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Who it affects (main actors and who pays)

• Who pays / carries out work: the lessee / owner (West Block Trust / Geocon and any hotel operator) is the primary payer and implementer of the HMP obligations (implementation table assigns most tasks to the West Block Trust, Geocon or future hotel operator).
• Who decides / who has approval power: the Department of the Environment and Energy (DoEE) for EPBC approval/referral decisions; the National Capital Authority (NCA) for works in the Parliamentary Zone; ActewAGL for access and safety requirements for the Dugout substation; and Parliament / Joint Standing Committee for certain Parliamentary Zone works under the Parliament Act.
• Other affected parties: heritage bodies and special interest groups (National Trust, Walter Burley Griffin Society), Traditional Owner representatives, the general public (access and interpretation), and utilities/service providers.

Why it matters (official rationale, attributed and then tested against trade‑offs)

Official purpose-claim: the plan exists to identify and conserve the place’s Commonwealth Heritage values (historic associations with early federal administration and WWII communications; architectural Federal Capital style; and the formal 1920s landscape), and to provide a management framework to guide conservation and any adaptive reuse (notably the proposed hotel conversion).

Practical implications, incentives and trade‑offs:

• Who benefits: the owner stands to realise private commercial value (hotel conversion is the planned reuse) but only if they accept the conservation constraints. The public benefit (conserved heritage and public interpretation) is retained by statutory listing and the HMP.
• Who bears the cost: the lessee/owner carries the costs of conservation works, cyclical maintenance, arboriculture, hazardous material management (asbestos, lead paint) and statutory compliance (EPBC referrals, NCA approvals). Those costs reduce potential returns from redevelopment and limit the scale/position of new development.
• Behavioural effects: the HMP channels future activity toward conservation‑sensitive options — interiors are the more flexible area for change, while external fabric, key internal elements and landscape/tree features are to be retained. Developers will prioritise adaptive reuse schemes that minimise external alteration and that can fund heritage works as part of the project economics.
• Regulatory complexity and compliance burden: proposals for change are subject to overlapping controls (EPBC Act/DoEE, NCA under the National Capital Plan, Parliament Act processes, Crown Lease conditions, Utilities Act obligations, and building law including NCC and DDA accessibility rules). That produces multiple approval gates and compliance costs, and may lengthen project timelines and require specialist consultants.
• Trade‑offs between safety/modern standards and heritage: bringing the building into modern use (fire safety, disability access, NCC compliance, removal of hazardous materials) will often require interventions that must be balanced to avoid loss of significant fabric (Policy 13, Policy 4). The HMP explicitly recognises some tensions and calls for specialist heritage advice.

Implementation risks and constraints

• Delivery risk: the plan depends on the owner properly funding and delivering cyclical maintenance, hazardous material remediation, and specialist conservation work; failure risks loss of fabric or future enforcement action by DoEE.
• Project risk: multiple approval bodies and legacy easements (ActewAGL access to the Dugout) limit options and may constrain construction sequencing or footprint (Crown Lease GFA limit, NCP height/bulk policies, Utilities Act 5‑metre clearance around substation).
• Conservation vs viability: the HMP protects key views, tree plantings and building envelope, which may reduce the developable volume or usable GFA a hotel operator can deliver; that may require creative commercial trade‑offs (e.g. build smaller new accommodation to the east, fund major conservation works from hotel revenue).

Concrete consequences (behavioural summary)

• The lessee must follow the HMP: prepare and implement maintenance, monitoring and training; consult stakeholders; obtain approvals for any action that might materially affect heritage values; and fund conservation works and interpretation.
• The lessee cannot freely redevelop: external form and certain landscape elements are to be retained and any significant change may trigger EPBC referral and NCA/Parliament processes.
• Utilities and safety obligations (ActewAGL) continue to have priority for access to the Dugout substation and constrain adjacent works.

Net effect (mechanically)

The plan converts the CHL listing and lease conditions into a detailed, actionable management regime that binds the lessee to conserve identified heritage attributes, to manage risks, and to accept layered statutory oversight. It enables adaptive reuse (including a hotel) subject to those conservation constraints and to approvals where changes are likely to have a significant impact on Commonwealth Heritage values.

(Primary legal hooks and references used in the plan: made under EPBC Act s.341S; prepared to satisfy Schedules 7A and 7B of the EPBC Regulations; Crown Lease Clause 3 obligations; NCP/NCA controls in the Parliamentary Zone; Utilities Act access for the Dugout.)

