Reserve Bank of Australia Head Office, 65 Martin Place, Sydney Heritage Management Plan 2020
6.0Heritage Legislation and Management Framework
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The RBA Head Office building is prominently situated at the southwest corner of the intersection of the major banking and financial precinct of Martin Place with Macquarie Street, the premier civic and government of New South Wales. The building is aligned in an east-west direction with its main entrance addressing Martin Place and a vehicular entrance accessed from Phillip Street.
The area immediately to the north, south and west of the RBA building is characterised by medium- and high-rise commercial buildings, while the eastern side of Macquarie Street generally occupied by two and three storey public buildings dating from the nineteenth and early twentieth century. The building is a prominent element within the eastern section of Martin Place, and is visible in some medium- and long-distance views looking westwards from the Domain and Art Gallery.
Martin Place is recognised as a significant public space within the City of Sydney. In the 1970s the eastern section of Moore Street, between Elizabeth Street and Macquarie Street, was pedestrianised by the City of Sydney Council to complete Martin Place. Later changes included the construction of public stairs following the completion of Martin Place Railway Station[26] by the NSW State Government. Those works included minor changes to the paving levels to the north of the RBA Head Office building thereby providing direct level access to the building from Martin Place in addition to access directly from Macquarie Street. Other works to Martin Place, such as the removal or replacement of streetlights, trees, signage and street furniture, have altered the original setting of the RBA building and its relationship to pedestrian circulation in Martin Place.
The garden located between the east elevation and Macquarie Street was constructed as part of the 1962-64 stage of works. The formal Australian-themed garden was designed by Melbourne landscape architect, Malcolm Munro, following a public competition. The rockery and water feature were removed in the 1970s although the feature has been retained as a garden and re-planted in 2018 with drought-resistant species.
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Figure 19 - View of the landscaped native garden in c1968.
4.2 Description of the Reserve Bank of Australia Head Offices
4.2.1 Structural system
The Reserve Bank of Australia Head Office building structure was constructed in two stages (Stage 1- 1962-63 and Stage 2 - 1972-76) using similar steel framed construction. Stage 1 works incorporate welded joints providing rigidity and resistance to wind loads, while the Stage 2 steel column/beam connections are generally pinned connections. Steel beams are set out on a structural grid of 7.62m. Beams and columns are concrete encased with floors and basement walls of reinforced concrete, with additional reinforcement and security features incorporated into the walls of the basement strong rooms. Documentary evidence indicated columns are founded on concrete pad footings bearing onto sandstone bedrock.
The upper level floors (above ground floor) are constructed of lightweight concrete[28] to reduce weight in the structure, and includes a series of long cantilevered beams located at Levels 1, 2 and 3. The lift core, including passenger and goods lifts, fire stairs and lavatories are centrally located along the south wall, with floor space located to its east, north and west.
Stage 2 was constructed as an independent, self-supporting system, and does not rely on Stage 1 structure for vertical support, however the 1970s addition is reliant on the Stage 1 structure for the resistance of lateral loads. Columns at the interface between Stage 1 and Stage 2 construction are paired to facilitate the transfer of lateral loads. Further lateral rigidity is provided by the masonry shear walls of the stair wells and lift cores. These walls act as bracing walls between adjacent floors. The lift cores and stair wells are located centrally within the building providing a favourable centre of gravity and rigidity for lateral and dynamic loads.
The lateral loads imposed at each level of the building are transferred into the shear walls and columns via the reinforced concrete floor slabs acting as a horizontal diaphragm.
4.2.2 Exterior
The RBA building was constructed with its main entrance located on the north elevation (main façade), originally addressing a tree-line street, Moore Street. The Martin Place entrance has been retained as the principal pedestrian entrance.
The exterior of the building is read as four sections:
The Ground floor which is set back from the boundary of the site, and three basement levels which are partially visible from Phillip Street,
The first, second and third levels forming the podium, with horizontal slabs emphasized;
The tower floors (Levels 4 to 19); and
Level 20, which is setback from the façade of the tower levels.
The Head Office building is a twenty-two storey building including three levels of basements. The lower levels of the tower contain the public areas and a cantilevered podium, while the basement levels were designed to accommodate strong rooms, storage and secure loading and parking areas. The tower levels were generally taken up with office accommodation twentieth floor was designed during construction to provide a function space with extensive glazing to take advantage of panoramic views to the north and northeast.
The building rises to a height of 80.5m above Macquarie Street and Basement 3 is 12.5m below ground level. The office tower levels are set back approximately 4.87m from the podium and site boundaries on the north and east street frontages consistent with a building covenant on the site. The building floor plate surrounds a central bank of lifts with additional lifts serving the basements and Levels 16 to 20. All vehicle access to the building is from Phillip Street.
The façade of the RBA building includes marble, granite, aluminium and glass components. Structural columns are faced with black granite and expressed on the exterior of the building. Spandrel panels between columns are formed by concrete panels that were originally faced with white Wombeyan marble. The north and east ground floor walls are separated from internal spaces by glazed aluminium screen walls set back from the edge of the podium, creating a covered walkway over the forecourt/entrance area and the garden.
The facade treatment of the building is distinctive, reflecting both the modular office subdivision expressed in the window mullions and the extensive use of natural stone. Intermediate mullions contain service risers and are clad with stone. The spandrel areas between mullions and the heads and sills of windows, are comparatively flush in surface with the facings on the columns, while deep set windows provide adequate solar protection and give emphasis to the voids. The resultant texture is static in form and ‘…emphasises neither horizontal nor vertical movement’[29].
Windows located on the Phillip Street façade are designed with higher sills than those on other elevations, and are protected by horizontal cantilevered sun hoods to minimise the impact of sunlight caused by their western orientation.
Figure 20 – General view of the northwest corner of the Head Office building.
Figure 21 – General view of the podium soffit adjacent to the north side of the RBA Head Office entry. Note the original suspended marble soffit was replaced in c2001.
Figure 22 - Oblique view of the south elevation of the RBA Head office building.
Figure 23 – Oblique view looking northeast along Phillip Street. The RBA building is indicate by an arrow.
4.3 Interior Description
4.3.1 Generally
The interior of the Reserve Bank of Australia Head Office building has been adapted since its opening in 1964 for operational reasons, including some irreversible changes and loss of original fabric. The major extension (late 1970s) to the south of the original building resulted in changes to the internal layout of office areas and other spaces within the tower together with extensive replacement and/or adaptation of services at each level. Other modifications undertaken since 1964 generally relate to addressing non-compliance issues and operational requirements.
The RBA Head Office, as a government agency, adopted government policy to use Australian sourced and manufactured materials where possible. Architectural finishes and detailing within the Head Office drew on international influences, particularly contemporary Scandinavian design as seen in the use of timber finishes, linen panelling and natural colours.
Public spaces such as the ground floor reception and lift lobbies incorporated granite and marble finishes. Its anodised aluminium louvred ceiling was designed to reflect the structural bays, while the floor levels changed throughout the public spaces to delineate the entrance to the museum, reception area and banking chamber.
Recent refurbishments have drawn on the original palette of materials to maintain and enhance the 1964 architectural character of the main spaces.
Figure 24 – Example of fire stair finishes and painted steel balustrades within the RBA Head office building.
Figure 25 – Photograph of typical refurbished lavatory areas throughout the RBA building.
4.3.2 Ceilings
Ceilings are generally suspended acoustic ceilings with fluorescent lights and air-conditioning grilles, although some ceilings, such as those in lift lobbies and the Board Room include set plaster ceilings with integrated downlight or suspended track lights. The original (1964) anodised aluminium louvred ceiling has been retained above the Ground floor entrance lobby, banking chamber and museum entrance.
There are no ceilings located in the basement loading and parking areas, some service and plant rooms spaces.
4.3.3 Lifts and vertical circulation
The original service and lift core are retained throughout the building with two additional lifts installed in c2001 to service levels 16 to 20. The six original passenger lift cars were replaced in 2014. Display panels and call buttons were replaced at the same time as part of the security and access to premises requirements.
The building includes a separate good lift and lifts servicing basement areas. The building does not currently contain lifts that service every floor of the building.
4.3.4 Services
Services within the RBA Head Office building have been substantially altered or replaced since 1964. Many services installed as part of the original construction phase were replaced at the end of their operation life. Services are fed through centrally located risers near the lift core or forming part of the south service addition, and distributed through ductwork in concealed in ceiling spaces above offices. Services in workshop, plant and loading areas are exposed and surface mounted.
Additions to the south side of the building, completed in the late 1970s facilitated the relocation of some plant areas and risers within the building from the external core. This resulted in the adaptation and partial replacement of air-conditioning, fire services and lighting services throughout the building. The fire stairs generally remain in their original location. The loading bay and secure parking arrangement were altered in the late 1970s, and further modified in c2005 to address security requirements.
