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DUNGOG HERITAGE STUDY - FINAL REPORT

CONTENTS

Pages

Preface 2Part I - Introduction' and Methodology 3Part II - Implementation 9Part III - Conclusion and Statement of

Significance 29

Recommendations 32Annexures

ACCOMPANYING VOLUMES

Thematic Development HistorySpecialist Reports

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PART I - INTRODUCTION AND METHODOLOGY

Introduction

Approach to the Study

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INTRODUCTIONThis report marks the completion of a three stage study ofthe environmental heritage of the Shire of Dungog.

The aims of the study were to:

- analyze the history of the Shire of Dungog- identify and analyze its environmental heritage; and- make recommendations for its conservation and management.

Specific tasks required by the brief included the following:

- "to provide a thematic development history as a frameworkfor the analysis of the environmental heritage".

- "to prepare an inventory of items of environmentalheritage significance".

- "to examine the draft thematic development in the lightof the survey findings to confirm or modify theappropriateness of the documentary analysis".

- "to analyze existing planning controls local councilpolicies on public lands, development pressures affectingidentified heritage items etc. to identify existingconservation conflicts and problems".

The first of these tasks accounted for most of the work inStage 1. The thematic history was required to provide a

"basis for assessing the relative significance of inventory--items. Generally an inventory should be limited to thoseitems and places which provide physical evidence of acommunity's development over time. The thematic approachinvolved historical research, the identification of dominantthemes, and finally, recording physical illustrations ofthose themes.

The recording of inventory items and places was the primarytask of Stage 2. An initial list of items and places wascompiled from previous identification work, by the NationalTrust and the Hunter Region Heritage Study in particular. Afurther search was made by visual inspection of differentparts of the Shire. In the case of village and urban areasthese field investigations were comprehensive. In ruralareas limited resources meant that inspection was generallyconfined to main roads. Part of the fieldwork involved asearch for important items which came to light in thehistorical research and which may have survived. Once allpotential items of interest were recorded a final assessmentof relative significance was made.

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Stage 2 also required an analysis of matters likely toaffect the conservation of significant items. Furtherrequirements, relating to analysis and implementation, wereto be undertaken in the final stage, as follows:.

- "to prepare a list of identified heritage items whichrelate to each theme of historic development",

- "to describe the particular significance of theenvironmental heritage of the Shire,

- "to recommend objectives, policies and strategies, bothstatutory and non-statutory, to conserve theenvironmental heritage of the Shire of Dungog andrecommend ways and means to resolve the conflictsidentified",

"to recommend priorities for the interpretation andmanagement of the environmental heritage of the Shireof Dungog".

The allocation of tasks to stages is set out in theconsultants' proposal which was prepared in response to thebrief and incorporated into the study contract.

Study documentation and format. The final study reports arebound in three separate volumes. One is the thematichistory prepared in Stage 1. A second incorporatesspecialist reports on archaeology, architecture andlandscape. This volume, the third, is the main finalreport. It includes a study overview, a discussion ofimplementation issues, and final proposals andrecommendations.

APPROACH TO THE STUDYThe division of the work between specialist team members wasmade according to their respective strengths and experience.The methodologies employed by each are described below.

All work progressed more or less in accordance with theconsultant's submission. Most potential problems werecorrectly anticipated and no major difficulties wereencountered.

Thematic HistoryA draft thematic development history was duly submitted tocomplete Stage 1. It was later reviewed, as provided for inthe consultant submission. Results of inventory work andcomments from the steering committee were taken into accountas required.

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Prehistory ArchaeologyA report on aboriginal archaeological sites in the Shire wassubmitted to the Council under separate cover. The briefwas to assess the pre-history archaeological resource by:

- reviewing the National Parks and Wildlife Service'sRegister to document known sites within the Shire area,and

- using this information preparing a predictive statementidentifying archaeologically sensitive areas.

Budgetary constraints precluded fieldwork and consultationswith the aboriginal community. The aim was to establish abasis upon which future investigations and consultants couldproceed.

The Architectural InventoryAll buildings in village and urban areas were at leastsighted such that few important buildings would be missed.

In rural areas comprehensive coverage was not possible.Very few buildings were visible from main roads. Accessusually required entry onto private property. Even then itwas often made difficult by the condition of driveways andlack of signposting. Recording was therefore limited toknown buildings, generally those identified in the thematichistory and/or noted by the National Trust and earlierstudies. Many of these were original homesteads, or morerecent successors. It became apparent during the course ofthe survey that there may be a number of fine ruralbuildings not previously considered important. A few suchbuildings were noted in the field but time did not allowclose inspection. There were a few buildings mentioned inthe thematic history or previous studies, which could not beinspected or located in the time available. These should bethe priority for future investigations.

Generally assessment had to be limited to externalinspection. Of the very few interiors which were sightedsome were impressive.

Approximately 220 buildings were recorded on inventorysheets. A preliminary grading system was adopted. This waslater refined as significance was reassessed in the light ofanalysis work.

Inventory buildings were recorded on standard forms designedin accordance with the requirements of the brief. (Seecopies annexed to specialist architectural report.)Buildings were selected on the basis of the thematichistory, lists prepared by the National Trust and otherstudies, and review of all these in the field. The basis

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for selection was constantly reviewed as the surveyprogressed. This led to some adjustments to preliminarygradings in the interests of maximum consistency. All fieldsheets were later checked by experienced team members.

There were three distinct categories of domestic buildings:

- intact examples of typical styles, in very good condition

- typical styles with special or unusual features, and

- typical styles forming part of an attractive grouping,view, skyline or vista.

Two different survey forms were used. The differencesrelate more to format than content. One of the reasons wasto make field recording as productive as possible. One formwas used for ordinary houses whose main features are broadlysimilar (Form B). Alterations to these could simply berecorded using a standard checklist. For non-domesticbuildings (e.g. schools, churches, commercial buildings) therange of possibilities is far greater. This required moreroom for individual descriptions and comments (Form A). Thedetailed explanatory notes, in the Appendix to thespecialist architectural report, are set out under headingsderived from the standard inventory forms. Any differencesbetween the two forms are noted at the relevant points.

Historical ArchaeologyAs with the architectural and landscape inventories coveragewas limited by time and access constraints. Fieldwork wasalso limited to photography and recording of above groundevidence. No excavation work was carried out.

Potential sites of significance were identified form oldmaps, the thematic history, and information from localsources.

Sites visited were inspected for visible remains of possiblesignificance. Those considered to be of value were recordedand photographed. Information from field notes was latertransferred to special inventory sheets.

Landscape InvestigationThe landscape survey was limited to known sites, mapanalysis and transects along major roads. A more exhaustivecoverage was not possible and not all areas could bevisited.

Field surveys followed analysis of reports and maps relatingto the natural and man-made landscape. Specific leads wereobtained from the thematic history and information suppliedby the Council, statutory bodies and local people.

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Assessing SignificanceOne of the most difficult tasks in any heritage study isdeciding which items and places should be the main focus ofconservation attention. Not everything that is old hasheritage interest, only those items which assist in relatingthe story of an area's development. At the same time theremay be large numbers of items which illustrate a particularhistoric theme, old houses built in a period of rapid growthfor example. Some selection is required therefore to ensurethat limited conservation resources are not spread toothinly. Selection criteria often extend beyond history toarchitecture, archaeology, aesthetics, landscape, science,sociology and other disciplines.

History as a subject is primarily concerned with people andevents. Historical research usually looks most todocumentary sources. Heritage relates what we know ofpeople and events to places, and any physical reminders oftheir impact. It relies more on buildings, monuments,landscapes and archaeology. Those items which provide themost direct and tangible evidence of principal historicalthemes are the most valuable, from a heritage viewpoint. Bythe same measure they also have the highest priority forconservation.

Unfortunately there is no way of evaluating heritagesignificance that will satisfy everybody. Matters forconsideration however include, the condition of an item, itsuniqueness , its representativeness and contemporary.perceptions of what is worth keeping. The best guideproduced so far, for assessing significance, was thatprepared by Australia ICOMOS in April, 1984. It in turn wasbased on the International Charter for the Conservation andRestoration of Monuments and Sites, and Resolutions of the5th General Assembly of ICOMOS. Both the Australia ICOMOSCharter (the Burra Charter) and the guidelines arereproduced as annexures (see Annexure 2 and 3) to thisreport. These guides were followed in assessing thesignificance of the environmental heritage of Dungog Shire,as far as time and resources would allow.

ImplementationOnce inventory work and analysis were complete, an initialassessment was made of potential conflicts and problems forthe conservation of the Shire's heritage. This laid thebasis for final implementation proposals outlined in thenext section of this report.

