8.1 Implications Arising from Significance

Based on the statement of significance for Anzac Parade presented in Chapter 7, the following management implications arise.

The following attributes should be conserved:

• Anzac Parade overall;

• commemorative activities, at each memorial and in Anzac Parade as a whole;
• Anzac Parade as a public and accessible space;
• individual memorials, including as designed spaces that engage those who enter;
• New Zealand Memorial;
• relationship to the overall Land Axis and Australian War Memorial;
• formal symbolic landscape, including symmetry and plant use/selection to express this;
• openness of the Parade;
• views up and down the Parade along the Land Axis;
• the red colour of the median, both visually and symbolically, including the crushed brick paving;
• the contrast between the openness of the Parade and the tall, enclosing eucalypts that edge the Parade;  and
• street lighting.

These implications do not automatically lead to a given conservation policy in Chapter 9.  There are a range of other factors that must also be considered in the development of policy, and these are considered in the rest of this chapter.  Such factors may modify the implications listed above to produce a different policy outcome.

8.2 Legislative Requirements

The management of Anzac Parade operates within a legislative and quasi-legislative framework which includes the:

• Australian Capital Territory (Planning and Land Management) Act 1988 (Commonwealth);
• Public Unleased Land Act 2013 (ACT);
• Environment Protection and Biodiversity Conservation Act 1999 (Commonwealth);
• National Memorials Ordinance 1928 (Commonwealth);
• Copyright Amendment (Moral Rights) Act 2000 (Commonwealth);  and
• Building Code of Australia.

In addition, there are a range of relevant subsidiary plans and policies.  This framework and relevant elements are briefly described below.

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

Overview

The Act establishes the National Capital Authority, and requires the NCA to prepare and administer a National Capital Plan (National Capital Authority 2016).  The National Capital Plan defines Designated Areas and sets out detailed policies for land use and detailed conditions for planning, design and development within them.  Works approval must be obtained from the NCA for all ‘works’ proposed within a Designated Area.

Anzac Parade is part of the Central National Area – Constitution Avenue and Anzac Parade Precinct, and the area is a Designated Area as defined in the National Capital Plan.  Therefore all ‘works’ affecting the area require written approval from the NCA.

As noted in Section 2.1, the street verges on Anzac Park East and West are contiguous with Anzac Park although they are not part of the National Heritage place, and these areas are Territory Land subject to the Public Unleased Land Act 2013 (ACT) discussed below.

The following section provides a brief overview of the National Capital Plan.  However, the NCA also has an asset management role and this is separately described in Section 8.4.

It should be noted that the NCA is subject to the scrutiny of the Joint Standing Committee on the National Capital and External Territories of the Commonwealth Parliament.  The Committee has the power to inquire into the NCA.

National Capital Authority and National Capital Plan

The object of the plan (National Capital Authority 2016) is to ensure that Canberra and the ACT are planned and developed in accordance with their national significance.  In particular, the plan seeks to preserve and enhance the special characteristics and those qualities of the National Capital which are of national significance.

The plan describes the broad pattern of land use to be adopted in the development of Canberra and other relevant matters of broad policy.  The plan also sets out detailed conditions for the planning, design and development of National Land which includes Anzac Parade.  As noted above, works within a Designated Area require written approval from the NCA and must meet these detailed conditions.  Such works include:

• the construction, alteration, extension or demolition of buildings or structures;
• landscaping;
• tree removal;  and
• excavations.

Specific relevant sections of the plan include:

• general heritage objectives and principles (National Capital Plan, Sections 2.4.3-2.4.4);
• principles and policies for the Central National Area, and the Parliamentary Zone and its Setting (National Capital Plan, Sections 4.1 and 4.2);
• detailed conditions of planning, design and development for these areas (National Capital Plan, Sections 4.1 and 4.2);
• Constitution Avenue and Anzac Parade Precinct Code, also including detailed conditions of planning, design and development (National Capital Plan, Section 4.8);
• design and siting general code (National Capital Plan, Section 4.19);  and
• signs general code (National Capital Plan, Section 4.20).

Key extracts from the plan are provided below or reproduced at Appendix E.

The plan provides extensive and detailed guidance on a wide variety of matters.  It is difficult to distill the relevant guidance however, its scope includes:

• the role of the capital;
• preferred uses;
• character to be achieved/maintained;
• hydraulics and water quality;
• access;
• development conditions, including scale of development;
• parking and traffic arrangements;
• standard and nature of building, and urban design and siting, including landscaping;
• management planning for features;
• heritage places;
• signage;
• maintenance and management of the lake;  and
• infrastructure.

Key principles and policies

Key principles provided in the plan include,

‘The planning and development of the National Capital will seek to respect and enhance the main principles of Walter Burley Griffins’ formally adopted plan for Canberra…

The Parliamentary Zone and its setting remain the heart of the National Capital.  In this area, priority will be given to the development of buildings and associated structures which have activities and functions that symbolise the Capital and through it the nation.  Other developments in the area should be sited and designed to support the prominence of these national functions and reinforce the character of the area.’  (NCA 2016, p. 49)

It also provides a number of policies, of which a key one is as follows.

‘Major national functions and activities that are closely connected with workings of Parliament or are of major national significance should be located in or adjacent to the National Triangle…’  (NCA 2016, p. 49)

Land uses

Land use in Anzac Parade is Open Space, in the case of Anzac Park, and otherwise road reservations (NCA 2016, p. 117, reproduced in Appendix E).

Constitution Avenue and Anzac Parade Indicative Development Plan

An indicative development plan for Constitution Avenue and Anzac Parade is also provided in the National Capital Plan (NCA 2016, p. 129).  The plan provides a vision for development consistent with the National Capital Plan, however much of it relates to Constitution Avenue rather than Anzac Parade.  None the less, a few points to note include:

• extensive and largely continuous multi-storey buildings in the land between Parkes Way and Constitution Avenue, including possibly 7-8 storey development on land to the east of Anzac Parade on Constitution Avenue;  and
• Anzac Parade will continue to operate as a main avenue.

Figure 112.  Indicative Development Plan for Constitution Avenue and Anzac Parade

Source:  NCA 2016, p. 129

Public Unleased Land Act 2013 (ACT)

This Act protects the amenity and natural value of public unleased Territory land, and facilitates the use of public unleased land.  It also relates to public roads.  The Act does not apply to National land.

This Act deals with the management and protection of the Anzac Park East and West road verges which are outside of but contiguous with Anzac Park and the National Heritage place.

Environment Protection and Biodiversity Conservation Act 1999

Overview

This Act has certain relevant provisions relating to heritage places generally, and especially relating to places on the National Heritage List.  The Australian War Memorial and the Memorial Parade is entered in the National Heritage List.  As part of the Parliament House Vista, the Parade is also on the Commonwealth Heritage List.  Given the focus of this heritage management plan, only matters arising from the National Heritage listing are considered.

The EPBC Act requires approval from the Minister for the Environment for all actions likely to have a significant impact on matters protected under Part 3 of the Act.  This includes National Heritage (sections 15B and 15C), Commonwealth actions (section 28) and Commonwealth land (section 26).  Actions by the National Capital Authority may be Commonwealth actions and the Anzac Parade is Commonwealth land for the purposes of the Act.

The Act provides that actions:

• taken which have, will have, or is likely to have a significant impact on National Heritage values will require the approval of the Minister for the Environment;
• taken on Commonwealth land which are likely to have a significant impact on the environment will require the approval of the Minister;
• taken outside Commonwealth land which are likely to have a significant impact on the environment on Commonwealth land, will require the approval of the Minister;  and
• taken by the Commonwealth or its agencies which are likely to have a significant impact on the environment anywhere will require approval by the Minister.

Significant impact in the case of National Heritage is defined as follows.

‘A ‘significant impact’ is an impact which is important, notable, or of consequence, having regard to its context or intensity.  Whether or not an action is likely to have a significant impact depends upon the sensitivity, value, and quality of the environment which is impacted, and upon the intensity, duration, magnitude and geographic extent of the impacts.  You should consider all of these factors when determining whether an action is likely to have a significant impact on matters of national environmental significance.’  (DoE 2013, p. 2)

The definition of 'environment' in the EPBC Act includes the heritage values of places, and this is understood to include those identified in the National Heritage List and possibly in other authoritative heritage lists.  The definition of ‘action’ is also important.  Action includes:

• a project;

• a development;
• an undertaking;
• an activity or series of activities;  and
• an alteration of any of the things mentioned.

However, a decision by a government body to grant a governmental authorisation, however described, for another person to take an action is not an action for the purposes of the Act.  It is generally considered that a government authorisation entails, but is not limited to, the issuing of a license or permit under a legislative instrument.  (EPBC Act, Sections 523-4)

If a proposed action relating to National Heritage, on Commonwealth land or by a Commonwealth agency is likely to have a significant impact on National Heritage Values/the environment, it is necessary to make a referral under sections 68 or 71 of the EPBC Act.  The Minister is then required to decide whether or not the action needs approval under the Act, and to notify the person proposing to take the action of his or her decision.

In deciding the question of significant impact, section 75(2) of the EPBC Act states that the Minister can only take into account the adverse impacts of an action, and must not consider the beneficial impacts.  Accordingly, the benefits of a proposed action are not relevant in considering the question of significant impact and whether or not a referral should be made.

It is possible to obtain an exemption from seeking approval for an action if an accredited management plan is in place.  This plan is not an accredited management plan.

Other specific heritage provisions under the Act include:

• the creation of a Commonwealth Heritage List and a National Heritage List;  and
• special provisions regarding National Heritage (these are discussed below).

The EPBC Act is complex and significant penalties can apply to breaches of the Act.  Accordingly, a cautious approach seems prudent.

National Heritage listing

As noted above, this list is established under the EPBC Act.  Anzac Parade is listed on the National Heritage List as part of a larger heritage place including the Australian War Memorial (see Appendix A).

