act.
5.5 The National Library of Australia will consult with the National Capital Authority as the manager of immediately adjacent land having heritage values. The purpose of this consultation will be to achieve sympathetic conservation management of the setting of the place which is, where operationally feasible, consistent with the high standards established by the EPBC Act.
5.6 The National Library of Australia will maintain a list of moral rights holders relevant to the place and will implement processes to consult moral rights holders on relevant issues or proposals.
Commentary: Beyond the requirements of the moral rights legislation, moral rights holders should be regarded as a key source of information and interpretation about aspects of the place.
Policy 6 Use of expert advice and skills
Advice shall be sought from people with relevant experience in the management and/or conservation of heritage properties in relation to complex heritage conservation issues affecting the National Library of Australia.
Appropriately skilled people will be used to undertake works affecting components of the National Library of Australia with heritage values.
Implementation Strategy
6.1 New proposals affecting components of the National Library of Australia with heritage values will be developed with the involvement of relevant expert heritage advice to ensure an integrated planning and design approach is adopted.