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PART II - IMPLEMENTATION

BACKGROUND

CONFLICTS AND PROBLEMSPrivate DevelopmentTourism as a Threat

Public ProposalsExisting Development Controls and Policies

ALTERNATIVE APPROACHESImplementation ObjectivesThe Legislative Framework

Landscape Conservation MeasuresBroad Options

Alterations to Existing BuildingsAccommodating Other Development Pressures

Direct Action

PROPOSED CONSERVATION STRATEGYBasic Elements

Local Environmental Plan ProvisionsDevelopment Control Plan Provisions

Landscape Management PlanPublic Education

Implementation ProceduresAssistance to Building Owners

Direct Initiatives

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IMPLEMENTATION

BACKGROUNDApproaches to conservation have changed dramatically inrecent years. They are still changing and will continue todo so for some time yet, as community attitudes towardsheritage change. At one time people thought only of thenatural environment when they thought of conservation. Onlythe oldest and grandest of historic buildings wereconsidered worth keeping. Most thought that these items andareas could only be saved by public acquisition. Naturalareas and old buildings were seen as having no presentutilitarian value or relevance. The tendency to view oldbuildings as museum pieces meant people also thought interms of preservation rather than conservation.

In time the appreciation of heritage increased. People .began to value old buildings more for their architecture,townscape contribution and old world charm. A growingdisillusionment with modern architecture, and modern societygenerally, brought a new nostalgia for all things old.Greater interest lead to closer study and a deeper respect.As people realised there was much more to heritage, publicownership no longer appeared to offer a solution. Heritagealso seemed to be disappearing rapidly and the reactioncreated pressure for legal sanctions. The regulation ofprivate owners was now seen as the only available solution.

Measures introduced under town planning controls, and morerecently by special protective orders, were instrumental inpreventing the destruction of many significance items.Before long however the short comings of these measuresbecame apparent. It was discovered that regulation alsorequired a significant diversion of public resources. Legalprohibitions could prevent deliberate acts of destructionbut conservation required much more. Heritage itemsrequired restoration, enhancement and new relevance if theywere to be saved on any scale. Just arresting the normalprocess of decay was a task legal regulation had difficultywith. The sudden introduction of drastic controls,often atthe eleventh hour, also produced economic hardship for someowners. This lead to a negative response to conservation inlarge sections of this community.

It is now recognised that conservation requires a much morepositive approach. Ultimately most of the resources neededare in the hands of private owners. Our heritage will onlybe saved if these owners are able to identify conservationwith some benefit to themselves. Such a shift in attitudeshas already taken place. The growing appreciation ofheritage-is now reflected in the market place. Older housesattract a premium, particularly those that are wellpreserved. People have rewarded the upgrading of oldcommercial buildings with their patronage. Old towns and

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villages attract increasing numbers of tourists. The mainproblems now are where the costs to particular owners aresubstantially greater than the benefits, or rather, wherethat is perceived to be the case. The main challenge toconservation today is in altering those perceptions.

Conservation is now seen as more of a management exercise,involving a range of different strategies. Legal regulationstill has a role to play, as does the commitment of publicresources to key areas. Increasingly however the emphasisis shifting to information and education. The stress is onincreasing the awareness of the general public, and ofprofessionals in environmental planning and assessment.

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CONFLICTS AND PROBLEMSThe first requirement of a heritage study is to identifythose items and places of special significance. The nextstep is to adopt a strategy for their conservation. Thesuccess of such a strategy will depend, in large part, onhow well potential threats are anticipated. To this end thestudy brief requires an analysis of existing conflicts andproblems. These may arise out of both public and privateactivity, as well as their interaction.

It is difficult to anticipate specific threats to specificitems: The best approach is to identify potential conflictson the basis of past experience, in Dungog and in similarsituations elsewhere. Experience gives an indication ofwhat is likely rather than merely possible.

Private DevelopmentIn rural areas inappropriate subdivision is as much a threatto heritage items as alterations to the items themselves.Generally homesteads need to be maintained as part of theirsetting, on ridge tops or hills for example. Quite oftendriveway approaches and landscaping formed an important partof the original setting and should be restored ormaintained. Wherever possible views to and from theproperty from major vantage points should be preserved.This should be considered in relation to any development onsurrounding land, not just to subdivision proposals whichmight result in such development.

Proposals directly affecting buildings have more obviousimplications. In rural areas outbuildings are as importantas the main residence. All buildings forming part of anolder complex need to be considered. Quite often many ofthese will have been long demolished. Nevertheless theirsites provide a possible area for archaeologicalinvestigation. Such buildings and sites are of interestbecause they tell us a lot about how people in the districtmade their livelihood in circumstances very different formthose of today.

In urban areas proposals directly affecting buildings arethe primary concern. Inappropriate subdivision can still bea problem on larger allotments, but usually only wherehistoric buildings are liable to be hidden from view by newbuildings.

Simple conservation of buildings will not always be enough.Views to and from major focal points, like Church spires,will affect consideration of development proposals in a widesurrounding area. Internal and external views are importantelements to be considered in potential conservation andscenic protection areas in the Shire.

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Street context is also critical. Development on sitesadjoining listed buildings often do just as much damage tothe historic streetscape as alterations to the significantbuildings themselves. Infill development and streetscapeare important in all areas of historic or architecturalinterest not just the better areas. Infill guidelines arean important part of any conservation strategy.

In respect of buildings unsympathetic alterations oradditions can do as much harm as destruction of the totalbuilding. Generally alterations to the visible facade ofhighly graded buildings will be undesirable, unless ofcourse they involve restoration of original features.

Decay and lack of maintenance are threats which could occurin any area. In Dungog building obsolescence is aparticular problem, especially on old homesteads. Earlytimber buildings generally are usually the most at risk.These buildings are more susceptible to destruction by ireand are more dependent on regular maintenance.

Tourism as a ThreatOverall tourism has given conservation a major boost, makingmany otherwise non-viable projects economic. At the sametime however it may constitute a real threat to heritage.Quite often the areas or properties requiring conservationare in a sensitive or vulnerable state. Increased numbersof visitors may lead to rapid deterioration or degradation.This could be a problem with some of Dungog's olderhomesteads and parts of the natural landscape.

Damage may also be caused by incorrectly sited motels,caravan parks and take-away food facilities. Even a picnicor barbecue area in the wrong location may be harmful.

Increased popularity also creates problems o security andsupervision. By their nature many traditional ruralbuildings and archaeological sites are difficult to secureagainst thieves and vandals. Supervision on the other handis an expense. Often property owners are expected to act asunpaid tourist guides. This is not yet a major problem inthe Shire but could become one.

It is therefore essential that care be taken inaccommodating tourist demand. Invariably there will be asolution which preserves a reasonable balance. Minorinconvenience to tourists is preferable to allowingdestruction of the very thing which attracts them.

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Public ProposalsThe Shire Council has a major construction and developmentrole and may have a very direct impact on the Shire'sheritage. The same applies to any other governmentauthority operation in the district. As with privateactivities the potential conflicts are wide ranging.However there appear to be no current proposals of any majorheritage consequence.

There are a few items of heritage value under the directcontrol or management of the Council. These include roadside landscapes, cemeteries, shop verandah posts, old stonekerbing and occasional Council owned sites and buildings.The Council could be expected to set an example with these.Equally important is the Council's responsibility for streettrees and planting.

The Council's major role in relation to heritage however isas the authority responsible for development control andplanning.

Existing Development Controls and PoliciesIn an unregulated development market the range of possiblethreats to heritage is wide. This does not necessarily meanthat loss of heritage items is more likely. The probabilityof loss will be primarily determined by market constraints.The introduction of zoning imposes legal prohibitions whichmodify these purely economic factors. Zoning narrows therange of possibilities but increases the likelihood ofcertain types of development in particular locations. Assuch it increases the threat to heritage in many instances.These threats are reasonably specific and are often readilyidentifiable.

The main zoning instrument for the Shire is the Dungog LocalEnvironment Plant No. 1 (LEP1). It has since been amendedby subsequent local environmental plans (LEP's), variousState environmental planning policies (SEPP's) and a numberof ministerial orders. At present there are no specialheritage provisions applying to the Shire.

In rural areas existing zonings do not give rise to anymajor problems. Subdivision minimums are the primarycontrol. Whilst rural residential subdivision is a generalthreat to older homesteads there do not appear to be anyspecific dangers under present controls and marketconditions. What is required is a set of controls properlyaddressed to conservation problems. Any assistance given toconservation by subdivision restrictions is remote andunreliable.

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Village zonings open the way to a wide range of potentialthreats, as virtually all uses are permissible with Councilconsent. In reality the risks are usually low. There is nopressure for new development in the villages of anymagnitude.