National Heritage places are protected under specific provisions of the EPBC Act, and in addition there are other provisions related to Commonwealth actions and Commonwealth land – as described above.  There are also provisions requiring the Minister for the Environment to develop a management plan to manage places on the National Heritage List which are also within Commonwealth areas, consistent with the National Heritage Management Principles and management plan requirements prescribed in regulations to the Act.

Appendix G records how this heritage management plan complies with the various EPBC Act requirements.

These National Heritage obligations apply to the NCA in addition to the broader protective provisions for heritage places under the EPBC Act.

This plan takes into account the existing National Heritage values of the study area, and provides for the conservation of formally identified attributes.  To the extent that the plan provides a refined understanding of the heritage values of the area, it generally encompasses the existing National Heritage values and expands or extends the values.  A table in Appendix G notes the policies and strategies in this plan which are relevant to the conservation of the attributes.

A summary of the statutory and other heritage listings relevant to Anzac Parade is provided in the following table.

National Memorials Ordinance 1928 (Commonwealth)

This Ordinance provides for the location and character of National Memorials in Canberra on National Land.  It establishes the Canberra National Memorials Committee which has the role of approving such memorials.

Any new memorials in Anzac Parade would require approval under this Ordinance.

Copyright Act 1968

This Act, amended in 2000, protects the moral rights of the creator of an art work (including a building), which includes architects, landscape architects and artists for designed aspects of Anzac Parade.  These moral rights are the unassignable personal right of the architects, landscape architects or artists to:

• be acknowledged as the architect, landscape architect or artist for the designed aspects of the place as the case may be (right of attribution);  and
• to object to derogatory treatment of the designed aspects, as the case may be (right of integrity).

These rights extend to the members of teams working on a design, where these members contribute to or have some authorship of the design.

Building Code of Australia

The Code, formally the National Construction Code, Volume 1, Building Code of Australia, is the definitive regulatory resource for building construction, providing a nationally accepted and uniform approach to technical requirements for the building industry.  It specifies matters relating to building work in order to achieve a range of health and safety objectives, including fire safety.

All building work in Anzac Parade should comply with the Code.  As far as possible, the NCA aims to achieve compliance with the Code, although this may not be entirely possible because of the nature of and constraints provided by existing circumstances.

8.3 Stakeholders

There is a range of stakeholders with an interest in and concern for Anzac Parade.  These include the:

• large number of individuals, groups and communities with an association with Anzac Parade overall and/or with specific memorials, including Service Associations;
• parts of the diplomatic community;
• the range of other users of and visitors to the area;
• Australian War Memorial;
• Commonwealth department responsible for heritage, currently the Department of Agriculture, Water and the Environment;
• Australian Heritage Council;
• those people who hold moral rights regarding the designed elements of the area;
• residents of adjacent suburbs, including their representative associations;
• National Trust of Australia (ACT);  and
• Walter Burley Griffin Society.

The interests of a few of these stakeholders are related to legislation which is separately described above.  The following text provides a brief description of the interests of the other stakeholders listed.

There are or may also be other organisations with an interest in the Parade, such as adjacent owners/managers of property, the Australian Institute of Landscape Architects, Planning Institute of Australia and the Reid Residents’ Association.  However, these possible interests have not been explored.

In addition, there may be other stakeholders related to the specific memorials.  While to some extent these stakeholders may fall into the general categories noted above, there may also be quite specific stakeholders with a very localised interest who are not.  Because this plan does not address the specific memorials in great detail, the full range of stakeholders for each of the memorials has also not been explored.

The National Capital Authority as the managing agency for the Parade and its interests are discussed in the following section.

It should be noted that much of this section derives from research undertaken for the 2013 version of the heritage management plan.

Individuals, groups and communities with an association with Anzac Parade overall and/or with specific memorials, including Service Associations

There are many individuals, groups and communities who have a substantial association with Anzac Parade overall, and/or with the specific memorials along its length.  They include:

• current and former Defence Force personnel;
• the Royal Australian Navy, Australian Army and Royal Australian Air Force;
• Returned and Services League of Australia (RSL);
• Returned Sisters’ Association;
• Naval Association of Australia, as well as other organisations/associations related to service in the Royal Australian Navy (eg. ship associations);
• organisations/associations related to service in the Australian Army (eg. the Royal Australian Regiment Association);
• RAAF Association, as well as other organisations/associations related to service in the RAAF (eg. squadron associations);
• Australian Korean Council of Veterans;
• Korean and South East Asian Forces Association;
• Kindred Organisation Committee;
• Vietnam Veterans Association of Australia;
• Australian Peacekeeper and Peacemaker Veterans’ Association;  and
• National Boer War Memorial Association.

Representatives from a number of these participated in the social and community aesthetic value research for this plan (see Chapter 4).  In the course of that research, a number of issues were raised which reflect the range of concerns for these individuals, groups and communities.  The issues relate to:

• changes to memorials, including maintenance, which can cause anxiety amongst the armed services community.  Such actions should be undertaken after due consultation, and what is being undertaken should be well-communicated on-site (by signage) and through prior contact with the relevant organisations;
• a lack of resources to support events in Anzac Parade that are initiated by the various armed service organisations is of concern, although this is not an issue for events undertaken by the three Defence services;
• at present the groups associated with memorials need to raise funds to hold annual commemorative activities.  This can mean they are not able to publicise activities as widely as they would like to.  By comparison, the Australian War Memorial is very strong on activities and promotion via its website;
• the level of support offered by the Australian War Memorial and the NCA is quite different, with less active support offered by the NCA.  Further, some organisations get active support from foreign governments (eg. the Republic of Korea), and both the Greek community and Embassy and the New Zealand High Commission support activities at specific memorials, and contribute to larger events such as Anzac Day;
• traffic is an issue of concern, although there is an appreciation that access by car is important for those who cannot ‘walk the Parade’.  The need to fund traffic management is a major issue (eg. closing roads for ceremonies).  The roads interfere with ceremonies.  The form of the kerbing limits the area that can be easily used.  With long-term thinking could Anzac Parade become a pedestrian mall?
• the failure to play the New Zealand anthem at Anzac Day ceremonies;
• school children and other tours should visit Anzac Parade;
• the split in management responsibilities between Anzac Parade and the Australian War Memorial is a problem – leading to inconsistent interpretation, a failure to link the interpretation across the two places – could the Australian War Memorial manage all events for Anzac Parade but not otherwise manage the place?
• the opportunity to engage members of the armed services community in the interpretation;
• using the memorials more – make it easier to hold commemorations there – it is now easy to hold commemorations in the Australian War Memorial – which may reduce demand for additional memorials along Anzac Parade (eg. Battle of Britain commemorations could be held at the RAAF memorial) – encourage veterans organisations to get behind this idea;
• further memorialisation within Anzac Parade – there is a desire to maintain the valued attributes of the place, a desire to retain memorialisation within a defined area because this offers due respect and recognition, a corresponding dislike of the idea that future memorials could be relegated to another place unless that place had particular relevance, noting that some memorials have been designed to allow the addition of extra information, a general view that the Australian War Memorial is where the Roll of Honour should be, a desire to retain the focus of memorials and Anzac Parade as a place to remember people rather than a ‘service’ or conflict;
• suggestions on future memorialisation included virtual memorials and memorial paving;  and
• the need for facilities – water bubblers, covered seating, parking and toilets.

Parts of the diplomatic community

Because of the nature of some of the memorials, parts of the diplomatic community have a strong connection to these memorials and possibly to Anzac Parade overall.  This includes the:

• New Zealand High Commission;
• Embassy of Greece;
• Turkish Embassy;  and
• Embassy of the Republic of Korea.

In general, these parts of the diplomatic community provide support for and participate in commemorative activities, and have an ongoing interest in the memorials and such activities.  They also have an interest in the use and interpretation of memorials, and in supporting associated communities and their connections to memorials.

Other users and visitors

Anzac Parade attracts a wide range of people for a variety of reasons.  Many of these include the stakeholders discussed above.  In addition, there are other users and visitors who come to the Parade particularly for sight-seeing and tourism reasons, but also for recreation such as walking or jogging.

General issues likely to be of concern include:

• access to interpretive materials;
• access for users and visitors, including by public and private transport, by car and bus;
• parking for users and visitors;
• facilities for users and visitors (eg. toilets and food outlets);
• coordination in the case of major events;  and
• developments or adjacent developments affecting the Parade, including construction-phase impacts.

In addition, Anzac Parade is a significant thoroughfare for commuters passing through the area.  While information about their interests have not emerged through the research, it is assumed commuters have at least a utilitarian interest in the Parade associated with travel, perhaps coupled with an appreciation of the aesthetic qualities of the landscape.

Australian War Memorial

The Australian War Memorial has a powerful presence at the head of Anzac Parade and has a very strong relationship to the Parade.  Anzac Parade forms part of the ceremonial space for major events held at the Australian War Memorial, such as the Anzac Day Veterans’ March.  It is also part of the significant vistas to and from the Australian War Memorial.  As an organisation, the Australian War Memorial is keenly interested in Anzac Parade.

There is also a strong visitor experience link between the Parade and the AWM – for example veterans’ groups may hold a ceremony at a specific memorial along the Parade and then move up to the AWM for other activities.  School groups also tend to start with the Parade and then afterwards visit the AWM.

There is a complementarity of commemorative activities between the Australian War Memorial and Anzac Parade, given the opportunity to place commemorative plaques and other features within the grounds of the AWM.  The grounds have become the location for many smaller commemorative features, as well as some larger features, while the Parade is generally the location for more substantial memorials.  One recent larger commemorative feature located in the AWM grounds is the National Service Memorial which was dedicated in 2010.

There have been connections between the public programs of the AWM and Anzac Parade in the past, although these have not continued.

Current or past issues have included:

• pedestrian access between the AWM and Anzac Parade, and the need to cross the wide and reasonably busy Fairbairn and Limestone Avenues.  The pedestrian lights create a bottleneck;
• some variability in maintenance standards for the Parade over time, especially compared to the AWM;
• a past proposal for new First World War and Second World War memorials in Anzac Parade;
• the design of traffic infrastructure in Anzac Parade;
• development of Section 5, Campbell, adjacent to the study area;  and
• provision of visitor facilities in Anzac Parade, especially toilets.