Cover:  Oblique aerial photograph looking south-east at West Block (then Secretariat no. 2) from Commonwealth Avenue, 1928 (Source: National Archives of Australia)

TABLE OF CONTENTS

LIST OF FIGURES

PROJECT TEAM

ACKNOWLEDGEMENTS

EXECUTIVE SUMMARY

1.0 INTRODUCTION

1.1 Background and brief

1.2 Identification of the place

1.2.1 Note regarding orientation

1.3 Parliamentary Zone

1.4 Methodology and document structure

1.5 Statutory heritage controls

1.5.1 Environment Protection and Biodiversity Conservation Act 1999

1.6 Non-statutory heritage listings and classifications

1.6.1 National Trust of Australia (ACT)

1.6.2 Register of the National Estate

1.6.3 Register of Significant Twentieth Century Architecture

1.7 Consultation with Aboriginal and Torres Strait Islander people

1.8 Social values

1.9 Limitations

2.0 UNDERSTANDING THE PLACE

2.1 Pre-European settlement

2.2 The Griffin plan for Canberra

2.3 Early planning for Canberra (1912-1925)

2.3.1 Walter Burley Griffin, Federal Capital Director of Design and Construction (1913-20)

2.3.2 The Federal Capital Advisory Committee (1921-24)

2.3.3 Federal Capital Commission (1925-30)

2.4 The Parliament House Secretariat group (1922-28)

2.4.1 Design and construction

2.4.2 John Smith Murdoch (1862-1945)

2.4.3 Landscaped setting

2.4.4 Charles Weston (1866-1935)

2.5 West Block, 1927-38

2.5.1 Alterations, 1927-38

2.6 World War II, 1940-45

2.6.1 The Dugout

2.6.2 Alterations and additions, 1940-46

2.7 Post-World War II 1946-60s

2.7.1 Alterations and additions, 1946-60s

2.8 Refurbishment, 1970s-80s

2.8.1 Alterations and additions, 1970s-80s

2.9 Recent history, 1988-present

2.10 Existing conditions

2.10.1 Site overview

2.10.2 West Block

2.10.3 The Dugout

2.10.4 Landscaped setting

2.10.5 Views and visual relationships

3.0 ASSESSMENT OF SIGNIFICANCE

3.1 Assessment of historic value

3.1.1 The Commonwealth of Australia

3.1.2 Canberra as the National Capital

3.1.3 The Dugout

3.1.4 Associations

3.2 Assessment of aesthetic value

3.2.1 The Federal Capital style

3.2.2 Landscaped setting

3.3 Assessment of social value

3.4 Assessment against Commonwealth Heritage criteria

3.5 Statement of significance

3.5.1 Summary Statement of Significance

3.5.2 Comment

3.6 Attributes related to significance

4.0 OPPORTUNITIES AND CONSTRAINTS

4.1 Implications arising from significance

4.2 Legislation

4.2.1 Environment Protection and Biodiversity Conservation Act 1999 (Australia)

4.2.2 Commonwealth Heritage List

4.2.3 Australian Capital Territory (Planning and Land Management) Act, 1988 (Commonwealth)

4.2.4 Parliament Act, 1974 (Commonwealth)

4.2.5 Utilities Act 2000 (ACT)

4.2.6 National Construction Code (BCA) compliance

4.2.7 Disability Discrimination Act, 1992

4.3 Crown Lease

4.4 Stakeholders

4.4.1 Department of the Environment and Energy

4.4.2 National Capital Authority

4.4.3 Aboriginal and Torres Strait Islander people

4.4.4 Associations and special interest groups

4.4.5 General public

4.5 Condition and presentation of built fabric

4.6 Condition and presentation of setting

5.0 CONSERVATION POLICIES AND MANAGEMENT GUIDELINES

5.1 Definitions

5.2 General policies

5.3 Conservation policies

5.4 Use, adaptation and change

5.5 Management policies

5.6 Implementation plan

5.6.1 Monitoring of implementation

BIBLIOGRAPHY

ENDNOTES

APPENDIX A  HERITAGE CITATIONS

APPENDIX B  HISTORIC DRAWINGS AND DOCUMENTATION

LIST OF FIGURES

Figure 1 Aerial view of the Parliamentary Triangle: West Block is indicated (17 March 2018)

Figure 2 Plan of survey for Block 3, Section 23 Parkes (part)

Figure 3 Aerial view of West Block and its setting: the Dugout is indicated

Figure 4 The Parliament Zone is hatched

Figure 5 The Government Group: detail of the Griffin’s competition entry, 1911

Figure 6 View looking south along the Land Axis from Mount Ainslie, rendering by Marion Mahony Griffin for the 1911 competition