The range of uses permitted in the main urban area of Dungogis narrower. Redevelopment is possible in all the urbanzones , including for residential flat buildings in theResidential "A" zone. Again however the risks are low inreality. There is minimal pressure for new developmentunder present economic conditions.

Despite the general absence of controls the Shire Council'spositive attitude, and community acceptance, has resulted ina few notable conservation successes . National Trustconservation areas and listings have been endorsed at policylevel and the Council has negotiated with applicants onproposals affecting heritage items. Applicants in turn havebeen willing to amend their proposals to some extent. Otherowners have been committed to conservation from the outset.The Council has also been instrumental in obtaining grantmoney for restoration work. In the result many older stylebuildings have been attractively maintained and restored.The Shire also boasts some good examples of modern infill atPaterson and East Gresford . what is now required is aheightened awareness of what is appropriate together withstatutory provisions designed to facilitate presentapproaches.

ALTERNATIVE APPROACHES

Implementation ObjectivesIn arriving at the recommended approach to implementation inDungog a number of alternatives were considered. Thesealternatives were evaluated in terms of certain objectives.

Specific objectives to be satisfied included the following:

- The proposals should make the best use of the limitedskills and administrative resources available.

- The proposals should have general public support.

- The risks of policies being ignored or appliedirresponsibly have to be kept to a minimum.

- Any economic burdens or disincentives should be keptto a minimum.

- Sympathetic development has to be actively encouraged,simply trying to prevent bad development would not beenough.

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- Proposals must be capable of communication to thoseaffected.

Administrative limitations and the need to communicate areparticularly important considerations. They necessitatesimplifying, to some extent, something which is, in reality,quite complex.

The Legislative FrameworkPrior to the passing of the Heritage Act in 1977 there wasonly minimal legislative provision for heritage protection.This legislation created new powers for ensuring theconservation of buildings and places. The most importantprovisions were those in Part III, dealing with interim andpermanent conservation orders. These orders could preventthe demolition or destruction of identified buildings, worksor places. They also provided a vehicle for managing theconservation of items affected. There was also provisionunder section 130 for special orders preventing demolition.This section was intended to apply in situations whereurgent action was required, before there was any time forproper investigation.

The making of all these orders requires Ministerial approvaland usually necessitated reports from the Heritage Council.The procedures involved were often lengthy and provisionswere made for special enquiries at the request of owners.Given these administrative constraints there was a limit tothe number of orders which could be processed.

In 1979 the Heritage Act was significantly amended by theEnvironmental Planning and Assessment Act (EPA Act) andcognate legislation. The aim was to make environmentalplanning instruments (EPI's) the main legislative vehiclesfor conservation, particularly LEP's. Through thesecondment of local government resources a much widercoverage would be possible. Procedures for notification andobjection would become part of the normal plan makingprocess, rather than part of a separate administrativesystem. EPI's also offered greater scope for management ofthe environmental heritage, as opposed to simple protectionor prohibition.

More and more conservation responsibilities are beingdelegated to local government. LEP's have become the mainconservation instruments. There are no Stage policies(SEPP's) or regional plans (REP's) specifically concernedwith conservation. SEPP 4 however does exempt conservationprovision in LEP's from the effect of that policy, followingrecent amendments. The result is that even "minor"development, affected by conservation controls, will needconsent if the local plan so requires.

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A more recent direction under 5.117 of the EPA Actrepresents a major State conservation initiative. Again,however, it is concerned with local plan makingresponsibilities. It will ensure that due attention isgiven to conservation in all future LEP's in New SouthWales.

Provisions in local environmental plans may be furthersupplemented by development control plans (DCP's). Theseplans are easier to amend as the need arises. on the otherhand they cannot prohibit development like a LEP can. Theirgreat advantage is that they allow the making of quitedetailed provisions without creating unnecessaryinflexibility.

Part of the implementation exercise therefore involvesdeciding what should be placed in a LEP and what in a DCP.

The Council also has its powers under Part XI of the LocalGovernment Act (LGA). Section 313 of that Act sets out whatconsiderations the Council may take into account in dealingwith building applications. These include design,materials, building line and height. Such considerationsare generally limited to matters of health, safety andconvenience. Strictly, there is no reason why heritage,.streetscape and aesthetics generally, should not beappropriate considerations as well. Previously these wereconsidered to be planning rather than building concerns.Recently however the heads of consideration have beenexpanded by the courts and legislative amendment.

The Council also has its various powers under the LGA todirectly manage the. environment, through the provision andmaintenance of roads for example.

Landscape Conservation MeasuresIn relation to landscape protection there is a whole rangeof measures available, administered by many differentauthorities under different pieces of legislation.

Tree preservation orders (TPO's). These provisions, underthe Council's current EPI's, require the permission ofCouncil to lop or remove trees over a certain height.Council may seek advice from the Department of Agricultureor the Soil Conservation Services before granting approval.Approval is difficult to withhold if clearance is forgenuine agricultural purposes.

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Scenic protection areas. Many LEP's create specialprotection areas for sensitive landscapes. As a generalrule all development within such areas requires planningconsent, and the consent authority must take into accountcertain specified considerations. These include visualimpact and aesthetics.

State Forests. There are major State Forests in the Shirecomprising some 10% of its area. These reserves are CrownLand and are administered by the Forestry Commission underthe Forestry Act, which requires the preparation ofManagement Plans.

National Parks. The Barrington Tops National Park takes upanother 10% of the Shire area. This area is managed by theNational Parks and Wildlife Service under the National Parksand Wildlife Act. The primary objective is to conserve itsecological, scenic and recreational heritage.

Prescribed Streams. The permission of the Catchment AreasProtection Board is required for removal of vegetation alongor within 20 metres of a stream prescribed under the WaterAct. This policy applies both to leasehold and to freeholdland, and is normally administered by the Soil ConservationCommission.

Leasehold Crown Land. Cleaning of more than 2 hectares oftimber per annum of leasehold Crown Land is generallyconditional upon the issue of a Clearing License by theForestry Commission. Only small areas of the Shire are heldin this form of tenure.

Conversion of Crown Land. Conversion of Crown Land tofreehold title provides an opportunity for reservation ofenvironmentally sensitive areas to ensure their protectionfrom clearing. Under its Conservation and EnvironmentalProtection Policy (1979), the Department of Lands isempowered to exclude from conversion areas such as riparianand well-timbered lands. Entire holdings may be excludedfor purposes of environmental protection provided that leaseconditions permit. Departmental policy attempts to achievea coherent network of protected lands responding to bio-physical patterns. Within a ten year period, clearing oftimber on converted land remains conditional upon the issueof a Clearing License by the Forestry Commission.

Freehold Land. A number of voluntary measures exist forvegetation conservation and replanting on freehold land.These include the Trees on Farms Programme administered bythe Department of Agriculture, the National Tree Programmesponsored by the Federal Department of Arts, Heritage andthe Environment, and grand-aid schemes such as that operatedby the Department of Environment and Planning.

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In addition, the Soil Conservation Service is able tointervene to prevent clearing on freehold land which may bedetrimental to erosion and water quality. These measuresinclude the declaration of Protected Areas, in which theclearing of more than 7 hectares of timber per annumrequires the permission of the Catchment Protection Board;and the ability to declare Erosion Hazard Areas, withinwhich remedial erosion control measures may be undertaken atowner's cost.

The landscape conservation measures described above varyconsiderably in extent of application, in their objectivesand in effectiveness of enforcement. Comprehensivemanagement policies in which landscape conservation is aprime objective are applicable only to the State Forests andNational Parks. These represent a total of approximately20% of the Shire area. This compares favourably with anational figure of approximately 3% for areas reserved forconservation purposes.

The measures applicable to leasehold Crown and to freeholdland reveal a number of problems. Firstly, voluntaryschemes such as replanting programmes are difficult toadminister and are unable to guarantee desirable land-usepractices at a broader scale. Secondly, statutory measuressuch as those relating to Prescribed Streams are difficultto enforce within a large region much of which is not easilyaccessible. Thirdly, existing penalties for infringement donot appear to provide an adequate disincentive. Fourthly,many controls do not address landscape conservation forheritage purposes as a specific objective, and are concernedprincipally with issues such as water quality and soilerosion. Fifthly, there is little co-ordinate enforcementof measures applicable to freehold land, where theresponsibilities of the Soil Conservation Service, CatchmentAreas Protection Board, Forestry Commission, Department ofAgriculture and Dungog City council may overlap at any time.And finally, most of the measures are either preventative orprescriptive; there is little positive incentive to conservelandscape resources as an integral objective of rural landmanagement.