In an inquiry about National Memorials, the AWM made the following general recommendation regarding Anzac Parade,

‘The Australian War Memorial would welcome being consulted and its advice sought for any device being contemplated along and beyond the ANZAC Parade axis.’  (Australian War Memorial submission to the Joint Standing Committee on the National Capital and External Territories Inquiry into the administration of the National Memorials Ordinance 1928, September 2011)

Moral rights holders

There are a range of architects, landscape architects, artists and possibly other designers who may hold moral rights over Anzac Parade overall or specific parts of it.

The full list of potential moral rights holders has not been researched, in particular regarding the many individual memorials.

Residents of adjacent suburbs, including their representative associations

The residents of Reid and Campbell live adjacent to Anzac Parade, many close to or immediately opposite it.  Accordingly, activities within the parade can be of considerable interest to these residents.

In a similar way, the representative associations of residents from these suburbs may be considered as focal points for these interests.  The relevant associations are the Reid Residents’ Association and Campbell Community Association.

National Trust of Australia (ACT)

The Trust is a community-based heritage conservation organisation.  It maintains a register of heritage places, and generally operates as an advocate for heritage conservation.  Listing on the Trust's register carries no statutory power, though the Trust is an effective public advocate in the cause of heritage.

The Trust has registered Anzac Parade.

The Trust is keenly interested in developments within Anzac Parade as well as developments outside the Parade which might have an impact on the place itself.  It has been active in commenting on such developments.

Walter Burley Griffin Society

The Society commemorates the lives and works of Walter Burley Griffin and Marion Mahony Griffin, and promotes the environmental ideals and community life they fostered in Australia.  It also actively promotes the conservation of the Griffins' legacy in its diverse forms and on three continents – America, Australia and India.  This includes places they designed that were built and survive, their designs, unrealised projects, plans, articles and talks given.

The Society has been keenly interested in developments within Anzac Parade, as an important element of the Griffin plan for Canberra, as well as developments outside the Parade which might have an impact on the place itself.  It has previously been active in commenting on such developments.

8.4 Management Context, Requirements and Aspirations

This section deals with:

• current NCA management structure and systems;
• uses and users of Anzac Parade;
• interpretation;
• management issues, including traffic and the road system;  and
• future requirements and aspirations.

Current NCA management structure and systems

Anzac Parade and its memorials are generally the responsibility of and managed by the National Capital Authority.

General management framework

The NCA is an Australian Government statutory authority established under the Australian Capital Territory (Planning and Land Management) Act 1988.  This Act is briefly described in Section 8.2 above, especially with regard to the National Capital Plan and the works approval role of the NCA.

The NCA undertakes design, development and asset management for some of the National Capital's most culturally significant landscapes and national attractions, including Anzac Parade, as well as for other assets located on National Land.  Asset management is a key aspect in meeting the NCA’s commitment to maintaining high-quality public facilities across the National Capital Estate.

The NCA has an asset management policy underpinned by a strategic asset management plan.  Asset management plans for each asset class are updated regularly and provide more detailed tasks and activities that are undertaken by the NCA.

In managing its assets, the NCA aims to ensure that maintenance and repair are consistent with their design intent, and support the objectives of the National Capital Plan.

The NCA has a management structure relevant to Anzac Parade.  In the 2018-19 financial year the NCA’s overall expenditure was $57.9 million and it had 69 ongoing and non-ongoing employees.

Day-to-day management, maintenance and operation

The Estate Management Unit has responsibility for all aspects of asset management on National Land.  The Design and Construction Unit delivers the NCA's capital works program.  Works can include regular maintenance, works to enhance or protect national assets, construction of public infrastructure, and development of the landscape settings for new building sites, public parks and places, commemoration and celebration.

The Estate Management Unit has responsibility for the management and maintenance of Anzac Parade.  The Parade is maintained under contracts for various components or classes of work, and relate to the:

• landscape (irrigation systems, hard surfaces, plants, lawn and garden areas);
• treescape;
• cleaning;  and
• memorials, artworks and fountains.

The NCA has appointed a managing contractor for achieving service standards for maintenance across all NCA managed buildings, roads, paths, lighting and utilities to ensure community safety is protected.  This includes for the Parade.

The National Capital Activation and Events Unit manages events undertaken by others on the Parade, which are mostly related to commemorative activities.

Works approval

The Statutory Planning and Heritage Unit has a role in assessing and, where appropriate, providing works approval under the National Capital Plan, as discussed in Section 8.2 above.

Heritage management plans and Guidelines for Commemorative Works

Another layer of management guidance for significant places relevant to the Parade are several heritage management plans.  The relevant plans are for the:

• Parliament House Vista (Marshall and others 2010b), which includes Anzac Parade;  and
• for the Australian War Memorial (GML Heritage 2022), being adjacent to the Parade and the other part of the single National Heritage place which includes the Parade.

The guidance provided in these plans has been taken into account in the development of conservation policies and strategies in Section 9.3 below, with the aim of achieving consistency and compatibility.

In addition, the NCA has developed guidelines for commemorative works in the National Capital (NCA 2002).  These guidelines provide a range of objectives, values and general criteria for commemorative subjects, as well as defining the type of memorials that can be sited in Anzac Parade,

‘Memorials that commemorate Australian Defence Force service in all wars or warlike operations.’  (NCA 2002, p. 13)

Uses and users of Anzac Parade

The study area is used by a range of users for a range of uses, and these are described in the preceding section regarding stakeholders.  There are individuals, groups and communities who use either part of the Parade, such as an individual memorial, or those who use the whole space for commemorative activities.  Apart from the major events such as Anzac Day ceremonies, about five other smaller commemorative activities take place each year which require NCA involvement.  Some small activities may not involve the NCA.

There are others who are tourists, as well as recreational users, who visit or use the Parade and its memorials.

Many of these uses have formed strong associations that are now recognised as part of the significance of the study area, as discussed in Chapter 4.

Interpretation

Overall, Anzac Parade, as well as its component memorials, are major public attractions in Canberra.  They are also the focus of several simple interpretive activities provided by the National Capital Authority.  These include:

• information on the NCA’s website;
• guided walking tours, promoted on the NCA’s and Visit Canberra website;
• inclusion of material in a secondary education kit;  and
• a self-guided walking tour brochure available from various outlets as well as the NCA’s website;

Key management issues

The NCA is aware of a range of management issues relating to Anzac Parade.  These include:

• managing the range of issues related to current and possible future memorials, including the limited current number of memorial niches, and possible changes and upgrades to existing memorials;
• tree management including occasional replacement plantings, and ensuring screening of the memorials from developments adjacent to the Parade (see below);
• addressing the poor condition of the Hebe species in the planter beds along Anzac Parade (see below);
• visitor safety issues;
• environmental sustainability of the landscape, including water use and weed management;
• access for visitors, including by public and private transport, by car and bus;
• pathway access to the memorials from Anzac Park East and West;
• parking for visitors;
• facilities for visitors (eg. toilets, water points and rest places);
• the use of temporary tent structures on the Parade related to commemorative activities;
• signage, including traffic, tourism and interpretive signs;
• outdoor ceremonial functions;  and
• construction-phase impacts.

In the case of individual memorials, specialist materials conservators are used as needed.  Potential issues relate to the performance of glass panels at the Nurses’ memorial, and the arrangements with the pump equipment at the Navy memorial.

It should be noted that there are no proposals for any divestment of land within the study area, no special security issues or requirements, and no confidential information beyond normal commercial and government activities.

Tree management

In the past, it was thought that the plantations would need to be replaced because of the poor health of the trees.  However, in 2014 the NCA took a pragmatic approach which lay in basic sustainable horticultural practices, in the hope that this would improve the condition of the trees.  A program was undertaken consisting of:

• selective tree removal and replacement;
• removal of wildlings;
• coring and composting the soil;  and
• deep mulching of the plantation.

This has resulted in the remaining trees bouncing back to reasonably good health, with only one tree requiring removal in 2019.  It is noted that the majority of trees, even in the middle of a drought, are in fair to good condition.

Selective removal and replacement will continue as required, although extensive replacement is not anticipated.  This includes the removal of trees in poor condition over the longer term to re-establish the original planting pattern.  However, the depth of the mulch layer is diminishing and will require further replenishment soon.

The trees will require more management and maintenance in coming years as they age, and a landscape management plan (detailed below) should be prepared to guide this.  At present there are no guidelines for tree management and maintenance, although the health of the plantation is assessed annually.

The NCA is also currently developing a tree management policy which will be a higher level policy document related to the management of all trees within the NCA’s estate.  This should also provide a broad framework for management of the plantations.

Landscape Maintenance Plans

It is suggested that achieving more consistent maintenance for both the broader landscape and its individual components would require the development of one or more landscape maintenance plans.  Such plans, possibly for each type of landscape within the place, would provide clear objectives and outcomes, methods, guidance, predictability, continuity and procedural compliance for both NCA staff and contractors.  At present there are no such plans or similar documents.

8.5 Condition and Integrity

The condition and integrity of Anzac Parade is discussed in this section.  It begins with an overview of its condition and integrity, and this is followed by more detail about the attributes of the study area.  After this, there is a discussion about two particular issues.

In this plan, the condition of values is presented in terms of the condition of attributes which embody those values.

Overview

Anzac Parade is a reasonably large landscape and in broad terms, the area is in fair condition and displays a high level of integrity.  However, there is some variability amongst components, with some being in good condition and others being in poor to very poor condition, and with some variability in the integrity of components.

Condition and integrity of attributes

In the following table, condition relates to the state of the attribute, often the physical state – for example an original gravel path which is badly eroded would be a condition issue.  Integrity relates to the intactness of the attribute – for example a modern cobblestone path replacing an original gravel path might be an integrity issue irrespective of its condition.  It is often useful to distinguish between these matters, especially as integrity relates closely to significance.

Given the reasonably large nature of some of the components listed in the table, the judgments about condition and integrity are made on a broad basis.  Within these components there may also be considerable variation in the condition and integrity.