4.3.5 Basement Levels (Basement 1, Basement 2 and Basement 3)
There are three levels of basement below Macquarie Street level, which contain vehicular access areas, the main switchboard, strongrooms and cash handling areas. The original 1964 configuration of the basement included extensive areas dedicated to mechanical plant equipment that have been progressively relocated or replaced to suit changing servicing equipment requirements.
Figure 26 - Typical basement finishes.
Figure 27 – Typical painted rendered finishes at Basement Levels 1 and 2.
Basement areas were extended and modified as part of the 1970s construction phase. The original strongrooms have been retained, although underutilised storage, workshop and plan areas have been adapted as computer areas and staff facilities. The Records & Archives Repository is located in Basement 3.
Spaces throughout Basement Levels 1, 2 and 3 were formed by painted rendered walls subdivided with stud wall and office partitions. Sections of original timber parquet floor finishes have been retained and are, in part, concealed by an accessible computer floor. Vinyl floor tiles and ceramic floor tiles are evident in other areas. Utilitarian areas, such as the loading bay and parking areas are concrete. Ceilings, where installed, are generally formed by suspended acoustic panels with integral acrylic fluorescent light diffusers.
4.3.6 Ground Floor Level
The ground floor of the Head Office is directly accessible from Martin Place, and is symmetrical around the central main vestibule. The vestibule is a two-storey, with a general banking chamber on the western side and a public display area on the eastern side. The museum and interpretative display area are currently located in the area originally occupied by Bonds & Stock Banking Chamber.
The main vestibule area remains largely intact and contains most of its original fabric and finishes, including important artworks commissioned specifically for the building and integral with the building fabric. There have been some minor changes relating to the public reception area to control circulation and increase security. Other areas in the southern section of the ground floor, which are screened from public view, have been adapted and upgraded to meet the changing requirements of Bank staff. Two platform chair lifts were installed in c2000 to provide access to the museum and bank chamber spaces from the entrance foyer.
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Figure 28 - View of the ground floor vestibule and museum entrance area c2002 showing the surviving original finishes and the wall mural by Mr Bim Hilder.
Source: Australian Heritage Photographic Library
Despite a number of previous modifications the architectural character of the ground floor area is still apparent on entering the building, including the gold anodised aluminium ceiling, the south wall and artwork, glazed mezzanine walls and stone floor. The roughcast grey ‘Softlite’[30] glass has been retained as the wall of the mezzanine level. The reception desk has been relocated several times resulting in repairs to the Riverina Grey granite floor. The current configuration of the ground floor entrance foyer dates from 2015 when the reception desk was relocated and security gates were installed.
4.3.7 Mezzanine Level, Levels 1, 2 and 3
The Mezzanine, First and Second floor levels form a podium under the main office tower of the Head Office. All three levels have been refurbished.
The Mezzanine floor is set back from the Martin Place frontage creating a two-storey volume over the ground floor entrance lobby. It was originally linked to the ground floor banking chamber by a dedicated stairwell, which was removed in c2000. The Mezzanine currently accommodates staff training facilities, open plan office spaces and amenities. Original ‘Softlite’ glass forming the north wall of the mezzanine has been retained in situ.
Levels 1 and 2 were reconfigured during the 1990s to accommodate a computer room. Accessible computer flooring was installed in some spaces, and internal partitions removed to create open plan office areas where possible. The computer roof was relocated to the basement in 2006.
Figure 29 – Typical finishes installed in 2014 in the corridor and reception area located at the Mezzanine Level.
Figure 30 - Typical Mezzanine office fit out. Note the full-height textured glass forming the north wall of the mezzanine level is visible from within the ground floor vestibule.
Level 3 was designed as a staff amenities area, with a staff cafeteria and kitchen on the eastern side, an auditorium and staff library on the western side and a staff lounge centrally outside the lift foyer. The original architectural character of these areas has been altered by later refurbishment which involved the removal of original and early fabric and details.
The original functions of the third floor have now been relocated and the area is now used as office accommodation, with spaces formed by timber and glass office partitions.
Each of these levels accommodates open plan office areas located around the north, east and west sides of the service core. Open plan areas accommodate administrative functions and are generally used as office accommodation, subdivided by new glass partitions.
Services and utilitarian spaces have been refurbished, and in some instances relocated within the original core. Ceilings and services have been replaced or adapted to suit the re-configured spaces. Furniture identified as having heritage significance, such as a writing desk and associated furniture used by the Governor of the Commonwealth Bank in 1916, has been relocated to the museum area at Ground Floor level as part of the interpretative display of the Reserve Bank.
Office suites located in the northeast section of the building have been removed due to asbestos, although those located at Levels 4, 8, 9, 10, 13 and 14 remain. En-suite lavatories do not meet current statutory access requirements and would require future adaptation for re-use.
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Figure 31 – Example of ceiling, wall and floor finishes at Level 6 installed in 2016.
4.3.9 Levels 11 and 12
Levels 11 and 12 contain two significant spaces, namely the Boardroom (Level 11) and the Governor’s Suite (Level 12). Both levels have been extensively refurbished since the RBA Head Office was opened in 1964. Documentary evidence indicates the original ceilings and wall finishes were generally removed as part of the asbestos removal works carried out in the 1990s. Works carried out in 2014 included the reconstruction of linen wall panels in the Boardroom and the reuse of original timber panelling to recover the architectural character of significant spaces.
Level 11
This level contains the executive area, including the Board Room, Dining Room, Reception and service areas. The remainder (western section) of the floor contains meeting rooms, service areas and general office areas. There has been a degree of compromise of original details by later refurbishment carried out to remove asbestos and for new services.
The executive suite generally, including the Board Room, is ranked as having ‘High’ heritage significance in this report and contains a significant Boardroom table and associated furniture designed by Fred Ward [31].
Level 12
This level contains the Governor’s suite, reception areas and executive suites. There has been a degree of compromise of original details by later refurbishment carried out to remove asbestos and for new services. Spaces within the executive level retain considerable significance and include original furniture and art works.
4.3.10 Level 16
The current configuration of spaces and finishes located at Level 16 generally date from 2002 or later.
Level 16 was substantially adapted in 2002 when under-utilised spaces including two residential flats, service areas and a medical centre were removed. Internal walls and finishes were removed although the Lift Lobby was generally retained in its original form. Two new lifts, servicing Levels 16 to 20, were installed to the north of the original lifts.
The eastern section of Level 16 was adapted as a new staff cafeteria with kitchen facilities.
Figure 32 - Level 16 lift lobby showing the original marble wall finishes.
Figure 33 - Level 16 service corridor, looking east to kitchen.
Figure 34 - Staff cafeteria fit out Level 16.
Figure 35 – Main east-west corridor located at Level 18 looking west.
4.3.11 Level 17, 18 and 19
These levels originally housed two squash courts and associated change rooms, together with extensive plant rooms. The squash courts (Level 17) were removed in 2001 and a new slab poured in the void above the squash courts at Level 18, other gymnasium facilities have been relocated, and the area refurbished as additional office areas and staff facilities. The plant room has been retained and occupies the whole of Level 18 (Figure 35).
An open observation gallery is located along the northern façade of Level 18.
4.3.12 Level 20
This level was designed primarily as a staff amenities area, and was accessible from one lift commencing from Level 16. The floor is set back from the perimeter of the building under a cantilevered roof form. The mobile exterior maintenance cradle is located on this level.
The original configuration has been adapted and refurbished, and additional glazing installed in the perimeter of the building to increase natural light and take advantage of views to the north and east. Two new passenger lifts were added in c2001 with the construction of the lift shaft serving Levels 16 to 20.
Figure 36 – Typical finishes to the office area located at the western section of Level 20.
Figure 37 - General view showing the concrete pavers and access equipment for servicing the exterior of the RBA building.
4.4 Previous modifications
The existing building fabric of the RBA Head Office building is in good condition, having been subject to an ongoing cyclical maintenance program since it was completed in 1964. The Head Office building continues to generally demonstrate its identified Commonwealth Heritage values (CHL Place ID 105456) despite changes to its physical fabric[32].
The Reserve Bank Head Office building has undergone considerable change and modification to its original internal configuration and detail since 1975. Despite the degree of change the building retains historic and associative heritage significance, and maintains its essential architectural character, especially in relation to its external appearance and contribution to the surrounding urban built environment. The original architectural character is evident in public spaces and some spaces located at Levels 11 and 12. These areas generally coincide with those areas that have greatest significance in terms of historic associations.
Office configurations were altered as part of the 1970s addition and 1990s adaptation of the building to reflect operational changes within the bank and to provide open-plan offices and Commonwealth government office accommodation standards. Modifications have not substantially affected the historic or associative significance of the Head Office.
Substantial changes to the building were carried out following approvals granted in 1990 including the upgrading of offices and basement areas, removal of asbestos requiring the stripping of all internal finishes, upgrading of building services and fire protection facilities, new ceilings, lighting and carpets and the extensive restoration and re-cladding of the external facade of the building.[33]
Detailed records of all changes to the place are kept in the Bank’s archive together with extensive photographic records of each stage of the building’s development.