Broad OptionsAs far as normal planning controls are concerned, standardconservation provisions adopt two basic approaches. Onerequires development consent for any proposal affectingindividual items placed on a special list. The otherrequires consent for any development within a definedconservation or scenic protection area. Often bothtechniques will be used to implement a conservationstrategy. Dungog has many outstanding individual items aswell as urban and natural areas of conservation value.

Simply listing items will not be enough where they have animpact beyond their own sites. Development on adjoiningallotments can destroy an item's context. Where views toand from an item are important no just the immediateneighbours are affected. This applies to rural areas andscenic features generally.

Alterations to Existing BuildingsMany people still see conservation as placing unreasonablerestrictions on property owners. Many also see it aspreventing any upgrading to modern standards. This howeveris rarely the case. Conservation requirements, unlikerestoration or preservation requirements, allow greaterflexibility. Quite often a solution may be found throughgood design. Conservation does impose additionalconstraints but a good designer will be able to work withinthose, and still produce the desired improvements.Unfortunately there are also many bad designers. Baddesigners not only have trouble with meeting conservationlimitations, they invariably produce poor solutions in otherrespects, e.g. climate control.

The community should insist on better design in alldevelopment proposals. At the very least it should be amandatory requirement when heritage items and conservationareas are affected. Quite often what is desirable in termsof heritage will also assist in minimising problems ofprivacy, overshadowing and amenity generally.

Apart from pressures to conform with current fashions, thereare common practical reasons for altering old buildings, inparticular:

- to provide on-site car parking- to create additional living or working space- to better utilise indoor and outdoor space generally- to provide modern kitchen and bathroom facilities- to improve natural lighting and outlook, and- to take advantage of new concepts like solar heating

For each of these situations there is usually a reasonabledesign solution. The main possibilities are discussed inthe accompanying guidelines (see Annexure 5).

Accommodating Other Development PressuresIn rural areas subdivisions create a different kind ofdesign problem, although similar considerations apply.Usually the primary concern is with the location and designof new buildings, and their impact on views of originalbuildings, and their grounds, from public roads and vantagepoints. This is important as much from a scenic as aconservation viewpoint. Generally all rural land should besubdivided so that the possibilities of these views being

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obscured are kept to an absolute minimum. Further the sizeand shape of the allotment accommodating any originalhomestead should be such as to preserve the integrity of themain building, any front landscaped area, and any near farmancillary buildings. Old tree-lined driveways should alsobe incorporated in the subdivision layout.

Other problems occur when it is proposed to change the useof a property. For the most part these problems relate tobuildings, rather than uses as such, but the alterations areusually more drastic. The most common situation is oneinvolving houses zoned for commercial use, although this isnot a frequent occurrence in the Shire.

Where new buildings are erected, on vacant sites orreplacing unimportant buildings (from a heritage viewpoint),they should be in scale and character with any neighbouringinventory buildings. Modern replicas or slavish imitationof old buildings is not required or encouraged. What isrequired is that new buildings be sympathetic, blending inwith their surroundings rather than creating harshcontrasts. The design of sympathetic infill is a majorchallenge in itself. Ultimately, desirable results may onlybe produced by good designers under the guidance ofexperienced professionals.

Townscape considerations will always be paramount where itis desirable to retain historic character , but where thereare few individual buildings of special significance.Infill will be critical in all historic precincts.

The siting of new buildings will often be as important astheir actual design, in terms of their streetscape impact.

In some instances, restoration costs will be quite high. Insuch cases concessions are often made allowing buildingszoned for "low return" uses to be converted to moreprofitable uses. Very few affected buildings in Dungogwould come into their category. In any case, provision canbe made for the situation should it arise.

Direct ActionApart from its development control responsibilities theCouncil has opportunities to take more direct conservationmeasures. It has its own properties which need to beproperly managed. More importantly, it has the power tosubstantially alter the physical environment as a servicingand works authority. The same applies to other locallybased public authorities. Street reeds, kerbing and streetfurniture are particularly important by virtue of thepowerful impact they have on the context of heritage items.An item in an attractive setting is more likely to beappreciated. Initiative in this area is considered criticalal to the overall success of conservation in the Shire.

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PROPOSED CONSERVATION STRATEGY

Basic ElementsIt is considered that the strategy outlined in this sectionmaximises those objectives outlined and discussed above.

The preferred strategy would include the following elements:

- aims and objectives suitable for inclusion in a LEP

- the listing of the more significant buildings and itemsfor special protection

- the creation of conservation and scenic protection areas

- the inclusion of such other provisions in a LEP or DCP asare desirable to further the realisation of conservationobjectives.

- guidelines for use of the Council in implementing thisstrategy and assessing proposals affecting the Shire'sheritage.

- the creation of a special committee or position to advisethe Council on heritage matters.

- a public education programme aimed at increasing publicappreciation and awareness.

- the preparation of more specific guidelines for propertyowners, and/or the provision of specialist advice forthose proposing to carry out development in conservationareas.

- the preparation of a landscape management plan.

- direct Council and Government initiatives.

Details of the proposed strategy are set out below.

Local Environmental Plan ProvisionsStandard heritage and conservation provisions for LEP's havenow been adopted by the Department of Environment andPlanning (DEP) and accompany the Minister's 5.117 direction.A copy is attached as Annexure 4. New draft clauses arepresently under consideration but differ very little.

The minimal aims and objectives set out in the provisionswould be quite acceptable for Dungog. Alternatively, theCouncil may wish to draft more detailed objectives based onthe general recommendations of the study.

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Standard clauses 1 to 6 could be adopted in their entiretywithout the need for amendment. These require developmentconsent for proposals affecting listed items andconservation areas, including demolition. The Councilretains complete discretion but must take into account thespecial heritage considerations specified. All "A" and "B1"graded buildings in the architectural inventory should beincluded as a minimum. Certain landscape and archaeologicalitems should also be scheduled, as indicated in specialistreports.

Standard Standard Clause 2 requires the Council to take intoaccount heritage considerations in considering applicationsfor unlisted properties as well, if they are "in thevicinity of" a listed item . The clause however onlyoperates if consent is already required for development.

As far as conservation and scenic protection areas areconcerned it is proposed that existing National Trust areasbe given statutory recognition. Some amendment to scenicprotection area boundaries is proposed in the specialistlandscape report. Conservation areas would come into effectby way of standard Clause 3. With regard to scenicprotection areas there are a number of options. StandardClause 3 would be suitable with the addition of "landclearing" as development requiring consent. Alternativelyone could adopt a special environmental protection zone,zone 7(d). In this case the primary objective would be topreserve the scenic quality of the zone. All uses otherthan agriculture (not involving clearing or excavation)would require consent. One could also take the view thatClause 9A of the existing LEP provides all the protectionrequired and no additional provisions are necessary. Thepreferred option however is a special environmentalprotection zone.

It is further suggested that the detailed heads applying tobuildings, under Clause 3(3), be applied to all highlygraded buildings as well. Clause 1, the standard clauseapplying to these buildings, includes general heads only, asit covers more than just buildings. In both instances a newsub-clause is proposed to ensure all architectural aspectsare covered. The new sub-clause 3(3) (d) would read alongthe following lines:

"(d) any other architectural feature characteristic ofcontemporary existing buildings in the Shire".

Other standard provisions relating to advertising, specialconcessions and incentives are also appropriate. Theyrequire no adaptation or amendment, although sub-clause 6(2)may be unnecessary.

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An exception to minimum allotment requirements should beconsidered for historic rural properties. If excision of anallotment with important structures on it would encouragetheir conservation it should be permitted. No new buildinghowever should be permitted on the remaining holding if itwould affect the curtilage of a heritage item, or views toor from it.

Special provisions might also be drafted for the protectionof the rural landscape. These however may need to bedeferred pending the preparation of the proposed landscapemanagement plan.

No other special provisions are envisaged at this stage.

All other controls should be placed in a DCP. One of theadvantages of the definition of "item of the environmentalheritage", in the standard clauses, is that it allows theoriginal list to be added to, by way of a DCP.

Development Control Plan ProvisionsThe primary advantage of DCP's is that they allow theinclusion of great detail without creating inflexibility.As a general rule, as much detail as possible should beplaced in a development control plan. Only highly gradedindividual buildings and items should be listed in a LEP.This allows more flexibility in making changes or additionsto the list. What a DCP should do is spell out any specialconsiderations applying to specific items or areas.