The attributes in the table are listed in the order derived from the statement of significance in Section 7.1.  In the case of individual memorials, these were not assessed in detail as part of this plan.

General condition issues

A number of general conditions issues were noted during inspections of the place:

• deterioration of bronze memorial identification signs;
• timber seat paintwork deteriorated;
• irrigated grass is patchy in places;
• mulch cover is thin in places;  and
• concrete joints sealant deteriorated.

Plantings

Eucalyptus plantations

A number of issues associated with the plantations (primarily dead, diseased, dying or dangerous trees) and various management issues have been identified in previous reports over the years.  There have also been gaps in the plantings because of losses, and wildlings.  Many issues have now been addressed.

The condition of the individual Blue Gum trees varies, but in general the tree asset is in a fair to good condition (95%) based on a 2018 survey.  Tree health is assessed annually.  They have undergone a significant management program since 2014, which has:

• seen their soil cored and enriched with large amounts of composted material;
• the surface mulched extensively to 100 mm;
• wildlings removed;  and
• dead trees systematically removed and replaced.

However, the trees will require a continuous management and maintenance program in coming years as rainfall and temperatures vary and the soil profile breaks down from time to time.  This can be achieved by a landscape management plan for the plantation, as at present there are no guidelines for the maintenance or management of the plantation.

Native grasses

There has been limited success in the establishment of an understorey of native grasses due to several factors, most notably:

• the lack of sufficient direct sunlight in their chosen locations;  and
• the species used.

Establishment has been poor where the tree canopy is heavy and competition is high.

Hebe plantings

In 2012, the Hebes which had previously performed poorly were replaced with a new cultivar namely Hebe ‘Otari delight’.  This was implemented over a period between late 2011 and November 2012 and handed over to NCA in November 2013 after a 12 month consolidation period.

The replacement cultivar was chosen after a trial was run of two species over a six month period which included the summer months.

In general terms, the re-planting has mostly been unsuccessful, and a separate review has been commissioned by the NCA into the reasons for this outcome.  The review has found that the plants have performed poorly because of several soil-borne diseases and other contributing factors.

The NCA will develop a replacement strategy, including a comprehensive manual for ongoing maintenance which will address any lessons learnt from the recent investigation which led to the discovery of the diseases.  Further laboratory testing is also proposed to help ascertain the heat tolerance of the plants so that appropriate details can be added to the manual.  Protocols to minimise the future introduction of diseases will be documented.

Full replacement of the plants is required due to the diseases being expected to be located throughout the soil profile of each bed, right down to the drainage layer.  All materials and equipment will need to be removed and/or sterilised, with careful quality assurance with regards to all replacement materials and products.

A number of the critical lessons learnt from the recent investigation will be documented in the maintenance manual:

• ensuring appropriate irrigation timing, frequency and monitoring;
• ensuring sufficient mulch;
• minimising the opportunity for clay pans to form in the planter bed soil profile;
• ensuring that soil chemistry is correctly balanced;
• ensuring that plant spacing/clearance minimises the opportunity for diseases to flourish;
• ensuring plant pruning is targeted to best enhance plant growth and presentation;  and
• documentation and introduction of a long-term and orderly replacement strategy to avert future major plant failures.

The following additional observations were made as a result of the development of this heritage management plan.

Planter beds

The planter beds are made of a concrete construction with a cantilevered top surround.  It is noted that the top of the planter beds sit approximately 400 mm above the ground.  It is understood that the soil within the beds is open to the ground below.

In the planter beds with the remaining plantings from 2012, the soil profile sits at approximately 150 mm below the top of the planter bed surround.

At some stage after 2013, the dripper irrigation system was turned off because of flooding issues and perimeter micro sprays on risers were installed.

In the planter beds with the remaining 2012 plantings, the following was observed;

• Most of the plants are only at 350 to 400 mm centre to centre.
• There are dead and dying plants in the middle and around the edges of the bed.
• Many of the plants are only 75-100 mm from the edge of the planter bed wall.
• The water from the micro sprays cannot reach the base of most plants.
• There is no mulch evident in most beds.
• There is a large amount of irrigation infrastructure impeding good root growth in the beds.

2019 planted beds

There are nine planter beds which have been replanted in 2019, and in these, the soil profile sits approximately 75 mm below the top of the planter bed surround, with a thin layer of tan bark as mulch, which sits approximately 50 mm below the top of the planter bed surround.

The planting layout is inconsistent across the nine planter beds.  Some beds have plants at 450 to 500 mm centres, planted in a triangular pattern, whilst in others, there are rows

750 mm apart, and others with a linear planting pattern.  Additionally some beds have given plants more root space at the edge of the bed, with the planting space close to 350 mm, whilst others are planted at approximately 100 mm from the edge.  There are both gaps and overcrowding of plants.

In the nine newly planted beds, the following was observed:

• Most of the plants are at still 400 mm centres.  There are some at between 450 to 500 mm apart.
• There are different planting patterns in all nine beds.
• There are variations in the number of plants in each bed due to different planting layouts.
• The plant spacing is uneven.
• The plants too close to the edge of the planter beds.
• There is a large amount of irrigation infrastructure impeding good root growth in the beds.
• The sprayers will still be blocked by full grown plants.
• Spray will continue to be blown across Anzac Parade.

General environment for the plantings

The red gravel parade ground setting, together with the bitumen roads, is an exposed environment.  The eucalypts provide some shelter from cross winds.  However, in summer it experiences extreme temperatures being affected by hot summer drying northerly winds.  In winter it is exposed to cold winds which blow from the southern alpine regions, and the area is exposed to frost.

Aesthetically, the pavement provides the necessary setting and visual cues such as colour, repetition, structure, order and practicality for the purpose for which it exists.  However, as an environment in which to grow plants successfully, it is now becoming very challenging.

Memorials

Over time the NCA has commissioned condition assessments of the various memorials, and these are generally provided as individual reports.  The details in these reports have not been considered in the preparation of this heritage management plan because the plan does not address the memorials in detail.

None the less, a number of observation were made during the course of preparing this plan about the condition of some of memorials:

• Australian National Korean War Memorial – some dead plants/shrubs;
• Australian Vietnam Forces National Memorial – minor damage to concrete ramp wall, broken granite paver;
• Desert Mounted Corps Memorial – cracked, loose and missing slate pavers, rear drain blocked with leaf litter;
• Boer War Memorial – minor cracking to the concrete paving;
• New Zealand Memorial – in need of a minor tidy-up, removal of some weeds, and the recessed light pits cleaned out;
• Australian Service Nurses National Memorial – pavement heaving, trip hazards, joint sealant deteriorated, dead shrubs;
• Royal Australian Navy Memorial – rear screen plantings patchy/in poor condition;  and
• Kemal Ataturk Memorial – landscape plantings are patchy.

Boundary of the place

The current National Heritage place boundary stops at Constitution Avenue.  However, this excludes a section of Anzac Parade between the avenue and Parkes Way.  There is an arguable case that this short section should be included in the listed place, even if it is not used for the location of memorials.  It is part of Anzac Parade, and shares many of the same values as the remainder of the Parade.  Similarly, the street verges in Anzac Park East and West might also be included.  There is also an argument that Mount Ainslie should be part of the overall National Heritage listed place.

8.6 Issues Related to the Broader Setting

There are several other issues relating to the broader setting of Anzac Parade.  The broader setting is important to the values of the study area.

The National Capital Plan anticipates substantial change and development along Constitution Avenue, including between the avenue and Parkes Way.  As noted above, the nature of the Constitution Avenue roadway is expected to change as it becomes a more substantial road, and more intensive and taller development is planned along the avenue.

Figure 126.  Indicative Development Plan for Constitution Avenue and Anzac Parade

Source:  NCA 2016, p. 129

An earlier study related to the proposed developments along Constitution Avenue recommended plantings to help screen the developments (Lester Firth & Associates 2007, p. 14), as indicated below.

Consistent with this, development of Section 5 of Campbell, just to the east of Anzac Parade, is proceeding with some buildings already completed.

The National Capital Plan makes special mention of the Campbell development,

‘Particular attention should be given to the building form/façade at the corner of Anzac Parade East and Constitution Avenue. The design of buildings should be articulated using a variety of messing [sic]; solids and voids; and materials and colours to ameliorate any impacts on the adjacent National and Commonwealth Heritage listed places.

Buildings should not intrude on the public appreciation of the eastern handle of the New Zealand Memorial as the gateway to the Memorial Parade or interrupt the symmetrical characteristics of the East and West portal buildings in framing the Parliament House Vista.

The architectural design of the buildings on Site C must be sympathetic to the heritage values of the adjacent National and Commonwealth Heritage listed places.’  (NCA 2016, p. 133)

The National Capital Plan also includes details of the proposed landscape treatment behind the eastern part of the New Zealand Memorial in order to screen the new development from the Parade and provide a suitable backdrop for the memorial.  This is indicated in the following figure.

This screening work is yet to be undertaken, and the problem it seeks to address is very noticeable.  This problem also arises with several other memorials along the eastern side of the Parade, especially the Peacekeeping and Tobruk memorials, but also with the Navy memorial.  The current impact of the new developments along Anzac Park East are significant.  The new buildings dominate views from the Parade and diminish the appreciation of the memorials.

In addition, Anzac Park East has been demolished in anticipation of redevelopment of the site.  The success in preserving the symmetrical portal effect through this redevelopment, and that of Anzac Park West, should be a priority for the NCA as the planning authority for these sites.

There have also been various proposals to change the nature of Parkes Way over time, possibly including the Rond Pond.  However, no specific plans have yet been agreed.

9.1 Objective

The objective of this policy is to achieve the conservation of the National Heritage values of Anzac Parade, as part of the Australian War Memorial and the Memorial Parade National Heritage place.

This policy also seeks to complement the conservation policy provided in the Australian War Memorial Heritage Management Plan (GML Heritage 2022).