Modifications to original building fabric and the internal planning of spaces since 2002 have been generally associated with changes to functional and operational requirements of the Reserve Bank of Australia, including:
eastern end of the ground floor was modified from a banking chamber to form the public exhibition area, c1991.
Upgrade of lift cars including finishes and emergency communications equipment, c2002.
Construction of two new passenger lifts from Levels 16 to 20, c2000.
The Staff Cafeteria and associated areas — level 16, modified c2000.
The Auditorium - level 3, removed c2000.
The Residential Flats — level 16, removed in c2000. (Previously included in CHL to demonstrate Criterion B.)
The two Squash Courts on levels 18 & 19, removed in c2000. (Previously included in CHL to demonstrate Criterion B.)
The staff recreation area on level 20, adapted c2000.
The firing range on level 18, removed 2000. (Previously included in CHL to demonstrate Criterion B.)
The archives research and storage areas on level 6, spaces adapted as office c2002.
Upgrading of non-compliant services throughout the building including data and communications equipment.
Adaptation of ground floor level including upgrading of reception desk, two chair platform lifts, security barriers and creation of museum and auditorium.
Figure 38 - Diagrams showing previous changes to the exterior of the RBA Head Office building, c2004. Source: RBA Archives.
4.5 Archaeological Potential
The construction of the RBA Head Office building (1962-64) and subsequent addition (1975-79) required the demolition of earlier buildings and extensive excavation to facilitate the construction of three levels of basement accommodation. Given the level of previous excavation the Reserve Bank of Australia site we conclude the site has no potential for the discovery of archaeological relics. This conclusion is consistent with the assessment contained in the Archaeological Zoning Plan for Central Sydney – 1992[34] prepared for the Council of the City of Sydney, which identifies the site as an ‘Area of No Archaeological Potential’.
4.6 Significant Views
The Reserve Bank of Australia Head Office building has landmark qualities as a significant component of the eastern section of Martin Place. The north elevation of the building forms the visual boundary of the public space, and is visible in limited oblique views along Macquarie and Phillip Streets. The south elevation of the RBA building is partially visible in views looking northwards along Macquarie and Phillip Streets.
The RBA is visible in short-, medium- and long-distance views from Martin Place, Macquarie Street and limited views in Phillip Street. The building, as part of the western side of Macquarie Street is visible in some long-distance views looking west from the Domain.
Figure 39 - View looking southeast from the corner of Elizabeth Street and Martin Place, July 2019.
Figure 40 - View of the northeast section of the RBA building from Macquarie Street, July 2019.
Figure 41 - View of the northwest section of the RBA building from the corner of Phillip Street and Martin Place.
Figure 42 - Looking north to the RBA building Marked by an arrow) from the entrance to Hyde Park Barrack site, July 2019.
5.0 Heritage Values
5.1 Commonwealth Heritage Criteria
Heritage significance, cultural significance and cultural value are all terms used to describe an item’s value or importance to our own society. This value may be contained in the fabric of an item, its setting and its relationship to other items, the response that the item stimulates to those who value it now and in the historical record that allow us to understand it in its own context.
Determining cultural value is the basis of all planning for places of historic significance. Determination of significance permits informed decisions or future planning that ensures that the expressions of significance are retained, enhanced or at least minimally impacted upon. A clear understanding of the nature and degree of significance will determine the parameters for flexibility of future planning and development.
The analysis of the historical and physical evidence provides the context for assessing significance, which is made by applying standard evaluation criteria to the development and associations of an item.
A place has Commonwealth Heritage value if, and only if, the place meets one of the Commonwealth Heritage criteria prescribed under Section 341D of the Environment Protection and Biodiversity Conservation Act 1999. The values embodied in the criteria generally relate to:
natural heritage values of places;
indigenous heritage values of places; and
historic heritage values of places.
A place is included on the Commonwealth Heritage List for demonstrating one or more of the following Commonwealth Heritage criteria:
Criterion (a)(Processes)
The place has significant heritage value because of the place’s importance in the course, or pattern of Australia’s natural or cultural history.
Criterion (b)(Rarity)
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.
Criterion (c)(Historical values)
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.
Criterion (d)(Characteristic values)
The place has significant heritage value because of the place’s importance in demonstrating the principle characteristics of:a class of Australia’s natural or cultural places; ora class of Australia’s natural or cultural environments.
Criterion (e)(Aesthetic characteristics)
The place has significant heritage value because of a place’s importance in exhibiting particular aesthetic characteristics valued by a community or cultural group.
Criterion (f)(Technical achievement)
The place has significant heritage value because of the place’s importance in demonstrating a high degree of creative or technical achievement at particular period.
Criterion (g)(Social value)
The place has significant heritage value because of the place’s special association with a particular community or cultural group for social, cultural or spiritual reasons.
Criterion (h)(Significant people)
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.
Criterion (i)(Indigenous tradition)
The place has significant heritage value because of the place’s importance as part of indigenous tradition.
5.1.1 Threshold for inclusion on the Commonwealth Heritage List
The threshold for inclusion on the Commonwealth Heritage List is importance or significance to the local community. These places are significant within the context of a local area and may contribute to the individuality and streetscape, townscape, landscape or natural character of an area and are matters controlled by local government.
5.2 Methodology adopted for Assessing commonwealth Heritage Values
This study reviewed the official Commonwealth Heritage values contained in the Commonwealth Heritage List citation to confirm the values and monitor condition of the attributes described. The process involved:
visual inspection of the building fabric to monitor and confirm the heritage values and attributes;
visual inspection to confirm changes to the building setting;
review of relevant literature to identify other potential heritage values; and
review of specialist reports[35] to determine the authenticity of building fabric and to confirm the sequence of development of the Reserve Bank of Australia head office building.
In addition to the process of monitoring and further research, consideration has also been given to determining the likely impacts to the official heritage values of the Reserve Bank of Australia Head Office building in the event of future additions, adaptation, or changes in use, form or detail.
5.3 Application of Commonwealth Heritage criteria
The following section sets out the application of the Commonwealth Heritage criteria to the Head Office, Sydney of the Reserve Bank of Australia. A place has Commonwealth Heritage value if and only if the place meets one of the Commonwealth Heritage criteria prescribed under Section 341D of the Environment Protection and Biodiversity Conservation 2000 (EPBC Regulations 2000 Div 10.05 (10.03A) – Commonwealth Heritage criteria). It amplifies the existing Commonwealth Heritage values identified for the Head Office of the Reserve Bank of Australia in its Commonwealth Heritage Listing (Appendix 0).
CRITERIA
OFFICIAL COMMONWEALTH VALUES(Contained in CHL citation, ref Section 0)
COMMENTARY
Criterion (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.
The Reserve Bank building (1964) designed by the Commonwealth Department of Works, Bank and Special Project Section, is highly significant in the development of post World War II multi storey office buildings in Australia. The building's significance has been retained through a major extension (1974-1980), recladding (1993) and internal refitting. The Reserve Bank building is of historical significance in its ability to demonstrate the changing functions and role of the Reserve Bank of Australia, particularly that of the head office, since 1964. The International style of the building represents the post war cultural shift within the banking industry, away from the traditional architectural emphasis on strength and stability towards a more contemporary and international style.The two foyer art works are of historical and aesthetic significance. The artworks by Bim Hilder and Margel Hinder are significant examples of Australian modernist sculpture of this period by two significant artists, who were selected as the winners of design competitions by the Reserve Bank. The furnishings by Fred Ward are of historical and aesthetic significance. Designed for the building by Ward, who was one of the leaders in modern Australian industrial design at this time, the furnishings are of a simple and functional design which are now considered to be pieces of art in themselves.When constructed elements of the mechanical and electrical services within the building were considered advanced and innovative, and although many elements have been removed or substantially altered, their incorporation in the building is still of interest today, this included the fire sprinkler system, smoke detectors and fire alarms; interior and signage lighting; and air conditioning.The provision of two residential flats, for use by visitors to the bank; squash courts; and firing range were relatively uncommon for the time (all removed 2001). The two doors to the main strongroom were at the time of construction the largest and most technically advanced in the southern hemisphere.AttributesOriginal and subsequent fabric that demonstrates continuity of use by the Reserve Bank.
These official Commonwealth heritage values have been confirmed. Fabric identified as having heritage significance has been retained and conserved in keeping with the Heritage Management Plan for the place and best-practice guidelines.
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.
When constructed elements of the mechanical and electrical services within the building were considered advanced and innovative, and although many elements have been removed or substantially altered, their incorporation in the building is still of interest today, this included the fire sprinkler system, smoke detectors and fire alarms; interior and signage lighting; and air-conditioning.The provision of two residential flats, for use by visitors to the bank; squash courts; and firing range were relatively uncommon for the time (all removed 2001).AttributesRemnant evidence of original services, and remnant evidence of the former residential flats.