Eventually a single DCP relating to heritage should beprepared for the Shire with detailed heritage provisionsincluded in any specific plans adopted for different areas.Provisions could include the following:

- a schedule of buildings graded "B2" and "R", with adefinition of the basis for each grading, and an outlineof the approach which would be adopted for each category

- any special heads of consideration applying to individualareas, in particular the protection of archaeologicalsites on historic rural properties, or the protectionof the rural landscape

- general heads of consideration for all parts of theShire relating to streetscape and townscape

- any specific provisions considered desirable forspecific items or sites

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One suggestion is a requirement that density increases by byway of conversions and/or rear additions to existingbuildings, not redevelopment, in respect of listed or gradedbuildings within redevelopment zones.

Material set out in Annexure 5 should provide the basis forfuture DCP's. It is beyond the scope of this study todevelop DCP's any further.

Landscape Management Planit is proposed that a landscape management plan be preparedfor the conservation of the rural landscape, and theguidance of its economic development. Broad indications asto what is desirable are given in the accompanyingspecialist landscape report. More detailed policies howeverrequire consultation with authorities like the SoilConservation Service, as well as with local farmers. Thefinal plan might not need much at all in the way ofstatutory recognition, but the range of measures availableneeds to be considered as part of the plan preparationexercise. The possibilities have already been discussed.

Public EducationAll the specific controls proposed leave the Council with agreat deal of discretion. This flexibility calls for careand responsibility in its exercise. One of the mostimportant priorities is to ensure those likely to beaffected are fully aware of the controls, and how they willoperate. A few years ago, when the identification ofheritage items lagged well behind development, developerswould only become aware of heritage concerns at a latestage. Eleventh hour protection orders caused majorfinancial losses and contributed to general publicantagonism to conservation.

one of the major aims of heritage studies is to give advancenotice. Simple identification however is not enough. Everyeffort should be made, not just to inform the public, but tomarket the conservation concept. Mistaken impressions basedon past experience need to be corrected by public education.If people know in advance what is expected they can planaccordingly, to minimise their costs and capitalise on anybenefits. And if they can see there are benefits they willbe more willing to meet the costs. Once a developmentapplication has been submitted critical decisions affectingheritage will already have been made.

As a first step the results of this study should be fullypublicised, emphasising those aspects likely to engenderlocal civic pride (e.g. favourable comparisons with othercountry areas). Press releases should indicate those mostlikely to be affected, and how they will be affected. Itshould be stressed that controls will be reasonably flexible

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and that, in most cases , owners will still have quite a bitof freedom in what they may do with their properties. Ifthere is a failure to get this point across there is adanger of hasty demolitions and premature applications, bypeople trying to beat the controls.

Later, LEP provisions, and DCP proposals, would become thesubject of the normal public participation process, inaccordance with the EPA Act.

As soon as the proposals are adopted by the Council, eitherbefore or after the LEP provisions actually become law,owners of all graded buildings should be notified. Thenotice should advise that the building is considered to haveheritage value, and that this would be taken into account inassessing future proposals for the property. It should alsopoint out that conservation, of residential buildings atleast, should guarantee improved property values in thelong-term. Examples like the experience in the Sydneysuburbs of Paddington and Haberfield could be cited. Sincethe supply of old buildings must inevitably decrease, whilstdemand for them is steadily growing, they must appreciate invalue, as do antiques.

Owners should also be able to obtain copies of inventoryforms held by the Council, and told where to go for furtheradvice on alterations or new buildings. If possible, copiesof inventory forms could be included with notices.

Similar notices should be distributed to owners of non-graded properties and buildings, within conservation areas,or adjacent to heritage items.

To ensure that all new owners were made aware of thesituation the same notices should accompany everycertificate issued under Section 149 of the EPA Act. Thecertificate itself would make them aware of the relevantcontrols whilst the notice would advise of their effect. itshould also allay any fears the certificate might otherwisegive rise to. Generally public awareness would have to bemaintained by regular publicity exercises which couldemphasise positive results to date.

Implementation ProceduresOnce the actual legal provisions come into effect it wouldbe a matter of ensuring the controls were applied fairly,flexibly and consistently, without undermining primaryconservation objectives. To this end checklists andprocedures for the processing of subdivision, building anddevelopment applications should be prepared and follows.The Australia ICOMOS guidelines set out in Annexure 3 shouldbe used as the starting point. In all cases the

27

significance of affected items should be assessed in greaterdetails. This means attempting to find out more about theitems than is recorded on inventory forms as part of thisstudy.

Preliminary checklists and guidelines are set out inAnnexure 5. These could also provide a basis for furtherdetailed DCP provisions and more general guidelines for thepublic. As far as possible these guides should be keptsimple and easy to follow. Whilst this may not achieve thehigh standard of conservation desirable , more complexguidelines would be even less successful . The tendencywould be to confuse , or to discourage people consulting themat all.

As alterations and additions will be particularly critical,success or fa_=ire of conservation in Dungog will dependheavily on to exercise of discretion in the processing ofnormal bu-_d_=c a -_cations. This cannot be over-emphasised. atters of design are of overriding importancegenerally.

The proposed guidelines should standardise the processing ofapplications affecting heritage as far as possible. Thisshould permit Council officers, without specialist training,to make a fair assessment of the majority of applicationsreceived . Where however, the guidelines themselves providefor departures from the standard provisions, or where highlygraded items are affected , the Council should seek expertadvice . If the Council itself cannot employ an in-housespecialist or part-timeconsultant it should approach bodieslike the National Trust or the Heritage Council. TheCouncil :;light also consider setting up a specialist advisorysub-committee with local representatives from the NationalTrust or historical societies . This is now common practicewith many NSW councils.

Assistance to Building OwnersIt is recommended that the Council make available theservices of a conservation architect, on a part -time basis,for owners wishing to alter or add to their buildings. Ifnecessary a nominal fee could be charged for the service butideally any initial consultation would be free.

The DEP now provides dollar for dollar funding for localcouncils to make expert advice available to the public. Anapplication for such assistance would be well worthinvestigating.

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It would also be desirable to prepare pamphlets andbrochures on different subjects. These could include suchthings as summaries of the contents of DCP's, generalguidelines for infill development and illustrations oftypical local architectural styles. Such guidelines shouldfurther assist with public education.

Direct InitiativesThe Council and other works and servicing authorities shouldset an example in their own activities. In particular,attention should be given to street planting, old stonekerbing, street furniture and improvements generally, parksand gardens, traffic, parking and access. All designproposals should be considered in terms of their impact onheritage items and conservation areas, following therelevant guidelines outlined in this study.

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PART III - CONCLUSION AND STATEMENT OF SIGNIFICANCE

30

CONCLUSIONSAll surveys undertaken in the course of the study revealedevidence of a rich and valuable heritage. This covers anextensive range from outstanding natural areas and rurallandscapes through to urban conservation areas, many fineindividual buildings, rural homesteads and significantarchaeological sites. The natural and scenic value of ruralareas is outstanding and of State and National significance.Numerous individual buildings and sites are also of Statesignificance. The recognised urban conservation areas atDowling Street, Dungog, East Gresford and Paterson are ofspecial note. Each is unique and greatly enhanced by itshigh value rural setting.

The only major threat to heritage items is neglect anddecay. Redevelopment is unlikely to become a problem in theforeseeable future. At the same time a growing pride inolder houses is evident. The standard of maintenance isgenerally high. What is required is better advice to ownerswishing to restore. In future such houses are likely toattract greater interest from buyers seeking a rural retreatin the region. Similarly the Shire's heritage itself is onemajor asset which could improve the local economic base.The enhancement of proposed urban conservation areas willincrease their attraction. This, combined with theoutstanding natural environment, should bring an increasingnumber of visitors in the years to come. The first prioritynow, in the interests of both heritage and tourism, is someinitial capital outlay to exploit the present potential.Both public and private initiates are required.

From an implementation point of view, the nature of theShire's heritage poses no major difficulties. For the mostpart standard statutory provisions will provide thenecessary legal foundation. As far as detail is concernedrelatively simple guidelines will suffice in mostsituations. Attention to individually listed items alonewould greatly life the Shire's overall heritage appeal.Even in the proposed urban conservation areas work onindividual buildings would go a long way towards improvingthe townscape of the whole. More complex considerations areonly required in limited situations, on East Gresford'sserial vistas for example.

In rural areas conservation measures must tie in moreclosely with general planning policies. Heritage aspectsare just one of a number which need to be considered inpreparing an overall management plan.

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Dungog's natural and man-made heritage is both extensive andsignificant. Provided it survives the difficult economiccircumstances which currently apply it will be of lastingvalue to future generations. Hopefully this study will leadto a greater appreciation of this valuable local resource,ensuring its long term enhancement and conservation.