9.2 Definitions

The definitions for terms used in this plan are those adopted in the Burra Charter, The Australia ICOMOS Charter for places of cultural significance (Australia ICOMOS 2013), a copy of which is provided at Appendix F.  The Burra Charter is the national standard for cultural heritage conservation acknowledged by government heritage agencies around Australia.   Key definitions are provided below.

Place means a geographically defined area.  It may include elements, objects, spaces and views.  Place may have tangible and intangible dimensions.

Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations.  Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects.

Fabric means all the physical material of the place including elements, fixtures, contents and objects.

Conservation means all the processes of looking after a place so as to retain its cultural significance [as listed below].

Maintenance means the continuous protective care of a place, and its setting.  Maintenance is to be distinguished from repair which involves restoration or reconstruction.

Preservation means maintaining a place in its existing state and retarding deterioration.

Restoration means returning a place to a known earlier state by removing accretions or by reassembling existing elements without the introduction of new material.

Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the introduction of new material.

Adaptation means changing a place to suit the existing use or a proposed use. [Article 7.2 states regarding use that: a place should have a compatible use]

Compatible use means a use which respects the cultural significance of a place.  Such a use involves no, or minimal, impact on cultural significance.

Interpretation means all the ways of presenting the cultural significance of a place.

9.3 Conservation Management Policy and Implementation Strategies

The following table provides an index to the policies and strategies for Anzac Parade, organised according to the major categories of:

• general policies;
• liaison;
• landscape;
• built elements;
• setting;
• use;
• new development;
• interpretation;
• unforeseen discoveries;
• keeping records;  and
• further research.

The table also gives an indication of the priority for the policies and strategies, and a timetable for their implementation.  After the table are the policies and strategies.

Australian War Memorial Heritage Management Plan

A review of the conservation policy in this plan for the Australian War Memorial (GML Heritage 2022) found that it complemented the following policy for Anzac Parade.  There are no apparent inconsistencies or gaps in policy coverage between the two plans.

Parliament House Vista Heritage Management Plan

A review of the conservation policy in this plan for the Vista (Marshall and others 2010) found that it complimented the following policy for Anzac Parade.  There are no apparent inconsistencies or gaps in policy coverage between the two plans.

General Policies

Policy 1 Significance as the basis for management, planning and work

The statement of significance provided in Chapter 7 will be a principal basis for management, future planning and work affecting Anzac Parade.

Policy 2 Adoption of Burra Charter

The conservation and management of the place, its fabric and uses, will be carried out in accordance with the principles of the Burra Charter (Australia ICOMOS 2013), and any revisions of the Charter that might occur in the future.

Policy 3 Adoption of policies

The policies recommended in this management plan will be endorsed as a primary guide for management, as well as future planning and work for Anzac Parade.

Implementation Strategies

3.1 The NCA will adopt the priority and implementation timetable for policies and strategies which is indicated in Table 10.

Policy 4 Compliance with legislation

The NCA must comply with all relevant legislation and related instruments as far as possible, including the:

• Australian Capital Territory (Planning and Land Management) Act 1988;
• Environment Protection and Biodiversity Conservation Act 1999;
• National Memorials Ordinance 1928;
• Copyright Amendment (Moral Rights) Act 2000;  and
• Building Code of Australia.

In addition, it must comply with relevant subsidiary requirements arising from this legislation and related instruments.

Implementation Strategies

4.1 The NCA will manage the formal National Heritage values of Anzac Parade consistent with the requirements of the EPBC Act.

Commentary:  The overall suite of policies and strategies in this plan help achieve this strategy.

4.2 The NCA will assist the Minister for the Environment comply with the obligations under section 324S of the EPBC Act and the related regulations to:

• publish a notice about the making, amending or revoking of this plan;
• advise the Minister about the making, amending or revoking of this plan;  and
• seek and consider comments.

4.3 The NCA will consult with the Department of Agriculture, Water and the Environment about the apparent need for, and process to review the appropriateness of the current boundaries for Anzac Parade.

Commentary:  It is apparent the current boundaries of the National Heritage listed area may not be the most appropriate to fully capture the significance of the Parade.  The short section between Constitution Avenue and Parkes Way should be considered for inclusion.  It may also be desirable to include the street verges on Anzac Park East and West, as well as Mount Ainslie.

4.4 Where the NCA is not able to achieve full compliance with relevant legislation, the non-complying aspect will be noted and the reasons for this situation appropriately documented.

Commentary:  This might arise, for example, with regard to the Building Code of Australia.

Policy 5 Planning documents for or relevant to the Place

All planning documents developed for Anzac Parade or parts of the place will refer to this management plan as a primary guide for the conservation of the heritage values of the Parade.  The direction given in those documents and in this plan will be mutually compatible.

The NCA will promote acknowledgment and acceptance of the heritage values of the place through any conservation management planning or other planning for areas which are within, include or are adjacent to Anzac Parade.

Commentary

Components within Anzac Parade, especially the individual memorials, may at some stage be subject to separate conservation management plans.  In addition, the remainder of the National Heritage place, the Australian War Memorial, has a heritage management plan, and there is a plan for the overall Parliament House Vista which includes the Parade.

As noted, the guidance in this plan and in the plans for other relevant places should be compatible.

These other documents might have an impact on this management plan, and therefore lead to revisions in accordance with Policy 9.

It is also noted the Parliament House Vista plan proposes the development of a tree management plan and tree replacement strategy which need to be coordinated with this plan (PHV Policy 19 and Strategy 20.1).

Policy 6 Integrated management of components

The NCA will seek to achieve integrated management between the Parade and the Australian War Memorial, to ensure a consistent approach to management and commemoration, and engagement with and support for the armed services community.

Commentary:  This includes the full range of activities undertaken by management, including planning and interpretation.

Implementation Strategies

6.1 The NCA and Australian War Memorial should consider establishing an ongoing consultation mechanism to help achieve integrated management of the National Heritage place.

Policy 7 Training and access to expertise

People involved in the conservation, management, maintenance and interpretation of the place will be suitably qualified and receive training about the specific qualities and context of Anzac Parade.

The NCA will also ensure it uses suitable experts to advise on such matters.

Implementation Strategies

7.1 The NCA will develop and implement a simple training program for staff and contractors involved in the conservation, management, maintenance and interpretation of Anzac Parade.  The program will include information about the specific qualities and context of the place, including its protection under the EPBC Act.

7.2 People with relevant expertise and experience in the management or conservation of heritage properties will be engaged for the:

• provision of advice on the resolution of conservation issues;
• for advice on the design and review of work affecting the significance of the place;  and
• to assist the NCA with statutory obligations (eg. heritage impact assessments).

7.3 The NCA will identify the names of people with relevant expertise and experience in the management or conservation of heritage properties, for actions implementing or extending this plan, and for other heritage related tasks.

Commentary:  Such names may be identified through professional bodies and the Commonwealth department responsible for heritage.

Policy 8 Decision making process for works or actions

The NCA will ensure that it has an effective and consistent decision-making process for works or actions affecting the place, which takes full account of the heritage significance of the place.  All such decisions will be suitably documented and these records kept for future reference.

Implementation Strategies

8.1 The process will involve:

• early consultation with internal and external stakeholders relevant to the particular decision, including consideration of the values held by associated communities not able to be directly consulted;
• an understanding of the original and subsequent designs, and later changes to the place involved;
• documentation of the proposed use or operational requirements justifying the works or action;  and
• identification of relevant statutory obligations and steps undertaken to ensure compliance.

Commentary:  See Policy 11 regarding stakeholders.

8.2 The NCA will consider maintaining a log of actions with cross-referencing to relevant documentation.

8.3 Where some work is not able to be undertaken because of resource constraints, work will be re-prioritised according to the following criteria to enable highest priority work to be undertaken within the available resources.  Prioritising work to heritage components or elements will be decided on the basis of:

• in general terms, the descending order of priority for work will be maintenance, restoration, reconstruction, adaptation and new work, where such work is appropriate.  However, this priority order may be influenced by conditions attached to funding (eg. government decisions may tie funding to particular works);
• work related to alleviating a high level of threat to significant aspects, or poor condition will be given the highest priority followed by work related to medium threat/moderate condition then low threat/good condition;  and
• the level of threat/condition will be considered in conjunction with the degree of significance (for example aspects in poor condition and of moderate significance might be given a higher priority compared to aspects of moderate condition and high significance).

Commentary:  It is noted that new work/development by the NCA may be funded with conditions which override this policy.

8.4 If a conflict arises between the achievement of different objectives, the process for resolving this conflict will involve:

• reference to the conflict resolution process outlined in the NCA’s Heritage Strategy;
• implementation of a decision-making process in accordance with Policy 8;
• compliance with the Burra Charter, in particular Articles 5.1 and 13;
• possibly involving heritage conservation experts in accordance with Policy 7;
• possibly seeking the advice of the Department of Agriculture, Water and the Environment;  and
• possibly seeking a decision from the Minister under the EPBC Act.

In the last case, a decision under Section 15B of the EPBC Act may be necessary because of the nature of the action involved.

Commentary:  The outcome of this process may be a matter to be recorded in the NCA’s heritage register.

8.5 The implementation of this plan will be reviewed every second year, and the priorities re-assessed depending on resources or any other relevant factors.  The review will consider the degree to which policies and strategies have been met or completed in accordance with the timetable, as well as the actual condition of the place (Policies 3, 20 and 31).  The Criteria for Prioritising Work (Strategy 8.3) will be used if resource constraints do not allow the implementation of actions as programmed.

Policy 9 Review of the management plan

This management plan will be reviewed:

• once every five years in accordance with section 324W of the EPBC Act;  and
• to take account of new information and ensure consistency with current management circumstances, again at least every five years;  or
• whenever major changes to the place are proposed or occur by accident (such as fire or natural disaster);  or
• when the management environment changes to the degree that policies are not appropriate to or adequate for changed management circumstances.

Implementation Strategies

9.1 The NCA will undertake a review of the management plan if it is found to be out of date with regards to significance assessment, management obligations or policy direction.

Commentary

While plans for National Heritage places are made by the Minister responsible for the EPBC Act, effectively the review of this plan will be undertaken by the NCA.