The building was extended in the 1970s and subsequently adapted to enable the Reserve Bank to maintain the building as its Head office. The adaptation of the building in c2001 included the removal of two apartments, squash courts and a firing range. Works were carried out with approval under the EPBC Act to enable the Reserve Bank to consolidate banking and office operations on the site.Mechanical and electrical services have been replaced at the end of their operational life or to address statutory requirements in order to assist the Reserve Bank to carry out its function as maintain the building as its head office.
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.
Not listed for demonstrating Criterion C
Not applicable
Criterion (d)The place has significant heritage value because of the place’s importance in demonstrating the principle characteristics of:a class of Australia’s natural or cultural places; or(ii) a class of Australia’s natural or cultural environments.
The Reserve Bank building (1964) designed by the Commonwealth Department of Works, Bank and Special Project Section, is highly significant in the development of post World War II multi storey office buildings in Australia. It is a significant example of a 1960s office building notable as being a well-designed example of the International style; its construction using high quality Australian materials; steel and concrete construction; and interior design details and artworks. The building's significance has been retained through a major extension (1974-1980), recladding (1993) and internal refitting.AttributesThe architectural attributes that demonstrate the International Style.
These official Commonwealth heritage values have been confirmed. Ground floor window frames were strengthened without any visible internal or external change. The works maintained the existing appearance of the building and internal detailing.
Criterion (e)The place has significant heritage value because of a place’s importance in exhibiting particular aesthetic characteristics valued by a community or cultural group.
Through its prestigious design and function as Australia's central bank, the building makes an important contribution to the streetscape and character of Martin Place, Macquarie Street and Phillip Street.AttributesThe multi-storey form and the quality of external finishes to the building.
These official Commonwealth heritage values have been confirmed.Recent works carried out to the setting of the building include the replacement of plants in the corner garden with a positive impact on the presentation of the building within Macquarie Street and Martin Place.
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 particular period.
The Reserve Bank building is highly significant in the development of post World War II multi storey office buildings in Australia for its use of high quality Australian materials; steel and concrete construction; and interior design details and artworks.The furnishings by Fred Ward are of historical and aesthetic significance. Designed for the building by Ward, who was one of the leaders in modern Australian industrial design at this time, the furnishings are of a simple and functional design which are now considered to be pieces of art in themselves.The variety of moveable heritage items located throughout the building including furniture, china, flat wear, silverware, napery and accessories, pottery, tapestry and artworks are significant having been specifically designed or purchased for the building as well as being of artistic merit in their own right.When constructed elements of the mechanical and electrical services within the building were considered advanced and innovative, and although many elements have been removed or substantially altered, their incorporation in the building is still of interest today, this included the fire sprinkler system, smoke detectors and fire alarms; interior and signage lighting; and air-conditioning.The two doors to the main strongroom were at the time of construction the largest and most technically advanced in the southern hemisphere.AttributesTechnical aspects of its construction, mechanical and electrical services and strongroom doors, all furnishings and the moveable objects of design listed above.
These official Commonwealth heritage values have been confirmed. The Bank has included information on its website showing the construction of the steel-framed building. The website and RBA museum include information on the history of the building, its furnishings, artworks and moveable heritage objects to promote the building to the public.Significant heritage furniture, including Fred Ward furniture is regularly inspected and conserved consistent with best-practice guidelines.
Criterion (g)The place has significant heritage value because of the place’s special association with a particular community or cultural group for social, cultural or spiritual reasons.
The building has social significance being regarded by the Australian community as the home of the Reserve Bank function and the place where significant economic policy is carried out on behalf of the Nation.AttributesContinued use of the building by the Reserve Bank for the above purpose.
These official Commonwealth heritage values have been confirmed. The Reserve Bank of Australia continues to occupy the building as its Head Office.
Criterion (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.
The artworks by Bim Hilder and Margel Hinder are significant examples of Australian modernist sculpture of this period by two significant artists, who were selected as the winners of design competitions by the Reserve Bank. The furnishings by Fred Ward are of historical and aesthetic significance. Designed for the building by Ward, who was one of the leaders in modern Australian industrial design at this time, the furnishings are of a simple and functional design which are now considered to be pieces of art in themselves.The Reserve Bank head office building is associated with successive governors of the Reserve Bank: Dr. H. C. Coombs; J.G. Phillips (KBE); H.M. Knight (KBE DSC); R.A. Johnston (AC); B.W. Fraser and I.J. Macfarlane. The building is also associated with personnel of the Commonwealth Department of Works, Banks and Special Projects branch, responsible for the building's design in particular: C. McGrowther; Professor H. I Ashworth; C.D. Osborne; R.M. Ure; F.C. Crocker; G. A. Rowe; as well as E.A. Watts (builders for both stages of construction) and Frederick Ward (furniture designer).AttributesThe artworks of Bim and Margel Hinder, evidence of use by successive Governors of the Reserve Bank, and remaining Fred Ward furniture.
These official Commonwealth heritage values have been confirmed. Artworks, both internal and external have been retained and conserved. The RBA engages in-house specialists and, where appropriate, engages external consultants to provide advice and specialist conservation services.The Bank maintains an inventory of heritage furniture including all surviving furniture designed by Fred Ward, and guidelines for the treatment and storage of furniture. Specialist advice is sought to ensure works to furniture are consistent with best-practice guidelines.
Criterion (i)The place has significant heritage value because of the place’s importance as part of indigenous tradition.
Not listed for demonstrating Criterion (i).
Not applicable.
5.4 Statement of Significance
The following Statement of Significance contained in the Australian Heritage Database is accepted as the official statement of significance for the Reserve Bank of Australia Head Office and its site:
The Reserve Bank building (1964) designed by the Commonwealth Department of Works, Bank and Special Project Section, is highly significant in the development of post World War II multi storey office buildings in Australia. It is a significant example of a 1960s office building notable as being a well-designed example of the International style; its construction using high quality Australian materials; steel and concrete construction; and interior design details and artworks. The building's significance has been retained through a major extension (1974-1980), recladding (1993) and internal refitting (Criteria A.4, D.2 & F.1).
The Reserve Bank building is of historical significance in its ability to demonstrate the changing functions and role of the Reserve Bank of Australia, particularly that of the head office, since 1964.
The International style of the building represents the post war cultural shift within the banking industry, away from the traditional architectural emphasis on strength and stability towards a more contemporary and international style (Criterion A.4).
Through its prestigious design and function as Australia's central bank, the building makes an important contribution to the streetscape and character of Martin Place, Macquarie Street and Phillip Street (Criterion E.1).
The two foyer art works are of historical and aesthetic significance. The artworks by Bim Hilder and Margel Hinder are significant examples of Australian modernist sculpture of this period by two significant artists, who were selected as the winners of design competitions by the Reserve Bank. The furnishings by Fred Ward are of historical and aesthetic significance. Designed for the building by Ward, who was one of the leaders in modern Australian industrial design at this time, the furnishings are of a simple and functional design which are now considered to be pieces of art in themselves (Criteria A.4, F. 1 & H.1).
The variety of moveable heritage items located throughout the building including furniture, china, flat wear, silverware, napery and accessories, pottery, tapestry and artworks are significant having been specifically designed or purchased for the building as well as being of artistic merit in their own right (Criterion F.1).
When constructed elements of the mechanical and electrical services within the building were considered advanced and innovative, and although many elements have been removed or substantially altered, their incorporation in the building is still of interest today, this included the fire sprinkler system, smoke detectors and fire alarms; interior and signage lighting; and air-conditioning.
The provision of two residential flats, for use by visitors to the bank; squash courts; and firing range were relatively uncommon for the time (all removed 2001). The two doors to the main strongroom were at the time of construction the largest and most technically advanced in the southern hemisphere (Criteria A.4, B.2 & F.1).
The Reserve Bank head office building is associated with successive governors of the Reserve Bank: Dr. H. C. Coombs; J.G. Phillips (KBE); H.M. Knight (KBE DSC); R.A. Johnston (AC); B.W. Fraser and I.J. Macfarlane. The building is also associated with personnel of the Commonwealth Department of Works, Banks and Special Projects branch, responsible for the building's design in particular: C. McGrowther; Profesor (sic) H. I Ashworth; C.D. Osborne; R.M. Ure; F.C. Crocker; G. A. Rowe; as well as E.A. Watts (builders for both stages of construction) and Frederick Ward (furniture designer) (Criterion H.1).
The building has social significance being regarded by the Australian community as the home of the Reserve Bank function and the place where significant economic policy is carried out on behalf of the Nation (Criterion G.1).
5.5 Identified National Historical Themes
The Head Office Martin Place demonstrates a number of historic themes formulated by the Australian Heritage Council (formerly the Australian Heritage Commission), as listed below:
Identified National Theme
Demonstrated by:
Developing local, regional and national economies Financing Australia Raising capital Banking and lending
The Head Office building is physical evidence of the separation of the Reserve Bank of Australia, the development of the Australian economy generally, and its place in a global context.The Museum located within the ground floor of the Head Office building includes text and object to interpret and inform the general public in relation to these functions.