Figure 7 The Departmental Board plan for Canberra, 1912 (part)

Figure 8 Aerial view of south Canberra, 1928: the National Triangle (part) is visible to the left

Figure 9 View of West Block from the north-west, 1929: note the corner balconies and verandahs

Figure 10 View looking south from Mount Ainslie, 1927: the area now known as Anzac Parade is in the centre-ground, with East and West blocks to either side of the Provisional Parliament House

Figure 11 Detail of ‘Permanent Planting for the Governmental Group’, 1928, Commonwealth Avenue (part) is to the left: ‘10’ indicates Cedrus deodara (Himalayan cedar) and ‘9’ indicates Cedrus atlantica (Atlantic cedar)

Figure 12 View looking south-east along Commonwealth Avenue, c. 1940s, with cedar plantings maturing: West Block is visible to the rear

Figure 13 Oblique aerial looking south-west over the Parliamentary Gardens, c. 1928: West Block is visible to the rear of the Provisional Parliament House

Figure 14 Detail of the oblique aerial c. 1928: note the avenue of trees aligned to the north elevation of West Block, and the symmetrically-positioned sentinel poplars either side of Queen Victoria Terrace

Figure 15 Oblique aerial, 1928

Figure 16 Aerial view of West Block, 1950

Figure 17 Public servants in the Prime Minister's Department, West Block, 1928

Figure 18 Plans for the National Library at West Block, 1926

Figure 19 Proposed temporary building for the Cables Branch (unbuilt), 1943

Figure 20 ‘D Block’, pictured 1954, as viewed from the south-east

Figure 21 Proposed additional office accommodation and new main entrance, West Block, 1945

Figure 22 New main entrance to West Block in 1959, showing the original signage ‘Commonwealth Office West Block’

Figure 23 Ventilation and heating was installed at the ‘Dugout’ in 1943, for the adaptation of the air raid shelter to accommodate a Typex decoding machine

Figure 24 East elevation of B Block, 1944: an external staircase provided access into the building from the Dugout

Figure 25 West block – site plan, 1948, showing the extensions made to A block

Figure 26 Sequential development of West Block, ground floor

Figure 27 Sequential development of West Block, First Floor

Figure 28 Sequential development of West Block, Second Floor

Figure 29 Sequential development of West Block, Third Floor/Roof Plan

Figure 30 Ventilation and heating was installed at the ‘Dugout’ in 1943, for the adaptation of the air raid shelter to accommodate a Typex decoding machine

Figure 31 Dugout: view looking north, with the original west elevation at right, and the 1980s screen wall at left

Figure 32 West elevation of the Dugout: the 1980s screen wall is in the foreground

Figure 33 Tree-lined vista extending north from A Block: view looking south to West Block

Figure 34 Native plantings to the east and south-east of West Block

Figure 35 View of West Block from the car park to the east

Figure 36 View of West Block from Commonwealth Avenue, looking south

Figure 37 View of West Block, south elevation, from the slip road to State Circle

Figure 38 West Block (north elevation) as seen from the tree-lined pathway to the north

Figure 39 Typex cypher machines of the type housed in the Dugout, operated by the Women's Auxiliary Air Force (UK)

Figure 40 Mount Stromlo Observatory, established 1924

Figure 41 Albert Hall, Canberra, 1928

Figure 42 Melbourne and Sydney buildings, Civic (1926-27)

Figure 43 Detail of Howard’s vision for a ‘Garden City’

Figure 44 Designated Area Precincts: the Parliamentary Zone is identified as precinct 1

Figure 45 Parliamentary Zone, Indicative Development Plan, detail of the Parliamentary Executive, Campus A (‘H’ is Magna Carta Place, and ‘I’ is Constitution Place)

Figure 46 Perspective view of the Parliamentary Zone ‘campuses’ looking south-west: West Block is indicated

Figure 47 Significant trees and landscape character areas

Figure 48 West Block: heritage curtilage, showing the curtilage extending toward East Block

Figure 49 West elevation of West Block (part), c. 1928: the pull-down awnings in boxed casings were an early addition

Figure 50 West elevation of West Block (part), 1972

Figure 51 Aerial view of West Block: the location of an indicative building envelope is in pink

Figure 52 Lettering reading ‘Commonwealth Offices West Block’ was added over the main entrance in the early post-World War II period

Figure 53 Detail of ‘Permanent Planting for the Governmental Group’, 1928, with the original structured arrangement indicated