Conservation management planning for places which are part of, include or are adjacent to Anzac Parade may lead to changed circumstances and a need to review this plan.

Liaison

The following policies deal with a number of general relationships where liaison or consultation is required.  A few other specific consultations are dealt with in other policies (ie. Policies 4, 6, 8, 16, 32 and 40).  Importantly, the relationship with the Australian War Memorial is dealt with at Policy 6.

Policy 10 Relationship with the Commonwealth Department of Agriculture, Water and the Environment

The NCA will maintain regular contact with this Department, including informal consultations where appropriate, and formally refer any action that potentially impacts on any heritage values or places as required by the EPBC Act, and any amendments to this Act.

Implementation Strategies

10.1 The NCA may provide a copy of this plan to the Department for consideration of possible amendments to the National Heritage listing (values and boundaries), to better align that listing with the plan.

Policy 11 Relationship with associated groups and communities, and other stakeholders

The NCA will seek to liaise with associated groups and communities, and other relevant stakeholders, including community and professional groups, on developments affecting the place, including on adjacent land.  It will seek to actively consult prior to decisions directly impacting on the significance of Anzac Parade or its component parts to associated groups and communities.

Consultation and planning processes should be open/transparent, well-communicated, and able to be understood by the associated groups and communities.

Commentary:  Refer to Strategy 8.1.

Implementation Strategies

11.1 The NCA will maintain a list of relevant stakeholders and the scope of their interests.

Commentary:  The stakeholders listed in Section 8.3 are relevant stakeholders which will be included in the proposed list.

11.2 Periodically or as developments are proposed, the NCA will seek to inform stakeholders of activities in a timely fashion and provide them with an opportunity to comment on developments.

In particular, in the case of works or actions affecting specific memorials, including significant repairs and maintenance, care should be taken to consult associated stakeholders, and possibly by including temporary site signage to explain what is to happen and providing a contact for more information.

Commentary:  Stakeholders might include the Canberra and broader community who value the Parade and its components (see the statement of significance at Section 7.1).  To some extent, consultation mechanisms under the NCA’s works approval process or the EPBC Act may provide mechanisms for such consultation.  However, given public interest in and sensitivity about developments in or adjacent to the place, an earlier, more proactive and iterative mechanism would seem warranted.

11.3 To the extent proposed interpretation relies on information from stakeholders, such stakeholders will be consulted about the interpretation at a draft stage.

11.4 If Indigenous heritage values or cultural traditions are identified in the future in the place, then the NCA will develop appropriate policies and protocols to ensure Indigenous people participate in the management process for it.

Commentary:  There are currently no Indigenous heritage values or cultural traditions identified in the National Heritage listing for the place.

11.5 The NCA will undertake early and proactive consultation regarding the management and development of adjacent lands to protect the values of Anzac Parade, in particular including with the Australian War Memorial.

Significant Associations

Policy 12 Retaining significant associations

The NCA will respect and foster the retention of significant associations between the armed services community and Anzac Parade, and with its individual memorials.  This includes the sense of custodianship felt by this community.

It should be noted these associations may continue to evolve and change over time.

Commentary:  These associations are described in the statement of significance (Section 7.1).  See also Policies 6, 8, 11 and 34.

Landscape

The policies in this section apply to the landscape of the Parade, including the designed landscapes for specific memorials.  Policies relating to the surrounding landscape are provided in the section below on the setting.  Refer also to the policy section on new development.

Policy 13 Conservation of the landscape

The overall Anzac Parade landscape character will be conserved.

General qualities of the Parade to be conserved, related to the significant broader landscape, include:

• the underlying geometry and symmetry of the Land Axis, reinforced by the plantings, memorials, hard landscaping and road system;
• the sweeping vistas along the Land Axis – especially in both directions to Old and new Parliament House and the Australian War Memorial.  The central part of the Land Axis corridor will be kept spatially open and free of structures, trees, visual or other impediments.  The large scale of these views will be conserved;  and
• the character of the treescape.  The general aim will be to maintain tree plantings to continue an evergreen framework.

The following specific landscape features of Anzac Parade will also be conserved:

• respect and conserve associations;
• conserve the general form and character of the Parade;
• conserve the mass tree planting of eucalypts in rows, to retain the character of the tall, dense bank of evergreen native foliage;
• conserve the use of the crushed red brick paving;
• conserve the mass shrub beds planted with Hebe species;
• conserve and continue the use of regularly spaced landscape ‘rooms’ for the location of memorials;  and
• future memorials or changes to existing memorials will be wholly contained within the landscape rooms.

The designed landscapes for specific memorials will be conserved.

Commentary

Refer to the boundary definition of the Land Axis corridor in Section 1.1.  The zone to be kept open is between the rows of trees either side of Anzac Parade.

The designed landscapes for specific memorials have not been studied as part of this heritage management plan.  They should be considered as part of detailed planning for each memorial.

Refer to the policies below regarding the built elements of the place.

Implementation Strategies

13.1 Changes to the landscape of existing memorials should be undertaken in a planned way consistent with this heritage management plan and a long term approach to individual memorials.  Ad hoc changes should be avoided.

Commentary:  The periodic addition over time of commemorative plantings at the rear of the Kemal Ataturk Memorial might be an example where there is a need for care to ensure consistency with a long term approach.  For the future, a planned approach to commemorative plantings is needed, and this may constrain or rule out further plantings at this or other memorials.

13.2 The NCA will explore options to address the lack of a suitable landscape screen behind a number of memorials on the east of the Parade.  Suitable options will be implemented.

Commentary:  This impacts the Peacekeeping, Tobruk and Navy memorials at least.  The issue with the New Zealand Memorial has already been identified, and a solution developed (see Strategies 16.5 and 32.4).

13.3 The NCA should address the range of issues with landscapes of specific memorials.

Commentary:  These issues are:

• Australian National Korean War Memorial – some dead plants/shrubs;
• New Zealand Memorial – in need of a minor tidy-up, removal of some weeds;
• Australian Service Nurses National Memorial – dead shrubs;
• Royal Australian Navy Memorial – rear screen plantings patchy/in poor condition;  and
• Kemal Ataturk Memorial – landscape plantings are patchy.

In addition, it is noted that some residents of Reid find the large and visible area of concrete of the rear blade of the Australian Vietnam Forces National Memorial too stark, and would welcome enhanced landscaping to soften the view.

13.4 The NCA should consider whether a masterplan should be developed for the Parade in order to address a number of issues identified in this heritage management plan (eg. weaknesses in the landscape backdrop for some memorials, future memorials, public amenities, parking and additional paths).  Such masterplanning should be linked with that for the Australian War Memorial given they are, in effect, one landscape and venue.

Commentary:  Given there will be a number of anniversaries in 2025, this might be a timely deadline for such a masterplan, or ideally, completion of the works flowing from a masterplan.

Policy 14 Landscape maintenance planning and works

The landscape of the Parade and individual memorials will be well maintained to reflect the significance of the place.  Maintenance will be based on a maintenance plan that is informed by landscape condition monitoring.

Implementation Strategies

14.1 The NCA will ensure the current maintenance planning for the landscape is suitable and consistent with this management plan.

14.2 The NCA will prepare one or several landscape maintenance plans, possibly for each area within Anzac Parade, including for the specific landscapes of individual memorials where these exist.  These will guide all managers and contractors in project delivery and maintenance of the landscape.  These must be prepared by a suitably qualified landscape architect with an understanding of and experience working within heritage landscape requirements.

Commentary:  The issue of whether there is one or more such plans is a question of practicality – whether the information can be readily included in a single, easy to use plan, or if it is better presented in several plans.  This may also depend on the number of users for plans (eg. one or several contractors).

14.3 Landscape maintenance plans for the individual memorials will be supported by the collation of detailed baseline documentation about each memorial.  This documentation will be updated as changes occur.

Commentary:  This documentation should include:

• history, details about the design and materials used;
• details about changes over time;
• individual significance of the memorial;
• detailed drawings including plantings;
• any detailed condition assessment;  and
• a good photographic record.

Policy 15 Tree survey, database and management plan

The NCA will continue to maintain a database of trees or, as appropriate, tree groups within the place, including trees which are part of individual memorials.  The database will record those trees removed from the place.

The NCA will consider preparing a tree management plan for the trees within the Parade.

Commentary

In reality, the tree management plan may in fact be a version of a landscape maintenance plan.  The plan may simply extract relevant information about significance and management guidance from this heritage management plan, as well as have details of specific actions proposed within a given timeframe – ideally a timeframe aligned with this plan.  It may also foreshadow longer term actions.  Tree surveys may also generate recommendations for specific works or actions which could be included.

The NCA is currently developing a tree management policy which will be a higher level policy document related to the management of all trees within the NCA’s estate.  This should also provide a broad framework for management of the plantations.  Any tree management plan should be consistent with the final tree management policy.

Policy 16 Tree maintenance and replacement

The NCA will seek to conserve the treescape of the Parade and trees will be selectively replaced as necessary.  The design concept for the plantations relevant to Anzac Parade will be maintained (ie. offset row plantings).

Trees within the area will be maintained, including periodic tree surgery as necessary.

In the case of dead, dying or dangerous trees, those in poor health unlikely to recover, or those displaying such poor characteristics as to substantially detract from the landscape, such trees will be removed.  Trees will be replaced with the same species.  Every effort will be made to use an advanced specimen.

Commentary:

The aim is to continue the ongoing careful management of the trees which has been successfully undertaken in recent years, rather than to contemplate wholesale replacements.

Trees which are part of the designed landscapes for specific memorials have not been specifically studied as part of this plan.  While the general approach contained in the above policy is likely to be suitable for such trees, additional considerations may be important (eg. special associations).  These considerations are best understood through detailed planning for each memorial.

Implementation Strategies

16.1 While generally any trees removed will be replaced, in some cases it may not be practical to replace trees given competition with other existing trees.