Working Working in Offices
The existing internal configuration of the building is evidence of this theme despite the adaptation or a number of internal areas. The original internal planning demonstrated the integration of work areas, staff training and recreational facilities within a major organisation.The original configuration of the building is documented in architectural drawings and publications contemporary with the opening of the Head Office in 1964.
Developing Australia’s Cultural Life Pursuing excellence in the arts and sciences
The Head Office contains fine examples of artworks especially commissioned for the building. The works were executed following national competitions and are exemplars of their kind, including sculptural works, integral with the building setting and finishes, by: Margel HinderBim Hilder
Designing and building fine buildings
The surviving original fabric of the Head Office, both exterior and internal, is physical evidence of the architectural work of the Commonwealth Department of Works. Banks and Special Projects Branch, and is an excellent example of the Late Twentieth-Century International style in Sydney.The building contains materials and finishes commensurate with an important public building, and the original internal layout of the building reflected contemporary architectural planning in the early 1960s.The garden located adjacent to the Macquarie Street boundary, originally designed by Malcolm Munroe, is an important element in the setting of the Head Office.
5.6 Significance of Elements
The following ranking of significant fabric and spaces is included to assist Reserve Bank of Australia staff to understand building fabric and to implement this management plan: this significance ranking does not have statutory authority.
The management framework below is an internal management tool only. The conservation of all gazetted Commonwealth heritage values is required and must remain a priority. This section should not be interpreted as an attempt to grade the Commonwealth heritage vales by order of significance as they all require conservation under the EPBC Act.
In accordance with The Conservation Plan by Dr James Semple Kerr, the significance of the various component elements of the place has been assessed against the criteria in Section 5.4 of this report, and ranked for the purpose of enabling decisions on the future conservation and development of the place to be based on an understanding of its significance. These assessments are made without regard to the practical considerations that must subsequently be considered when formulating policies. The schedules below identify components that contribute to the overall significance of the Head Office of the Reserve Bank of Australia and its setting, in one of the following relative grades:
Exceptional
High
Moderate
Little
Intrusive
Some elements (including but not limited to those noted below) have been fully degraded by adaptation, and may require restoration or reconstruction to recover their full significance. The categories should be read in the context of the overall cultural heritage significance of the Head Office, Martin Place.
5.6.1 Exceptional Significance
This category includes spaces and fabric with a high degree of intactness that can be easily interpreted, are worthy of inclusion on any register of buildings of significance.
The RBA head office building has heritage significance which has been identified and recognised by various groups and authorities. Detailed inspection of the building has identified particular aspects of the place and a number of specific areas of the building and its surviving interior fitouts which have particular levels of Cultural Heritage Significance deserving recognition in this conservation plan. The aspects and areas considered to have particular significance are as follows:
Building fabric and components in this category includes:
The Integrated Art Works
The integrated art works originally commissioned for the Bank are an important and significant element in the design of the ground level public spaces where the building is approached by pedestrians. The significance relates to:
The level of integration of the art works.
The strong forms that complement the civic qualities of the building and its site.
The quality of the pieces as works of art in their own right.
The 11th Floor general fitout and furniture
The 11th Floor executive area is one of a number of significant sequences of spaces which, though modified has some historic value as part of the original design and value for the surviving original fabric and fittings. The area includes Executive Dining Rooms, Conference Rooms, Board Members Lounge, Office of Senior Board Officer, waiting areas, Board Dining Room and kitchens. Of particular significance are:
The surviving pieces of furniture made especially for the building to be found in rooms throughout this area and including tables, chairs, credenzas, serving tables etc.[36]
The set of Art Deco style Cedar furniture in the central conference room comprising an oval table and 14 chairs with a circular side table, which came from the Commonwealth Bank at the time of separation.
The suite of furniture custom-built for the Governor of the Commonwealth Bank in 1916.
The surviving leather-covered full height doors, stainless steel hardware and timber frames.
Figure 43 - View of the custom-built furniture located in the Governor's Office of the Head Office of the Commonwealth Banking Corporation of Australia, 1916.
Figure 44 - The original furniture has been relocated from the RBA Archives Unit to the Museum.
The 12th Floor fitout
The northeast corner office suite on the 12th floor remains partially intact despite the extensive refitting and replacement of ceilings and lighting, and includes some furniture commissioned for the original executive spaces (1964) including:
The Governor’s suite (office, kitchenette, lavatory, meeting room).
The External Form and Detail of the Building
The building’s overall external design, including the later modifications, is a highly significant aspect of the overall significance of the place. The significance relates to:
The scale and proportion of the building and its component parts.
The use of materials (stone, glass, aluminium) and juxtaposition of details and elements.
The articulation of the podium and tower.
The clean roof line and its free-standing character in this part of the city.
The Ground Floor Public Spaces
Anodised aluminium ceiling.
Marble finishes to walls and wall decorations.
The incised lettering setting out the objectives of the Bank
Bank counter and writing desks.
Spaces in this category include:
The Ground Floor Public Spaces
The entrance terrace, main foyer and public spaces are particularly well resolved pieces of design and are the public interface of the building with the city. The significance of the spaces relates to:
The linear form along the principal street frontage.
The quality of the spatial character being defined by a two-storey volume with its glazed wall to the north and modulated by changes in the floor levels between the central entry and the chambers at either end.
The character of the spaces created by the use of quality materials and integrated art works.
The ceiling panel design.
The marble wall finishes.
Figure 45 - General view of the Banking Chamber located at the ground floor level of the Head Office building.
Figure 46 - View of the ground floor lobby showing security barriers installed c2015. (Source: Sydney Living Museums, 2019)
The Reserve Bank of Australia Board Room
The Reserve Bank Board Room is one of the most significant spaces in the building representing the executive functions of National monetary policy. The significance of the room lies both in its historic associations and in its location in the overall plan and surviving physical fabric and furnishings including:
The Board Table.
The white marble floor finish.
The leather clad full height doors.
Building fabric and components of the Board Room that have been altered include the carpet, door furniture, wall linings, the ceiling and lighting system.
Views and vistas in this category include:
The building is an important part of the presentation of Martin Place and Macquarie Street and in views along both streets
The RBA Head Office building defines the south edge of the eastern section of Martin Place. The significance relates to:
The building’s presentation to Martin Place and views looking eastwards from Castlereagh Street, near the northwest corner of Martin Place.
The quality of the facade designs and use of high- quality materials.
The setback of the tower above the podium.
5.6.2 High Significance
This category comprises items retaining a high degree of original fabric. The item will demonstrate a key element of its significance, and may include alterations that do not detract from the significance of the place.
Building fabric and components in this category includes:
Moveable Heritage furniture
Throughout the building are located a variety of moveable objects with significance for the original and subsequent character of the place. Heritage furniture is managed by RBA Workplace[37], while artworks, museum collection and other specialist collections are maintained by in-house specialist Curators.
The set of 1930s style ‘Chippendale Revival’ office furniture comprising a desk, credenza, table and chairs which came from the Commonwealth Bank at the time of separation.
Spaces in this category include:
The Strong Room doors and wall construction
Located in the building’s extensive basements are the strongrooms originally used for the storage of bullion and cash. These areas have some degree of technical significance for their innovative use of concrete and metal sheet to create an impenetrable surround for the strong rooms. The metal strong room doors were identified at the time as being significant for their size and sophistication.
Views and vistas in this category include:
It contributes to the varied character of the western side of Macquarie Street.
The significance relates to:
The quality of the facade designs and use of high- quality materials.
The setback of the tower above the podium.
5.6.3 Moderate Significance
Elements in this category have little heritage value, but contribute to the overall significance of the item. Altered or modified elements may be included.
Building fabric and components in this category includes:
Lavatory fitouts dating from 1970 or later, unless otherwise noted.
Including cubicle partitions, water closest, hand basins, taps, spouts, paper towel dispensers, hand driers, vanity units, shelving, mirrors, floor finishes.
Floor finishes
Timber parquet floors installed in 1964.
Stone floor finishes in public spaces not mentioned elsewhere in section 5.6 of this report.
Spaces in this category include:
Typical Office suites
The Assistant Governor’s suites located at levels 4, 8, 9, 10 ,13 and 14.
Typical Lift Lobbies and Core areas
The typical floor lift lobbies and core areas, including fire stairs, are parts of the original design which despite some change and reconstruction in the major refurbishment remain intact in terms of their general form and detail. The significance of these areas lies in:
The character of the lobbies created by the marble wall cladding and stainless-steel lift reveals and parquet or stone floor finishes dating from 1964. The use of Australian Native timber panelling for feature walls.
The use of terrazzo flooring and wrought iron balustrades with vinyl clad railings to the interconnecting stairs.
The Deputy Governor’s suite.
Views and vistas in this category include:
There are no views or vistas in this category.
2012 04 05 013 straightened
Figure 47 - Typical office level lift lobby showing original (1964) marble wall finishes and timber wall panelling. The original ceiling was replaced c2000.