Statement of SignificanceThe environmental heritage of the Shire of Dungog includesmany items and features of State and National significance.Already well recognised are its outstanding natural andscenic areas. In terms of the man-made environment theShire is representative rather than unique, although thereare many individual exceptions. Physical evidence survivesfrom all major periods of development, from the earliestdays of settlement in the Hunter Valley. Architecturallyall historic periods are represented, with the best and themost numerous buildings of significance dating from the latenineteenth and early twentieth century. In particular thereare many timber buildings featuring decorative elements asfine and as elegant as one will find anywhere. Many earlyrural homesteads survive, either as individual buildings oras complexes, of considerable architectural and historicinterest.

In addition, the Shire boasts urban conservation areas ofmajor historic and townscape interest, at Dowling Street,Dungog, Paterson and East Gresford. Each of these has itsown distinct character, embracing exceptional serial vistas,consistent commercial streetscapes and outstanding groupingsof grand historic buildings.

Dungog, Paterson and Clarence Town are laid out inaccordance with town plans whilst East Gresford is anexcellent example of linear development by privatesubdivision. South Paterson also has special interest as anearly private subdivision.

Apart from their own interest the Shire's scenic rurallandscapes provide an outstanding setting for towns,villages and individual items.

Little evidence remains of early industry but the Shirestill has many sites and items of historical archaeologicalinterest. There are many picturesque suspension bridges ingood condition, now rarely seen in other areas. The Shire'scemeteries and small, well cared for, rural churches areoutstanding. The relationship of cemeteries to rivers andcreeks is of special note. Generally grave sites facewatercourses and overlook them.

Sites of potential prehistorical archaeological significancehave also been identified.

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RECOMMENDATIONS

33

DUNGOG HERITAGE STUDY - RECOMMENDATIONS

Local Environmental Plan (LEP)

1. Adopt conservations aims and objectives suitable forinclusion in a LEP.

2. Incorporate Clauses 1 to 6 of the DEP's standard heritageconservation provisions in a LEP. All "A" and "B1"graded buildings in the architectural inventory should bescheduled as "items of the environmental heritage", as aminimum, together with those landscape and archaeologicalitems nominated for special protection.

3. For the purposes of standard Clause 3 conservation areasshould be adopted for Dowling Street, Dungog, EastGresf:-d and Paterson, following the same boundaries asexist'nc National Trust areas.

4. Expand the heads of consideration under Clauses 1 (2) and3 (3) of the standard provisions to take into account, inrelation to new and existing buildings, architecturalcompatibility generally with local buildings featuringtradit_o-al stylistic designs.

5. Give the existing National Trust scenic protection area(with s---e minor adjustment to boundaries) statutoryrecognition either by a special 7(d) Scenic zoning or anequivalent scenic protection area zoning.

6. Allow exceptions to minimum rural allotment restrictionswhere this would ensure the conservation of items of theenviron_ental heritage and their curtilages.

7. Consider placing additional landscape or scenic controlsin a LEP once a management plan is prepared for ruralareas.

8. As an interim measure orders under the Heritage Act maybe appropriate for certain sensitive sites. Refer toseparate recommendations.

Development Control Plans (DCP's)

9. A DCP relating to heritage should be prepared, settingout detailed guidelines and heads of consideration forthe Shire generally, and for specific items and areas aappropriate. (See study report for detailedsuggestions.) In addition any DCP prepared forparticular areas or types of development shouldincorporate heritage considerations where relevant.

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10.Existing Council codes and policies should be amended totake account of heritage concerns and to createincentives for conservation.

11.Incorporate proposals outlined in Annexure 5 of thestudy report into future DCP's as appropriate.

Implementation Procedures

12. Adopt internal procedures for applying heritagecontrols, along the lines proposed in Annexures 3 and 5of the study report.

13. Consider setting up a specialist advisory sub-committeewith representatives from bodies like the NationalTrust and/or local historical societies.

14. Where applications affecting highly graded items arereceived, or where proposed guidelines make specialprovision for departures from standard rules, expertadvice should be sought. The Council should eitherappoint an in-house specialist part-time or engage aconsultant part-time, rather than rely on bodies likethe National Trust or the Heritage Council.

Direct Initiatives

15. Heritage items in public ownership, or under directpublic control, should be properly restored andmaintained. The conservation of these items should beto a high standard, setting an example to private ownersand stimulating their interest.

16. Carefully consider any "improvements" to streets closeto scheduled heritage items. Street lighting, litterbins, plant containers and other street furniture shouldbe consistent or compatible with the relevant buildingsor items, as should paving and kerbing.

17. Street planting should be consistent with traditionalstreet character, and appropriate. Views of attractivebuildings should not be obscured whilst disruptivebuildings should. The Council should consider aprogramme of general improvements to streets in urbanareas, particularly those designated as conservationareas.

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Public Education

18. As a first step the results of the Heritage Study shouldbe fully publicised, emphasising those aspects likely toengender local civic pride. Press releases shouldindicate those most likely to be affected and how theywill be reasonably flexible and discretionary, andthat in most cases, owners will still have quite a bitof freedom in what they do with their properties.

19. Once planning controls are adopted owners of identifiedbuildings and sites should be individually notified.The notice should advise that the building or item isconsidered to have heritage value, and that this wouldbe taken into account in assessing future proposals forthe property. It should also point out thatconservation, of residential buildings at least,should guarantee improved property values in the long-term.

20. To ensure all new owners were made aware of thesituation. The same notices should accompany everycertificate issued under section 149 of the EPA Act.The certificate itself would make people aware of therelevant controls whilst the notice would advise oftheir practical effect.

21. Generally public awareness should be maintained byregular publicity exercises . These could emphasisepositive local achievements in each intervening period.

Assistance to the Private Sector

22. Ideally an architectural heritage specialist should beappointed on a part -time basis to assist both theCouncil and the public. Possible dollar for dollarfunding for this purpose , from the DEP , should beinvestigated.

23. Information should be made available on such things astraditional colour schemes, period fence designs, commonbuilding problems (e.g. maintenance of old timber),local architectural styles, traditional garden designsand infill development. Brochures and guidelines shouldbe prepared for this purpose and their availability wellpublicised (e.g. in local papers, council rate notices).Standard brochures may also be obtained from bodies likethe Heritage Council and the National Trust. Materialin Annexure 5 could be used in brochures for the public,as appropriate.

24. A register should be kept of local tradespeople andsuppliers able to assist with traditional maintenanceand restoration. Its existence should also bepublicised.

25. People should also be invited to inspect and add toinventory forms held by the Council.

26. Special incentives and backing should be given toprivate projects which promise maximum conservationbenefits for minimum public outlay. Possibilitiesinclude provision of information, waiving of applicationfees, supply of paint and parking concessions. Thesorts of projects meriting encouragement include:

- the use of traditional colour schemes

- painting and landscaping of buildings which disruptthe local streetscape or landscape.

- the restoration of period fences especially at keylocations, like corner sites.

- alterations and additions which are sympatheticboth to the original building and the townscapeor landscape.

- putting under-utilised buildings of heritageinterest to new uses.

- respect for early rural outbuildings and theirsetting.

- sympathetic infill generally, and

- the preservation and regeneration of native treesin rural areas.

27. The Council should consider making staff available, tohelp stabilise abandoned or obsolescent buildings, byway of ground maintenance, security and essentialrepairs.

Archaeological Sites

28. Owners, of sites of archaeological importance (i.e.identified in the archaeological survey) should beadvised of the cultural significance of theirbuildings, structures, machinery and sites, whetherthey-are subject to special controls or not. Ownersshould have access to information on appropriateconservation measures and available funding (refer tospecialist reports for details).

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I

37

29. Where the loss of buildings or archaeological sitesseems inevitable, physical remains should be properlyresearched, photographed and recorded.

Cemeteries

30. The Council should follow National Trust guidelinesoutlining appropriate conservation measures for gravesand cemeteries under its control.

Landscape Management

31. A landscape management plan should be preparedaddressing issues such as tree decline, erosion,wildlife conservation, recreation, bush fire control,soil conservation and reparian lands. Policies would berequired in relation to river corridors, state forests,significant landforms, urban centres, rural homesteads,"pioneer" landscapes, "settled" landscapes and presentlyunprotected "natural" landscapes. The aims of amanagement plan would include:

- the protection of a representative range ofvegetation communities.

- the adoption of landscape conservation objectivesby all public and semi-public authorities likely tohave an impact on the local landscape.

i - co-ordination of all the various authorities involvedto clarify areas of responsibility, and the selectionof a simple set of controls from the extensive optionsavailable.

- the strengthening of preventative measures and theintegration of these within a policy designed toprovide greater incentives for landscape donservation.