16.2 The NCA will seek to undertake tree surgery works as identified in relevant tree surveys.

16.3 The NCA will continue to remove all inter-row trees (wildling or planted) of 150 mm diameter at breast height (DBH) and less, throughout the whole plantation area.  The aim is to re-establish the original planting pattern over the longer term.

16.4 The NCA should consider using watering berms and continue to use mulching for trees, even though this may involve some minor changes to the immediate landscape character around trees.  Such techniques may be used selectively depending on tree health and the risk of decline.

Commentary:

These actions are intended to better retain rainfall and soil moisture.  Generally, previous issues with runoff have been addressed with composting and mulching of the soil profile under the trees.  None the less, some runoff is still apparent.

Ongoing soil composting is required as part of an overall strategy, however, should this not have the expected result, then the following two options should be considered. The first option would be to look at the slopes within the existing plantations and assess the possibility for low berms on the existing ground level (such as not to place stress on the trees by excavation) to slow and retain water at least in the places it is feasible to do so in the plantations.  The second option would be a more substantial examination of on-site retention possibly involving re-grading if, for example, there is sufficient space to do so.

16.5 The NCA will undertake replacement plantings behind the eastern part of the New Zealand Memorial to provide a suitable backdrop for the memorial.

Policy 17 Shrubs

The Hebe shrubs are important elements within the Parade, and the NCA will maintain them, and replace if dead, dying or in poor health.  If possible, advanced specimens will be used.

Shrubs within individual memorials will be maintained, or replaced if dead, dying or in poor health.

Commentary:

The NCA has reviewed the performance of the current Hebe plantings, determined the cause of their poor performance, and intends to develop a replacement strategy and maintenance manual.  Full replacement of the plantings is required because of the problems identified.

It would also appear that a more suitable dripper irrigation system is required to properly maintain healthy plants in this difficult environment.

Higher levels of regular maintenance must be achieved to ensure good performance of the plantings.  Otherwise, it is highly likely that the Hebes will need to be replaced every five years or so.

Implementation Strategies

17.1 The NCA should develop and implement a Hebe replacement strategy and maintenance manual consistent with this plan.  This strategy should involve:

• defining the timeframe, sequence and broad pattern of replanting, giving consideration to the short-term visual impacts as well as long-term objectives;
• consideration of using plants no smaller than 200 mm pot size;  and
• preparation of planting beds to maximise healthy growth.

The strategy should be implemented using expert horticultural advice.

The strategy should be undertaken only after consultation with the range of stakeholders, including the Canberra community.

Commentary:  The maintenance manual could be a landscape maintenance plan under Policy 14, or part of such a plan.

17.2 The NCA should prepare a planting template to ensure consistent planting in all planter beds.

Commentary:

It is important that all beds are planted with the same pattern, and that each plant has sufficient soil root space, light, water and fertiliser (good horticultural practice) to thrive.

The template could be made of a firm but flexible material such as rubber, which can be rolled out on each bed to enable a spray marker to set the pattern through a hole in the template.

17.3 The NCA should consider trialling different dripper watering systems to best deliver water to all plants within the planter beds.

17.4 The NCA should consider the possibility of pruning the perimeter Hebe plants in each bed to a lower height to reconstruct the original design intention.

Commentary:  As noted in the landscape history in Section 3.3 above, the rectangular planter beds originally contained three sections of higher growing Hebe species and were surrounded by a lower growing species.  This allowed those plants in the middle better access to light and water.  If a single species is to be used, then differential pruning may be possible to achieve the desired effect.

Policy 18 Turf and grass areas

The turf areas will continue to be managed to conserve their contribution to the heritage values of the Parade.

The NCA will continue to monitor grass trials with species new to Canberra which require less water while remaining wear resistant.

In general, the remnant native grasses within the plantation areas will be removed and not replaced (the plantations are to be mulched).  Where grasses are part of the designed landscape for specific memorials, this may be maintained.

Commentary

The irrigated turf provides an important contrast with the red gravel of the median.

The overshadowing of the native grasses by mature trees has generally led to poor performance by the former.  While the grasses are an aspect of the designed landscape with some symbolic resonance, the competition with the trees is such that their continued use is problematic.

Policy 19 Irrigation

The NCA will maintain irrigation systems where these currently exist and are being used.  The NCA may introduce new irrigation to areas not previously irrigated, however if mature trees are present then this will only be undertaken with the agreement of an expert arborist after consideration of any adverse impact on the mature trees.

Commentary:  Refer to Policy 18 regarding turf areas, and Strategy 17.3 regarding the Hebe plantings.

Policy 20 Landscape condition monitoring

Monitor the condition of the landscape on an ongoing basis, including the landscape of individual memorials.  Monitoring will inform maintenance planning.

Implementation Strategies

20.1 The NCA will develop and implement monitoring for the landscape.  Monitoring will particularly consider:

• the impact of any dry/drought conditions;  and
• progress of ageing of trees and shrubs.

20.2 Mechanisms will be put in place to ensure timely reporting by maintenance contractors to a coordinating officer with overall responsibility for the maintenance of the Parade.

Built Elements

The policies in this section apply to the constructed or built elements within the Parade, although not the broad landscape or soft landscape elements.  A separate section above deals with these latter elements.  Refer also to the policy section below on new development.

Policy 21 Conservation of Memorials

Existing memorials will be conserved, subject to any management planning which may be specifically developed for memorials.  (Refer to Policy 40 in the case of new memorials.)  Memorials have significant associations with specific groups of people, and these associations will need to be documented, respected, and the significance understood as part of future management planning.

The character of memorials may be changed or supplemented if desired by the relevant associated groups and/or communities.  Such change should be undertaken with due respect to the individual significance of the particular memorial, and otherwise be consistent with this heritage management plan.  Any changes should be undertaken as part of a planned long-term approach, and ad hoc changes should be avoided.

Commentary

There are currently 13 memorials in Anzac Parade which are all approved National Memorials under the National Memorials Ordinance 1928.

There may be some value in detailed conservation management planning being undertaken for each of the memorials, especially if changes are proposed.  Any such changes would require approval under the National Memorials Ordinance 1928 and the EPBC Act.  Over time, a few of the memorials have been changed, such as the RAAF Memorial.

Refer to the landscape policies above regarding individual memorials.

Implementation Strategies

21.1 Specialist materials conservators should continue to be used as needed to assist with the conservation of individual memorials.

21.2 The NCA should address the range of issues with built aspects of specific memorials.

Commentary:  These issues are:

• Australian Vietnam Forces National Memorial – minor damage to concrete ramp wall, broken granite paver;
• Desert Mounted Corps Memorial – cracked, loose and missing slate pavers, rear drain blocked with leaf litter;
• Boer War Memorial – minor cracking to the concrete paving;
• New Zealand Memorial – recessed light pits cleaned out;  and
• Australian Service Nurses National Memorial – pavement heaving, trip hazards, joint sealant deteriorated.

In the case of the Royal Australian Navy Memorial, there is an issue with undertaking maintenance and repair in the enclosed and confined pump room.  It seems possible that the pump equipment could be relocated into a small above-ground enclosure or new sub-surface pit enclosure with a large openable lid, sensitively located in the surrounds of the memorial.  The quality of the finish of any new facility should be carefully considered, especially if it is above-ground.

Policy 22 Minor structural features

The NCA will conserve the minor structural features in Anzac Parade that contribute to the overall heritage values of the place.

Commentary: Such features include the raised planter bed walls in the median, and other retaining walls.

Policy 23 Paths and paving

The red crushed brick gravel paved median will be conserved, and this should be consistent with the treatment of the Australian War Memorial’s parade ground.

Other paths and paved areas may generally be conserved or upgraded if desired.  However, care will be taken if paths are widened or extended to maintain the balance of soft and hard landscaping (see Policy 45 regarding new paths or paving).  In addition, careful consideration will be given to the palette of finishes for paths and paving including:

• the desirability of a consistent approach throughout Anzac Parade;
• a sympathetic selection given the character of the landscaping in the vicinity of the paths or paving;  and
• any hierarchy of paths.

Policy 24 Roads

Generally, conserve the form and character of roads within the study area, including any upgrading of the road pavement that may be needed.

Every effort will be made to minimise the number of traffic lights in the Parade.

Implementation Strategies

24.1 The NCA should explore options to change the kerbing or ways to overcome the access barrier for commemorative activities presented by the kerbing.

Commentary:  Stakeholders have expressed an interest in possibly changing the kerbing to overcome the barrier presented to access.

Policy 25 Car and bus parking

Drop-off and short term parking along Anzac Parade may continue, but medium and long term parking will not be permitted.

Implementation Strategies

25.1 All major events will have a traffic management/carparking plan including consideration of:

• the need for barriers to protect fragile areas;
• the need for on-ground traffic wardens;  and
• overflow arrangements.

Commentary:  As part of managing events in Canberra, the NCA has defined the range of possible events, including major events.

‘A major event is an organised gathering involving a significant number of people (generally more than 5,000) that requires a specific venue and has significant associated structures and involves changes to normal traffic and parking conditions.  Major events may require exclusive access to a venue and other facilities for a number of days.’  (NCA 2003, p. 12)

25.2 Temporary parking on grass areas or in the plantations will not be permitted.

25.3 The NCA should consider masterplanning for future car and bus access and parking related to the Parade.

Policy 26 Signs and furniture

Existing signs and furniture may be maintained or removed.  (Refer to Policies 43 and 44 in the case of new signs and furniture.)

Implementation Strategies

26.1 The existing seating should be reviewed to confirm it is of a suitable height.  If necessary, this may be adapted to achieve a suitable height.

Commentary:  Some of the seats integrated with concrete walls appear to be very high off the ground, and unsuitable for many users.

Policy 27 Street lighting

The specially designed street lighting in Anzac Parade will be conserved.  (Refer to Policy 46 regarding new lighting.)

Policy 28 Infrastructure

Generally maintain existing infrastructure, such as services, unless they fail to meet current or projected needs or standards.  Infrastructure may be upgraded or adapted but this should involve no increase in impact.  (Refer to Policy 47 in the case of new infrastructure.)