5.6.4 Little Significance
This category comprises most of the additions and alterations made to accommodate changing requirements, where these are expedient and of marginal intrinsic worth. Their impact on the significance of the Head Office building ranges from neutral to tolerably adverse.
Building fabric and components in this category includes:
Kitchen fitouts, including sinks, splashbacks, cupboards, cooking equipment, taps and spouts, wall finishes and floor finishes.
Ground floor reception area security gates, c2002.
Fabric dating from 1970 or later unless elsewhere noted, including suspended acoustic ceiling tiles located in open plan-office areas.
Glass balustrade located adjacent to the sculpture by Margel Hinder in Martin Place to comply with BCA.
Carpet finishes, resilient floor finishes, terrazzo floors, timber parquet floors installed as part of the 1970s upgrade works or later.
Spaces in this category include:
Spaces dating from 1970 or later, unless otherwise noted.
Views and vistas in this category include:
There are no views or vistas in this category.
5.6.5 Intrusive Elements
This category comprises those alterations and additions that positively detract from the significance of the Head Office of the Reserve Bank of Australia, and includes fabric that in both materials and workmanship poorly emulates the original.
Building fabric and components in this category includes:
There is no fabric in this category.
Spaces in this category include:
There are no spaces in this category.
Views and vistas in this category include:
There are no views or vistas in this category.
5.7 Curtilage
The heritage curtilage of a place is the extent of the surrounding area which contributes to its heritage significance[38].
The most common type of heritage curtilage coincides with the lot or legal boundary of the property containing the heritage item, or items. The Lot Boundary Heritage Curtilage applies to the Reserve Bank of Australia Head Office building and includes the building footprint together with the open area below the podium to the north and east of the ground floor level, facing Martin Place and Macquarie Street (refer to Figure 1 and Figure 2).
The RBA is one of a cohesive group of buildings with a consistent street wall forming the eastern section of Martin Place. It occupies a prominent corner site, linking the commercial buildings of the Central Business District with the nineteenth and early twentieth century public buildings situated on the eastern side of Macquarie Street. The Reserve Bank has maintained its principal entrance as part of its north façade, despite pedestrianisation and other changes to Martin Place and is a significant feature in views from Martin Place and Macquarie Street.
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Figure 48 - Plan showing the extent of the Reserve Bank of Australia Head Office building in relation to Martin Place and surrounding buildings. Source: ARCHITECTUS, February 2020.
6.0 Heritage Legislation and Management Framework
6.1 Legislative Framework Generally
The Reserve Bank of Australia, as a Commonwealth Government agency, is subject to Commonwealth legislation. The Environment Protection and Biodiversity Conservation Act 1999 is the primary heritage legislation addressed in the management of the Reserve Bank of Australia Head office building, located at 65 Martin Place Sydney.
The Reserve Bank is not required to seek approvals from either Local or State authorities. Nevertheless, general consultation is pursued by the Bank to inform local authorities of major works proposed for the place. The Bank endeavours to comply with relevant State environmental legislation where it does not conflict with Commonwealth legislation.
6.2 Relevant Commonwealth Legislation
6.2.1 Reserve Bank Act 1959 (Cwlth)
The Reserve Bank of Australia is a statutory authority and functions in accordance with the Reserve Bank Act 1959 and other applicable Acts[39]. The functions of the Bank are set out in Sect 10 of the Act:
(1) Subject to this Part, the Reserve Bank Board has power to determine the policy of the Bank in relation to any matter, other than its payments system policy, and to take such action as is necessary to ensure that effect is given by the Bank to the policy so determined.
(2) It is the duty of the Reserve Bank Board, within the limits of its powers, to ensure that the monetary and banking policy of the Bank is directed to the greatest advantage of the people of Australia and that the powers of the Bank under this Act and any other Act, other than the Payment Systems (Regulation) Act 1998, the Payment Systems and Netting Act 1998 and Part 7.3 of the Corporations Act 2001, are exercised in such a manner as, in the opinion of the Reserve Bank Board, will best contribute to:
(a) the stability of the currency of Australia;
(b) the maintenance of full employment in Australia; and
(c) the economic prosperity and welfare of the people of Australia.
Section 74(1) of the Reserve Bank Act requires:
‘…The head office of the Bank shall be at Sydney in the State of New South Wales.’
The continued use of the existing head office building to carry out its legal functions under the Reserve Bank Act is compatible with the continued use of the RBA Head office as a Commonwealth heritage place. The existing building can continue to be adapted to enable the Reserve Bank to carry out its legal functions subject to likely impacts on the demonstrated heritage values of the place.
6.2.2 Environment Protection and Biodiversity Conservation Act 1999 (Cwlth)
The Reserve Bank of Australia Head Office building is owned and controlled by the Commonwealth and is subject to the provisions of the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) and the Environment Protection and Biodiversity Conservation Regulations 2000 (EPBC Regs).
The Reserve Bank of Australia Head Office is, as an Australian government agency, required to identify and protect Commonwealth heritage values of properties its ownership. The RBA Head Office building is included on the Commonwealth Heritage List for demonstrating Commonwealth heritage values, and is obliged under S341ZC of the EPBC Act to ‘…minimise adverse impact on identified Commonwealth Heritage values of the place. Changes to the RBA Head office building must also take into consideration potential impacts on other Commonwealth Heritage places or National Heritage places.
6.2.3 Commonwealth Heritage Management Principles
Schedules 5B and 7B of the Environment Protection and Biodiversity Conservation Regulations 2000 (Cwlth) set out Commonwealth Heritage management principles. They encourage the identification of a place’s heritage values and their conservation and presentation through the application of the best available skills and knowledge. They also encourage community (including Indigenous community) involvement and co-operation between the various levels of government.
Under Section 341Z of this legislation, the Reserve Bank of Australia is obliged to manage the heritage significance of the place consistent with Commonwealth Heritage management principles, to advise and seek approval from the Minister prior to any changes being made to the place, change of use or divestment of the property by the Reserve Bank of Australia. This Heritage Management Plan has been prepared to address the management of the place by made under section 341S of the EPBC Act.
The Reserve Bank of Australia as owner of 65 Martin Place Sydney NSW 2000, ‘the place', is also obliged under the EPBC Act to undertake the following:
Assist the Minister and the Australian Heritage Council in the identification, assessment and monitoring of the place’s Commonwealth heritage values (Section 341Z);
Prepare a Heritage Strategy for managing the places it owns or controls to protect and conserve their Commonwealth heritage values, submit a copy to the Minister and periodically review the Strategy (Section 341ZA);
Produce a register that sets out the Commonwealth Heritage values of the place and submit a written report to the Minister (Section 341ZB);
Minimise adverse impact on identified Commonwealth Heritage values of the place (Section 341ZC); and
Ensure the Commonwealth Heritage values of the place are protected in the event of the RBA Head office being sold or leased (Section 341ZE).
Heritage Management Plans for Commonwealth Heritage listed places are legislative instruments for the purposes of the Legislation Act 2003. Under section 341S of the EPBC Act, the Reserve Bank of Australia is responsible for registering the HMP as a legislative instrument on the Federal Register of Legislation to be compliant with its obligations under the Act.
6.2.4 Approval process
The Consent Authority for works to the building is the Department of Environment and Energy under the Environmental Protection and Biodiversity Conservation Act 1999 (EPBC Act 1999). The Reserve Bank, as a Commonwealth agency must not take an action that has, will have, or is likely to have an adverse impact on Commonwealth Heritage values of a Commonwealth Heritage place unless there is no feasible and prudent alternative and action is taken to mitigate the impacts[40].
Actions on, or impacting on, Commonwealth land, and actions undertaken by Commonwealth agencies, are subject to the requirements of the EPBC Act. Under the Act, actions on Commonwealth land or undertaken by a Commonwealth agency should be self-assessed to determine if they are likely to have a significant impact on the environment, the definition of which includes heritage values of places.
The process of self-assessment outlined in the Significant Impact Guidelines 1.2 (Department of Sustainability, Environment, Water, Population and Communities 2013) will be followed by the RBA or a heritage specialist before any proposed actions are undertaken. This will assist the Bank in deciding whether or not the action is likely to have a significant impact on the environment.
It is the Bank’s responsibility as the person undertaking an action to consider the extent of impacts on the environment, including heritage values. If the impacts are likely to be significant, or if the Bank is unsure, the action will be referred to the Department of the Environment and Energy. Only a referral decision from the Department of the Environment and Energy constitutes legal approval under the EPBC Act. If an action is referred, the Minister for the Environment will decide whether it is likely to have significant impact on the environment and whether approval is therefore required under the EPBC Act. If the Minister decides that the action is likely to have a significant impact, it will be deemed a controlled action and be subject to the EPBC Act assessment and approval process. Controlled actions are defined as:
A proposed action that is likely to have a significant impact on: a matter of national environmental significance; the environment of Commonwealth land (even if taken outside Commonwealth land); or the environment anywhere in the world (if the action is undertaken by the Commonwealth).[41]
The Bank will document all decisions and reasoning made during the self-assessment process, whether or not it decides to refer any proposed actions. The Bank will contact the Heritage Branch at the Department of the Environment and Energy (heritage@environment.gov.au ) for information or to seek comments on self-assessment for proposed actions. Where possible, it will provide self-assessment documentation to the Department for their records as part of best practice heritage management.