32. Certain measures proposed in the management plan will beappropriately placed in a LEP whilst others would not.The management plan should be prepared as soon aspossible to allow the incorporation of appropriatecontrols into a LEP as soon as possible.

Further Study

33. A priority for further study would be a morecomprehensive search of rural areas for items andplaces of significance.

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Annexure 1

Annexure 2

Annexure 3

Annexure 4

Annexure 5

Annexure 6

ANNERURES

Study Brief

The Burra Charter

Guidelines to the Burra Charter

Standard LEP Provisions

Guidelines and Checklists

Study Team

♦ lL 'GOMMY MSG /.TION] TO RC

♦0OROSLO TO

THE SHIRE CLERK

"ST Of ICL ]O] IS

OUNG04. N.B.W.. 2420

OF DUNGOG

The study aims to

* analyse the history of the Shire of Dungog

* identify and analyse its environmental heritage; and

* make recommendations for its conservation and management

1,2 K:. , P:cusc Qaof2...

.BRIEF ' FOR THE HERITAGE STUDY OF THE SHIRE

The consultant will be required to

(a) examine and review previously identified heritage items andresearch literature pertaining to the environmental heritageof the Shire of Dungog. A. bibliography should be provided;

(b) prepare an inventory of items of environmental heritage

significance for the Shire of Dungog, reviewing in the fieldthe draft thematic development framework for the historydeveloped from the documentary evidence. The inventory will be

For the purpose of this study, the term "conservation" means allthe processes effecting, or causing to be effected, the management ofheritage items. It includes maintenance and may,-;according to circumstances,include preservation,' restoration, reconstruct idn:or adaptation or controlling

_'potential heritage significance for verification during field survey.

to provide a thematic development history as a framework for the analysisof the environmentalheritage of the Shire of Dungog, and to identify sites of

all or any of the same.

THE STUDY AREA

The study area is the Shire of Dungog.

THE WORK

1. Documentation

The consultant will be required to investigate documentary evidence(including graphic evidence) from primary and secondary historical sources,to analyse the themes and periods of the historical development of the areas,

Whu1 maLine TELEPHOW r.N....;,

presented in duplicate with each item separatelyrecorded on a standard inventory form which incorporates:

(i) black and white photographs of the item;

(ii) a 35 mm coloured slide of the item;

(iii) a brief physical description, highlightingany immediate threats of its conservation;

(iv) . a statement of the environmental heritage

significance of the item including reference

to its context in the thematic devt'_opment

history of the Shire of Dungog;

(v) land title details;

(vi) sketch maps locating individual ele-:eats on eact-. site.

The inventory will also include four copies o- map(s) at an

appropriate scale locating each identified itew in the Shire

of Dungog;

(c) prepare a brochure detailing and explaining policies and approachesto conservation.

3. Analysis

The consultant will be required to :-

(a) examine the draft thematic development framrso:-e. for ti:e historyin the light of the survey findings to confir-. or modify theappropriateness of the documentary analysis;

(N.B. Physical examples of some themes may not occur).

(b) prepare a list of identified heritage items which relate toeach theme of historic development;

(c) describe the particular significance of the environmental heritageof the Shire of Dungog, its buildings, works, relics and placesof historical, scientific, cultural, social, archaeological,architectural , natural and aesthetic value, relating its physicaland built environment to its regional and state context, includinga concise ( should not exceed 100 words) statement of the environmentalheritage significance of the Shire of Dungog,

4. Implementation

The consultant will be required to

(a) analyse existing planning controls, local council policies onpublic lands, development pressures affecting identifiedheritage items etc, to identify existing conversationconflicts and problems;

(b)' recommend objectives, policies and strategies, both statutoryand non-statutory, to conserve the environmental heritageof the Shire of Dungog, and to resolve the conflicts identifiedin item 4(a) of the brief;

(c) recommend priorities for the interpretation and management of theenvironmental heritage of the Shire of Dungog.

5. Timing of Reports

The consultant will be required to prepare reports which incorporatethe results of the work outlined above as follows :-

(a) two ( 2) copies of a project work programme will be provided'."'..within two weeks of the date of commencement of the consul`tancyagreement;

(b) two (2) copies of a draft thematic development history will beprovided (item I above) within ten weeks of the date of commencementof the consultancy agreement.

(c) two (2) copies of a progress report on the inventory, analysisand implementation sections of the brief (items 2, 3 and 4 above)will be provided within 18 weeks of the date of commencement ofthe consultancy agreement;

(d) four ( 4) copies of a draft final report are required 24 weeksfrom the date of commencement of the consultancy agreement.

(e) twelve (12) copies of the final report and four (4) copies of thecomprehensive map are required two weeks after the submssion ofthe detailed comments of the Study Steering Committee. The finalreport will be presented in accordance with the Heritage Council ofNew South Wales Standard Format Guidelines for the presentation ofreports, (Annexure "A" to the brief).

6. Supervision

The study will be co-ordinated by a Steering Committee consisting oftwo representatives appointed by Dungog Shire Council .and two representativesappointed by the Department of Environment and Planning. The study will besupervised by joint project directors , one appointed by Dungog Shire Council and oneby the Department.

Yd,

- 4 -

7. Payment

The study is to be entirely funded by a grant from the National

Estate Programme . Payment will be made on the basis of the Steering

Committee' s recommendation to the project directors of the satisfactoryacceptance of the reports outlined in item 5 of the brief.

8. Copyright

Copyright is to be vested jointly in the Department of Environmentand Planning and the Council of the Shire of Dungog from the date of theconsultancy agreement . All work arising out of or in respect of the consultancywill remain in copy right unless it is approved for release by the Dungog ShireCouncil and Department of Environment and Planning.

9. Confidentiality

All work arising out of or in respect of or in any way connected

with this consultancy will remain confidential unless and until such release

is conjointly approved by the Dungog Shire Council and the Department of

Environment and Planning.

Explanatory Notes

THEAUSTRALIAICOMOSCHARTERFO THECONSERVATIO NOF PLACES OFCULTURALSIGNIFICANCE

(The Burra Charter)

PREAMBLEHaving regard to the InternationalCharter for the Conservation andRestoration of Monuments and Sites(Venice 1966), and the Resolutions of I5th General Assembly of ICOMOS(Moscow 1978), the following Charterhas been adopted by Australia ICOMOS.

DEFINITIONSARTICLE 1. For the purpose of this Charter:1.1 Place means site, area, building or other

work, group of buildings or other workstogether with pertinent contents andsurroundings.

1.2 Cultural significance means aesthetic,historic, scientific or social value for past,present or future generations.

1.3 Fabric means all the physical material ofthe place.

1.4 Conservation means all the processes oflooking after a place so as to retain itscultural significance. It includes fnainten-ance and may according to circumstanceinclude preservation , restoration , recon-struction and adaption and will becommonly a combination of more thanone of these.

1.5 Maintenance means the continuousprotective care of the fabric, contents andsetting of a place, and is to be distinguishedfrom repair . Repair involves restorationor reconstruction and it should be treatedaccordingly.

1.6 Preservation means maintaining the fabricof apiece in its existing state and retardingdeterioration.

1.7 Restoration means returning theEXISTING fabric of a place to a knownearlier state by removing accretions or byreassembling existing components withoutthe introduction of new material.

These notes do not form part of the Charterand may be added to by Australia ICOMOS.

ARTICLE 1.1Piece includes structures, ruins, archaeologicalsites and areas.

ARTICLE 1.5The distinctions referred to In Article 1.5,for example in relation to roof gutters, are:

maintenance - regular inspection andcleaning of guttersrepair involving restoration - returning ofdislodged gutters to their placerepair involving reconstruction - replacingdecayed gutters.

This revised Charter was adopted on 23rd February , 1981 . 1 1 Words in italics are defined in Article 1.

BURRA CHARTER

1.8 Reconstruction means returning apiece asnearly as possible to a known earlier stateand is distinguished by the introductionof materials (new or old) into the fabric.This is not to be confused with eitherre-creation or conjectural reconstructionwhich are outside the scope of thisCharter.

1.9 Adaptation means modifying a place tosuit proposed compatible uses.

1.10 Compatible use means a use which involvesno change to the culturally significantfabric, changes which are substantiallyreversible, or changes which require aminimal impact.

CONSERVATION PRINCIPLESARTICLE 2. The aim of conservation is toretain or recover the cultural significance of ap/ace and must include provision for its security,its maintenance and its future.

ARTICLE 3. Conservation is based on arespect for the existing fabric and should involvethe least possible physical intervention. Itshould not distort the evidence provided by thefabric.ARTICLE 4. Conservation should make use ofall the disciplines which can contribute to thestudy and safeguarding of a place. Techniquesemployed should be traditional but in somecircumstances they may be modern ones forwhich a firm scientific basis exists and whichhave been supported by a body of experience.