Figure 54 Existing interpretation at West Block

PROJECT TEAM

Adam Mornement, Associate Principal, Lovell Chen

Peter Lovell, Director and Founding Principal, Lovell Chen

Felicity Strong, Heritage Consultant, Lovell Chen

Michael Cook, Heritage Consultant, Lovell Chen

Brigitte Samwell, Graphic Design, Lovell Chen

ACKNOWLEDGEMENTS

Eric Martin, Managing Director, Eric Martin and Associates

EXECUTIVE SUMMARY

This Heritage Management Plan (HMP) for West Block and the Dugout (generally referred to here as West Block) at Block 3, Section 23 Parkes (part), Canberra was commissioned by the Geocon Group.  The company signed a 99-year Crown Lease for the property on 20 November 2017.  It plans to adapt the redundant three and four-level office building at the site as a hotel.

West Block is included in the Commonwealth Heritage List (CHL place ID 105428), which is established under the Environment Protection Biodiversity Conservation Act 1999 (EPBC Act).  This HMP has been prepared in accordance with Schedule 7A of the Commonwealth Environment Protection Biodiversity Conservation Regulations, 2000: ‘Management Plans for Commonwealth Heritage Places’.  The overarching objective of Schedule 7A of the EPBC Act is to provide frameworks to inform the future conservation and management of the cultural heritage values of places included in the Commonwealth and National heritage lists.  This document also follows the principles and processes set out in heritage best practice guidelines, including the Burra Charter (2013). 

Overview of the asset

West Block was designed in 1925, built in 1926-27 and was in use from August 1927.  It formed part of the Parliament House Secretariat group, which also includes East Block and the Provisional Parliament House. 

West Block comprises a series of four three-storey wings (or blocks) of varying footprint connected on a north-south axis.  It was designed in the interwar Stripped Classical style (also referred to as Modern Renaissance).  Distinguishing characteristics of the architectural language include horizontal massing, symmetrical façades divided into vertical bays, classical proportions and a general absence of applied detail.  It was a pragmatic and well-resolved solution to the challenge of accommodating a variety of official uses and operations within a tight timeframe.  The building has been subject to incremental change since 1937-38, when the first major works were carried out, including infilling of the original corner verandahs and balconies.  The last phase of external alterations was completed in 1948.

There is a triangular at-grade car park to the west of the building, which is contemporary with the site’s establishment and is within Block 3, Section 23 Parkes (part).  A larger car park to the east of West Block, which dates from the late-1950s and is located on higher ground, is not within the site boundary.  There is a service road to the west of the West Block, separating the building from the triangular integral car park. 

An embankment to the east of the office building dates to 1925-26, when the site was partially levelled.  The Dugout, a 1942 air raid shelter, is built into the embankment.  At the beginning of 1943, the shelter was adapted to accommodate a Typex cypher machine, used for coding and decoding cables.  The Typex machine enabled Prime Minister John Curtin to communicate directly with British Prime Minister Winston Churchill and American President Franklin Roosevelt during World War II.  The building has been in use as a substation since 1945. 

The landscape treatment to the north and west of West Block, including around the triangular car park, was established in the 1920s, as part of the broader landscaping for the south end of the Parliamentary Triangle.  Remnants of the formal 1920s landscape treatment, including mature deciduous trees and some hedges, are extant both within the subject site and addressing both sides of Queen Victoria Terrace.  The native plantings to the south and south-east of West Block are generally more recent. 

The site includes no significant objects or items of moveable heritage. 

Findings

The assessment of significance undertaken for this HMP has found that West Block satisfies the CHL threshold for: Criterion A (historical significance), Criterion D (principal characteristics), Criterion E (aesthetic significance), Criterion F (creative/technical significance) and Criterion H (significant associations). 

West Block is of historical significance to Australia for its association with Federation.  The building is a component of the Parliament House Secretariat group, the first premises purpose-built for Australia’s democratic government.  The principal component of the group is the Provisional Parliament House itself, as reflected in its siting on the Land Axis, and its visual prominence within the national capital.  West and East blocks were supporting elements.  The primary role of these multi-purpose buildings was office accommodation.  The buildings within the Parliament House Secretariat group were conceived as temporary, pending the construction of a permanent Parliament House, completed in 1988. 

The Dugout is of historical significance as the building from which Prime Minister Curtin communicated with Australia’s allies during World War II, using a Typex cypher machine.  The building is also significant as a remnant of the World War II defences introduced within the Parliamentary Zone during World War II. 

West Block is significant for demonstrating the

This is an opening excerpt, not the complete document.