The Bank has plans to undertake refurbishment of its Head Office Building in Sydney. These works will be self-assessed prior to them being carried out to determine if they are likely to have a significant impact on the environment on Commonwealth land, the definition of which includes heritage values of places.
6.2.5 Assessments of Heritage Impact
The Reserve Bank of Australia will undertake building approvals in a manner consistent with its approved Heritage Strategy. In all instances, that is major, medium or minor works, the Workplace Department will undertake a self-assessment to determine the likely impact of any proposed works on the Commonwealth Heritage values identified for heritage places. or Specialist heritage advice will be sought where there is uncertainty about the likely impacts of proposed works. The RBA classifies projects as follows:
Major Capital Works
Major capital works are classified by the Parliamentary Standing Committee of Public Works (the Public Works Committee) as projects with an estimated value of over $15 million and must be submitted to the Public Works Committee (PWC). All major capital works are listed on the PWC’s website and interested persons and organisations are invited to make submissions. The PWC report is available to the public following tabling of the matter in Parliament.
Medium Works
Building projects undertaken by the Bank, as an Australian Commonwealth agency, having an estimated cost of between $2 million and $15 million (excluding GST) are classified by the Public Works Committee as ‘medium works’. The Bank is required to notify the Public Works Committee of such works prior to the calling of tenders to undertake those works.
Minor Works
Minor repairs and maintenance works are regularly undertaken as part of the cyclical maintenance program implemented by the Bank. Decisions regarding works and repairs are guided by and consistent with the policies and recommendations contained in the Heritage Management Plan specific to each Commonwealth Heritage listed place.
In all instances, that is major, medium or minor works, the Workplace Department will undertake a self-assessment to determine the likely impact of any proposed works on the Commonwealth Heritage values identified for heritage places or refer the proposal to an independent Heritage Specialist for an assessment.
The EPBC Act does not define major and minor works. In undertaking a self-assessment of any works, the Department of the Environment and Energy recommends considering if the works are likely to:
permanently destroy, remove or substantially alter the fabric (physical material including structural elements and other components, fixtures, contents, and objects) of a heritage place
involve extension, renovation, or substantial alteration of a heritage place in a manner which is inconsistent with the heritage values of the place
involve the erection of buildings or other structures adjacent to, or within important sight lines of, a heritage place which are inconsistent with the heritage values of the place
substantially diminish the heritage value of a heritage place for a community or group for which it is significant
substantially alter the setting of a heritage place in a manner which is inconsistent with the heritage values of the place, or
substantially restrict or inhibit the existing use of a heritage place as a cultural site?
A copy of the assessment is to be retained as part of the maintenance file for the specific place. The EPBC Act sets out significant penalties for actions that have a significant impact on Commonwealth or National Heritage values of a place.
6.2.6 Self-Assessment Process
The RBA is responsible for carrying out works to conserve, maintain and improve the amenity and quality of its building and site, and has obligations to minimise any adverse impact on heritage values including, but not limited to, the ongoing conservation management and maintenance of the main building’s facade, public spaces, integral artworks, and bespoke furniture designed by Fred Ward.
The EPBC Act requires the RBA to undertake a ‘self-assessment’ to determine if any proposed works are likely to have an adverse or significant impact on the Commonwealth Heritage values of the place. Under S341ZC of the EPBC Act, the RBA is obliged to ensure that it does not take any action that is likely to have an adverse impact on the identified Commonwealth heritage values of the Head Office building, unless:
there is no feasible or prudent alternative to taking that action; and
all measures that can be reasonably taken to mitigate the impact of the action on those values are taken.
The self-assessment process is summarised in Figure 49. The Department provides advice on self-assessments in its document titled Actions on, or impacting upon, Commonwealth land, and actions by Commonwealth agencies: Significant impact guidelines 1.2[42].
Image unavailable in extracted text
Figure 49 - Diagram summarising the self-assessment process. Source: Department of the Environment and Energy, https://www.environment.gov.au
The Aboriginal and Torres Strait Islander Heritage Protection Act 1984 protects areas and/or objects which are of significance to Aboriginal people and which are under threat of destruction. The Act can, in certain circumstances override state and territory provisions, or it can be implemented in circumstances where state or territory provisions are lacking or are not enforced. A significant area or object is defined as one that is of particular importance to Aboriginal people according to Aboriginal tradition. The Act must be invoked by or on behalf of an Aboriginal or Torres Strait Islander or organisation.
The Act is not relevant to this study as there are no identified Aboriginal heritage values associated with the site of the Reserve Bank of Australia Head Office building.
6.3 Heritage Protection in New South Wales
6.3.1 Heritage Act 1977
The Heritage Act 1977 provides for the protection of heritage items identified as being of State heritage significance. These items are listed on the NSW State Heritage Register (SHR) as required under s31 of the Heritage Act 1977.
The Heritage Council of NSW, or its delegated authority, is the consent authority for applications to alter items listed on the NSW SHR, made under Section 60 of the Heritage Act 1977.
The Reserve Bank of Australia Head Office, located at 65 Martin Place Sydney, is not included on the State Heritage Register.
6.3.2 Environmental Planning and Assessment Act 1979
The City of Sydney Council is the consent authority for applications to alter items listed on Heritage Obligations under the Sydney Local Environmental Plan 2012 (LEP). The LEP provides the statutory basis for the conservation and control of development and other activities that may affect the heritage value of a place.
The Reserve Bank is identified as a heritage item on Schedule 5 attached to Sydney Local Environmental Plan 2012 and is protected under the Environmental Planning and Assessment Act 1979. The Reserve Bank of Australia Head Office building is located on land under the control of the Commonwealth and, as such, NSW legislation does not legally apply to this site.
The Bank endeavours to comply with relevant State environmental legislation where it does not conflict with Commonwealth legislation, and will engage in general consultation with local authorities in relation to major works proposed for the place.
6.4 Non-statutory Heritage Listings
6.4.1 National Trust of Australia (NSW)
The Reserve Bank of Australia Head Office building is classified as an item of heritage by the National Trust of Australia (NSW). Listing by the National Trust does not impose any statutory requirements on the building or its’ Owner. Places and items classified by the National Trust of Australia (NSW) and listed in the Register are ‘…components of the natural or cultural environment of Australia that have aesthetic, historic, scientific or social significance or other special value for future generations, as well as for the present community’.
The purpose of the National Trust Register is to alert responsible authorities, property owners and the public so that those concerned may adopt measures to preserve the special qualities that prompted the classification.
6.4.2 Australian Institute of Architects (NSW)
The Reserve Bank of Australia Head Office building is included as Item No. 4702937 on the ‘Register of Significant Architecture’ maintained by the NSW Chapter of the Australian Institute of Architects. Inclusion on the register has no statutory implications for the Reserve Bank of Australia but is recognition of the profession’s evaluation of the place. Consultation with the Australian Institute of Architects is not mandatory for Commonwealth agencies.
6.5 Best Practice Guidance
The Burra Charter (The Australia ICOMOS Charter for Places of Cultural Significance, 2013) provides guidance for the conservation and management of places of cultural significance (cultural heritage places). The Charter sets a standard of practice for those who provide advice, make decisions about, or undertake works to places of cultural significance, including owners, managers and custodians.
The Burra Charter defines various terms and identifies principles and procedures observed in conservation work, and underpins heritage management in Australia.
The Charter can be applied to all types of places of cultural significance including natural, Indigenous and historic places with cultural values. Other relevant best practice guidelines include:
Any changes in the use of the building may result in a need to upgrade certain facilities to meet such obligations as may be imposed by other statutory legislation. Matters may be identified in this study that may require modification includes, but is not limited to, the following:
National Construction Code of Australia (NCCA), including the Building Code of Australia.
Fire safety requirements.
Ingress and egress from the building.
Disability Discrimination Act 1992.
Occupational Health and Safety
Certain aspects of the building may be eligible for exemptions from the NCCA where upgrading may result in the loss of heritage significance. These issues may be addressed directly with the relevant consent authority to negotiate a satisfactory resolution where necessary to ensure the significance of the place is retained unless there is no other feasible and prudent alternative.
6.7 Key Conservation Issues
6.7.1 Condition of Commonwealth Heritage values
The Reserve Bank of Australia Head Office building demonstrates Commonwealth Heritage values and is recognised having landmark qualities as a component of Martin Place. The significance of the Head Office building is, in part embodied in its intact fabric, and its role in the development of the Australian monetary policy in the late twentieth century. Listings for the Reserve Bank of Australia Head Office make specific reference to its form, façade treatment, and integration of public art within the building and its setting.