ARTICLE 5. Conservation of a place shouldtake into consideration all aspects of its culturalsignificance without unwarranted emphasis onany one at the expense of others.

Explanatory NotesThese notes do not form part of the Charterand may be added to by Australia ICOMOS.

ARTICLE 2Conservation should not be undertaken unlessadequate resources are available to ensure thatthe fabric is not left in a vulnerable state andthat the cultural significance of the place is notimpaired. However, it must be emphasised thatthe best conservation often involves the leastwork and can be inexpensive.

ARTICLE 3The traces of additions, alterations and earliertreatments on the fabric of a place are evidenceof its history and uses.Conservation action should tend to assist ratherthan to impede their interpretation.

Words in italics are defined in Article 1.

BURRA CHARTER ',

ARTICLE 6. The conservation policy approp-riate to a place must first be determined by anunderstanding of its cultural significance and itsphysical condition.

ARTICLE 7. The conservation policy willdetermine which uses are compatible.ARTICLE 8. Conservation requires the main-tenance of an appropriate visual setting, e.g.form, scale, colour, texture and materials. Nonew construction, demolition or modificationwhich would adversely affect the settingsshould be allowed. Environmental intrusionswhich adversely affect appreciation or enjoy-ment of the p/ace should be excluded.ARTICLE 9. A building or work should remainin its historical location. The moving of all orpart of a building or work is unacceptable unlessthis is the sole means of ensuring its survival.ARTICLE 10. The removal of contents whichform pan of the cultural significance of theplace is unacceptable unless it is the sole meansof ensuring their security and preservation.Such contents must be returned should changedcircumstances make this practicable.

CONSERVATION PROCESSESPreservationARTICLE 11. Preservation is appropriate wherethe existing state of the fabric itself constitutesevidence of specific cultural significance, orwhere insufficient evidence is available to allowother conservation processes to be carried out.

a

Explanatory NotesThese notes do not farm Part of the Charterand may be added to by Australia ICOMOS.

ARTICLE 8'New construction work, including infill andadditions, may be acceptable provided:

it does not reduce or obscure the culturalsignificance of the placeit is in keeping with Article 8.

ARTICLE 9Some structures were designed to be readilyremoveable or already have a history of previousmoves , e.g. prefabricated dwellings and poppet-heads. Provided such a structure does not havea strong association with its present site itsremoval may be considered.If any structure is moved it should be moved toan appropriate setting and given an appropriateuse. Such action should not be to the detrimentof any place of cultural significance.

ARTICLE-11Preservation protects fabric without obscuringthe evidence of its construction and use.The process should always be applied:

where the evidence of the fabric is of suchsignificance that it must not be altered.This is an unusual case and likely to beappropriate for archaeological remains ofnational importancewhere insufficient investigation has beencarried out to permit conservation policydecisions to be taken in accord withArticles 23 to 25.

New construction may be carried out in assoc-iation with preservation when its purpose is thephysical protection of the fabric and when it isconsistent with Article S.

Words in italics are defined in Article 1.

BURRA CHARTER

ARTICLE 12. Preservation is limited to theprotection, maintenance and where necessary,the stabilisation of the existing fabric but with-out the distortion of its cultural significance.

Restoration

ARTICLE 13. Restoration is appropriate onlyif there is sufficient evidence of an earlier stateof the fabric and only if returning the fabric tothat state recovers the cultural significance ofthe place.

ARTICLE 14. Restoration should reveal anewculturally significant aspects of the place. It isbased on respect for all the physical, document-ary and other evidence and stops at the pointwhere conjecture begins.

ARTICLE 15. Restoration is limited to thereassembling of displaced components orremoval of accretions in accordance withArticle 16.

ARTICLE 16. The contributions of all periodsto the place must be respected. If a placeincludes the fabric of different periods, revealingthe fabric of one period at the expense of anothercan only be justified when what is removed isof slight cultural significance and the fabricwhich is to be revealed is of much greatercultural significance.

Reconstruction

ARTICLE 17. Reconstruction is appropriatewhere a place is incomplete through damageor alteration and where it is necessary for itssurvival, or where it recovers the culturalsignificance of the place as a whole.

A

Explanatory NotesThese notes oo not form cart of the Charterand may be added to by Australia ICOMOS.

ARTICLE 12Stabilization is a process which helps keepfabric intact and in a fixed position. Whencarried out as a part of preservation work itdoes not introduce new materials into thefabric , However, when necessary for the survivalof the fabric , stabilization may be effected aspart of a reconstruction process and newmaterials introduced . For example , grouting orthe insertion of a reinforcing rod in a masonrywall.

ARTICLE 13See explanatory note for Article 2,

I

Words in italics are defined in Article 1.

BURRA CHARTER

ARTICLE 18. Reconstruction is limited tothe completion of a depleted entity andshould not constitute the majority of thefabric of a place.

ARTICLE 19. Reconstruction is limited tothe reproduction of fabric the form of whichis known from physical and/or documentaryevidence. It should be identifiable on closeinspection as being new work.

Adaptation

ARTICLE 20. Adaptation is acceptablewhere the conservation of the p/ace cannototherwise be achieved , and where theadaptation does not substantially detractfrom its cultural signiricance.

ARTICLE 21. Adaptation must be limitedto that which is essential to a use for thep/ace determined in accordance with Articles6 and 7.

ARTICLE 22 . Fabric of cultural significanceunavoidably removed in the process ofadaptation must be kept safely to enable itsfuture reinstatement.

CONSERVATION PRACTICEARTICLE 23. Work on a place must bepreceded by professionally prepared studiesof the physical , documentary and otherevidence , and the existing fabric recordedbefore any disturbance of the place.

ARTICLE 24. Study of a place by anydisturbance of the fabric or by archaeologicalexcavation should be undertaken wherenecessary to provide data essential fordecisions on the conservation of the p/ace

and/or to secure evidence about to be lost ormade inaccessible through necessary conrer-vation or other unavoidable action . Investig-ation of a place for any other reason whichrequires physical disturbance and which addssubstantially to a scientific body of know-ledge may be permitted , provided that it isconsistent with the conservation policy forthe place.

ARTICLE 25. Awritten statementof conser-vation policy must be professionally preparedsetting out the cultural significance, physicalcondition and proposed conservation processtogether with justification and supportingevidence, including photographs , drawingsand all appropriate samples.

ARTICLE 26 . The organisation and individ-_...._uals responsible for policy decisionsmhistbe

named and specific responsibiiitytakenfor

ARTICLE 29. The items referred to inArticle 10 and Article 22 should be profess-ionally catalogued and protected.

available.

ARTICLE 28. The records required by '. _Articles 23, 25, 26 and 27 should ba^plaeedin a permanent archive and made publidy_='1

recorded as in Article 25 above.

at all stages of the work and a log kept cf"`new evidence and additional decisions-

--each such decision.

ARTICLE 27. Appropriate professionaldirection and supervision must be maintained=

r

Words in italics are defined in Article 1. 1 Words in italics are defined in Anicle 1.

36

ANNEXURE 3: GUIDELINES TO THE BURRA CHARTER

CULTURAL SIGNIFICANCE

These guidelines for the establishment of cultural significancewere adopted by Australia ICOMOS on 14 April 1984. They explainaspects of Articles 6, 23, 25 and 28 of the Australia ICOMOSCharter for the Conservation of Places of Cultural Significance(Burra Charter) and should be read in conjunction with theCharter.

Contents

1.0 Preface

1.1 Intention of Guidelines

1.2 Applicability

1.3 Need to establish cultural significance

1.4 Skills required

1.5 Issues not considered

2.0 THE CONCEPT OF CULTURAL SIGNIFICANCE

2.1 Introduction

2.2 Aesthetic value

2.3 Historic value

2.4 Scientific value

2.5 Social value

2.6 Other approaches

37

3.0 THE ESTABLISHMENT OF CULTURAL SIGNIFICANCE

3.1 Introduction

3.2 Collection of information

3.3 The assessment of cultural significance

3.3.1 Extent of recording3.3.2 Disturbance of the fabric3.3.3 Hypotheses

3.4 Statement of cultural significance

3.5 The report

3.5.1 Content3.5.2 Written material

3.5.3 Graphic material3.5.4 Sources

4.0 PROCEDURES FOR UNDERTAKING THE TASK

4.1 Brief

4.2 Responsibility for the content of the report

4.3 Draft report

4.4 Urgent action

4.5 Additional expenditure

4.6 Recommendations for further investigation

4.7 Exhibition an