The significance of the RBA Head Office should inform the preparation of any proposal for changes to the site, such that decisions regarding the nature and extent of change ensure the established significance is maintained. Decisions about works to the place, whether it is maintenance, repairs or more extensive adaptation works, must take into consideration the impact of those works on its Commonwealth heritage values, both as a whole and on individual components. New works to the place should not diminish any aspect of its cultural significance.
Constraints arising from this assessment of the significance of the place will involve the maintenance of the building’s visual character, as well as the conservation of the important aspects of the individual elements and surviving spaces, that contribute to that significance.
Opportunities arising from the assessment of significance include the potential for some adaptation to meet changing community standards and expectations, and regulations including disabled access, fire safety and Workplace Health and Safety requirements. This would be through sympathetic adaptation of secondary spaces within the main building or alternatively extensions or alterations to the exterior of the building, largely concealed from view from the principal Martin Place elevation.
Under the EPBC Act., the RBA is obliged to minimise adverse impacts on the National Heritage values of a National Heritage place or the Commonwealth Heritage values of a Commonwealth Heritage place. The Reserve Bank of Australia Head office building is located near Hyde Park Barracks, which is included on both the World Heritage List and the National Heritage List. The subject site is also located near the ‘Governors’ Domain and Civic Precinct’ which has been nominated for inclusion on the National Heritage List.
6.7.2 Owners Requirements and management of the Place
Under Section 74 of the Reserve Bank Act 1959, the Reserve Bank of Australia is obliged to maintain its Head Office in Sydney in the State of New South Wales. The site at 65 Martin Place was selected, in part, for its proximity to other banking and financial institutions located in or near Martin Place in the 1950s, a tradition that continues today.
The Head Office building has undergone a series of refurbishments since it was constructed in the early 1960s, including an addition to the southern side of the building in the 1970s. Previous works have generally concentrated on staff accommodation. The engineering systems within the RBA building were identified by consultants as having reached or are nearing the end of their expected service life, although some services have been replaced on an ad hoc basis.
The Workplace Department envisage minor changes to non-significant fabric to enable office accommodation and staff facilities to be upgraded and adapted periodically without materially affecting the fabric that demonstrates Commonwealth heritage values, including exterior cladding, integral artworks, surviving original finishes and detailing to public and circulation spaces including the original ground floor entrance lobby and Banking Chamber. The building was constructed between 1962 and 1964, and extended in the late 1970s. Subsequent changes to the Building Code of Australia have resulted in a number of non-compliances, particularly in relation to current allowable glass wind-loadings and energy efficiency requirements.
Major refurbishment works carried out in 2001-2003 were referred to the Minister under the EPBC Act and the Parliamentary Standing Committee on Public Works[43]. held in November 2000[44] . Issues raised at that time by the Council of the City of Sydney, the National Trust of Australia (NSW) and other stakeholders were addressed prior to the major refurbishment and upgrading works, including the preparation of a Conservation Management Plan (CMP). That document was subsumed into the Heritage Management Plan: Reserve Bank of Australia (NBRSARCHITECTURE, 2007)[45]. Works undertaken in 2001-2003 were designed to assist the Bank to continue its occupation of the building for fifteen years.
Subsequent works to the RBA Head Office building have been referred to the Minister for advice/approval, or self-assessed by the Bank or independent Specialist Consultants, prior to works being carried out, to minimise likely impacts on the identified Commonwealth Heritage values of the place.
Works undertaken by the RBA, in association with specialist conservators, since 2005 have included:
Replacement of lift cars and non-compliant lift call buttons.
Replacement of ground floor glass with safety glass and strengthening of window frames.
Replacement of HVAC equipment at the end of its operational life.
Upgrading security at Ground floor vestibule and conservation of granite floor.
Relocation of reception desk to the location shown in documentary evidence.
Preparation of an Inventory of Moveable Heritage Furniture and conservation of heritage furniture items.
Replacement of carpet and resilient floor finishes.
Replacement of suspended acoustic ceiling panels.
Repainting of previously painted walls.
Conservation of Boardroom and upgrading of Executive level including the reconstruction of demountable linen panels.
Adaptation of open-plan office areas and adaptation of under-utilised spaces.
Upgrading of staff amenities throughout the building.
Repair of timber parquetry floor in basement strong room.
Installation of computer floor over timber parquetry in basement.
Minor repairs to Phillip Street secure entrance.
6.7.3 Ongoing Maintenance
The Head Office building of the Reserve Bank of Australia has been subject to a cyclical maintenance programme since it was completed in 1964, and is in good physical condition. Reports undertaken by consultants in 2014-2018 identify a number of non-compliance issues the Bank must address including façade works to address statutory requirements for wind-loading on windows and the need for thermal breaks in façade components.
Despite some adaptation of interior spaces and changes to the exterior of the Head Office many of the original finishes have survived intact, particularly at ground floor level and in lift lobbies on various levels. A number of the building components, such as the heating, air conditioning and ventilation services, were designed with a limited life and were intended to be replaced or adapted when necessary. The RBA has a duty of care to provide a safe and equitable workplace for its staff, and will progressively address non-compliances with Section D Access and Egress (Part D3 Access for people with a disability) of the National Construction Code of Australia, subject to impacts on identified Commonwealth Heritage values[46].
The Workplace Department will continue to maintain records showing the date and extent of changes to the Head Office building and fabric. The records would also include details of the consultants and tradesmen engaged to carry out those works.
6.8 Future Development
The Reserve Bank of Australia intends to continue to occupy the current site, at 65 Martin Place Sydney, for the foreseeable future, contingent on adaptation of the building to address statutory building requirements and upgrade internal spaces to meet current operational and standard commercial office space requirements.
The RBA Head Office building has been extended and adapted since it was opened in 1964, resulting in the removal of original building fabric and finishes, including changes to both the interior and exterior of the building. The addition increased the north-south depth of the building, resulting in additional reliance on artificial lighting in some spaces and pairs of columns limiting some internal office configurations.
In 2018 the Reserve Bank of Australia commissioned consultants to investigate the feasibility of upgrading its current premises to enable the Bank to continue to be occupy the premises for the next twenty-five years, as opposed to relocating the head office to new premises. Based on those recommendations the RBA has confirmed its intention to continue occupying the building located at 65 Martin Place Sydney for the foreseeable future.
To this end, this Heritage Management Plan has been briefed to consider the following issues:
Potential location and scale of an extension to the building;
Improving energy efficiency;
Non-compliance issues and replacement of services at the end of their operational life;
Refurbishment/retrofitting of façade components to address wind loading requirements;
Replacement of float glass in windows;
Re-configuration of internal spaces to meet operational requirements;
Upgrading of office accommodation to meet current office standards and commensurate with office accommodation within Sydney CBD;
Relocation of services and risers to a new service core, infill of redundant risers to increase the internal floor area of the building;
Relocation of fire stairs to enable direct access to street level; and
Access to premises requirements.
The Bank is currently working on plans for a major upgrade of its Head Office building. While the building has been well maintained, many aspects of the core infrastructure are approaching end of life and the building falls short of current standards in some important areas.
Works currently under consideration include an addition to the existing service core to the south side of the Head Office building to accommodate building services, new fire stairs and lavatories. New structure would use existing air-space owned by the Bank and would be consistent with the original building design which had an external services area that was later encapsulated by extensions in the 1970s. An extension would allow the Bank to replace end-of-life infrastructure and substantially improve the sustainability and performance of the building services. Future changes to the exterior of the Head office building would be designed to minimise visual impacts and likely impacts on Commonwealth Heritage values.to maintain its heritage values; only the windows would be replaced to meet current safety standards.
The Bank intends to reconfigure internal areas and construct internal stairs to improve connectivity between departments and efficient movement of staff. Other changes would be undertaken to ensure the office accommodation meets current office standards and reflect current operational requirements, including spaces for collaboration and improved conference facilities and staff amenities . The internal layout would be re-configured with fewer built spaces around the northern, eastern and western sides of the building to increase natural light in open office areas. Interior spaces with significant heritage value, including the Boardroom and Governor’s Office would be retained and conserved.
Future adaptive re-use options for the site will be informed by this Heritage Management Plan and the CHL, such that decisions regarding the nature and extent of change should ensure that the established significance of the place, as stated in the Statement of Significance and identified as key attributes of the place in the relevant CHL listing, is retained. Future works should take into consideration the attributes identified for each criterion in CHL. Place ID 105456, and generally maintain spaces ranked as having Exceptional or High heritage significance in this Heritage Management Plan including the Governors suite, the Boardroom, public spaces visible at ground floor level, including artworks, and significant floor, wall and ceiling finishes.
Opportunities for potential additions to the Head Office building are limited to the south side of the building in the area occupied by the 1970s addition, and further internal re-configuration of the building. The construction of additional floors may be appropriate to assist the Bank to continue to occupy its current site, subject to an assessment of likely heritage impacts on the RBA Head Office and heritage items in the vicinity.
Part 6.0 - Reserve Bank of Australia Head Office, 65 Martin Place, Sydney Heritage Management Plan 2020 - Heritage Legislation and Management Framework | Zoe