Policy 29 Maintenance planning and works

Anzac Parade will be well maintained and all maintenance and repair work should respect the significance of the place.  Maintenance and repair will be based on a maintenance plan that is informed by:

• a sound knowledge of each part of the place and its heritage significance;  and
• regular inspection/monitoring.

It will also include provision for timely preventive maintenance and prompt repair in the event of damage or breakdown.

Commentary:

Some stakeholders have noted the occasional difference between the well-maintained grounds of the Australian War Memorial, and the standard of maintenance achieved in the Parade.  Ideally, both would be maintained to the same standard.

See also Strategies 13.3 and 21.1 regarding works to memorials.

Implementation Strategies

29.1 The NCA will review existing maintenance planning to ensure consistency with this management plan.

29.2 The NCA will ensure maintenance planning is periodically informed by a monitoring program (refer to Policy 31).

29.3 The NCA will consider developing a life-cycle maintenance plan for the place, and this should complement the suite of maintenance planning.

Policy 30 Upgrading and adaptation works

The NCA will replace or upgrade fabric and services, or undertake adaptation works as required by their condition or changed standards.  Such works will not compromise significance unless there is no alternative, in which case every effort will be made to minimise the impact on significance.

Commentary:  Adaptation in this plan involves no, or minimal impact on significance, in accordance with the Burra Charter (Australia ICOMOS 2013).

Policy 31 Condition monitoring

The condition of fabric will be monitored on a periodic basis.  This will be distinct from maintenance but should be linked to it for implementation.  The information gained will identify components experiencing deterioration, which should in turn inform maintenance planning.

Implementation Strategies

31.1 The NCA will develop and implement monitoring to identify changes in the condition of the place.  Priority will be given to components in high use or vulnerability.

31.2 Mechanisms will be put in place to ensure timely reporting by maintenance contractors to a coordinating officer with overall responsibility for the maintenance of the Parade.

Setting

The policies in this section apply to the area around Anzac Parade, including along the Land Axis.

Policy 32 Protection of the Setting

The NCA will protect the setting of Anzac Parade to the extent possible within its powers.  Beyond this, the NCA will encourage such protection for those areas which fall outside its responsibilities.

The NCA will protect the forested character of Mount Ainslie, and will protect or encourage protection of views to the hills from within Anzac Parade.

Implementation Strategies

32.1 The NCA will liaise with the ACT Government to encourage protection of any part of the setting within the control of the ACT Government.

32.2 The NCA will take particular care to ensure the protection of the forested character of Mount Ainslie, especially in views along the Land Axis.  Any new development on Mount Ainslie should have, at most, minimal visual impact from within the Parade, and be subject to an impact study.

32.3 The NCA will manage the remnant sections of plantations in front of the sites of the former Anzac Park East and current Anzac Park West Buildings (the Portal Buildings) within that part of the verge it manages, consistent with the management of the other plantations in Anzac Parade.

The NCA will also liaise with the Department of Finance and/or the building owners about management of the remaining areas and plantations in front of the Portal Building sites, consistent with the other plantations along the Parade.

Commentary:  All of the plantations along Anzac Parade should be managed in a consistent manner.  For example, when tree replacement for the major part of the Parade is undertaken, this should also include the trees in front of the Portal Building sites.

32.4 The NCA will ensure implementation of the landscape screening measures for developments east of the Parade on Constitution Avenue, as indicated in the National Capital Plan.

32.5 The NCA should seek to preserve the symmetrical portal effect of the former Anzac Park East and current Anzac Park West buildings.

Policy 33 Protection of views to and from the Parade

The significant views to and from the Parade will be protected.  The significant views include:

• to and from the Australian War Memorial;
• to the surrounding hills, especially Mount Ainslie;
• to the Parliamentary Zone;  and
• from Mount Ainslie and Parliament House.

Commentary:  The NCA has planning responsibility for all of the important viewpoints into Anzac Parade, with maintenance of these viewpoints being the responsibility of the ACT Government or the Commonwealth Department of Parliamentary Services.

Use of the Place

Policy 34 Primary and secondary uses

The primary and secondary uses of Anzac Parade are detailed in the following table.

Commentary:  It should be noted commemorative activities may change over time in response to the perceptions, needs and aspirations of associated individuals, groups and communities.  This change should be accommodated.

Implementation Strategies

34.1 The NCA should continue to support commemorative activities in Anzac Parade.

34.2 The NCA should foster discussions about financial and other support for commemorative activities, where needed.

Commentary:  Such discussions should include the Australian War Memorial and the associated communities.

34.3 The NCA will continue to ensure, as far as possible, that mechanisms are in place to coordinate uses in the case of major events.

Policy 35 New and continuing uses compatible with significance

Any continuing use or new use proposed for the Parade will be compatible with the significance of the place, and should ideally be complimentary to the primary uses.

Policy 36 Access

The NCA will promote ready public access to the Parade.  Temporary restrictions including security measures may apply to parts of the area related to particular events (eg. Anzac Day commemorative events).

There may be occasions when groups with particular associations to a component within the Parade (eg. a memorial) may have exclusive use of the component for commemorative activities for a defined period of time.

Commentary:  Refer to Strategy 24.1 regarding the physical access barrier provided by road kerbing.

New development

Policy 37 General provisions relating to new development

The following general provisions will be implemented:

• new permanent developments will not impact on the heritage values of the Parade;
• new permanent development in the area will be part of a planned approach which is in keeping with the values of the Parade.  Ad hoc development will be avoided;
• developments will generally maintain public access to parklands and open spaces, and will not close off spaces;
• new structures will be well below the mature tree canopy in the Parade;
• permanent structural or building intrusions to the Land Axis will not be permitted, apart from new memorials located in existing memorial locations;
• permanent intrusions which block or substantially intrude into significant views/vistas will not be permitted – proposals should carefully consider any visual impact;  and
• consideration will be given to the impacts of new development on the values attributed to the Parade and its components by specific and broader associated communities, groups associated with specific sites (eg. memorials), and other users and visitors to the Parade.  This will include consideration of construction-phase impacts.

Policy 38 New landscaping, landscape structures and plantings

New landscaping, landscape structures and plantings, not including replacement plantings, may be permitted subject to the following:

• that it is associated with a memorial and is contained within the landscape room;
• that it is consistent with the general landscape conservation provisions (see Policy 13) and is broadly sympathetic to the character of the Parade;
• that it respects the existing tree planting pattern of the plantations;  and
• that it is consistent with any management plan which may exist for the specific component affected.

Proposals for new landscaping associated with memorials should be encouraged to use native grasses.

Commentary:  Such landscaping may be related to a new memorial or to the re-design of the landscape of an existing memorial.

Policy 39 New buildings or structures

In general, new buildings or structures will not be permitted unless part of a proposed memorial.

The exception is the possible provision of new toilet facilities within the Anzac Parade area.  Such facilities will be of a high quality design and materials consistent with the Parade, be single storey, as small as possible and be unobtrusive (eg. finished in muted colours) from within the central section of the Parade.  Such facilities may only be sited towards the outer edges of the boundaries of the place and at the northeast end where the area of landscape and trees is wider.

Commentary:  See Policy 38 regarding landscape structures.  There is a need for public amenities in the Parade area for those attending commemorative events, and for other visitors (eg. toilets, water points), although there are no current proposals.

Implementation Strategies

39.1 The NCA should explore the possibility of enhanced public amenities within the Parade.  Ideally, this should be undertaken with the Australian War Memorial, with such amenities being considered as part of masterplanning for both the Parade and AWM as one venue.

Policy 40 New memorials

New memorials may be installed in the existing vacant landscape rooms.

Planning should be undertaken to anticipate the possibility of future additional memorials beyond the current capacity of Anzac Parade.

Memorials should be contained within the landscape rooms, and should not extend beyond, including beyond the footpath line.

Commentary

Two memorial locations remain unallocated.

As noted above, proposals for landscaping associated with new memorials should be encouraged to use native grasses.

With regard to future additional memorials beyond the current capacity:

• this may require consideration of potential sites outside of Anzac Parade;
• this should involve consultations with the Australian War Memorial, armed services community and probably other stakeholders as well;
• including more memorial locations within Anzac Parade, similar to the existing, is not desirable in terms of the design values of the place, although some stakeholders may be in favour.  However, other forms of memorials, or smaller memorials may be possible.  It may also be possible to consider reserving the two remaining vacant memorial niches to house many smaller memorials rather than just large single memorials;  and
• the park/plantation areas in front of Anzac Park East and West facing the Parade may be considered suitable locations, however, this will conflict with the sense of the New Zealand Memorial being the formal start of the memorial parade.

Policy 41 New parking

No new surface or above ground parking will be permitted within Anzac Parade.

Policy 42 Temporary changes

Temporary changes of short duration may be permitted subject to the range of policies in this plan, in particular Policy 36 regarding access.  (See also Strategy 25.2 regarding temporary parking.)

Temporary tent/shelter structures for commemorative events may be permitted subject to the following:

• there is a strong demonstrated need for such a structure, rather than it simply being a desired amenity;
• the size of the structure is kept to the minimum possible;
• the tent/shade material is a neutral colour with no advertising, signage or logos;
• the duration of the structure is as short as possible, and in principle no longer than three days;  and
• if the structure is located on the median, then it should be as close to the road edge as possible.

Policy 43 Signage

New signage may be permitted provided that:

• every effort is made to provide good quality signage, consistent with the overall area;
• signs will be carefully sited, especially in the case of signs in major vistas;
• every effort will be made to avoid having signs or to minimise the number of signs;  and
• no large signs will be permitted in Anzac Parade.

Commentary:  In this policy, signs include freestanding and attached signs, as well as banners and flags.  The policy also relates to temporary and permanent signs.

Policy 44 Furniture

New street or park furniture may be permitted provided that:

• every effort is made to provide good quality furniture, consistent for the overall area;
• furniture will be carefully sited and grouped, especially in the case of furniture in major vistas;  and
• furniture will generally be sited to the sides of the Land Axis corridor.

Policy 45 Paths and paving

Limited new paths and paving may be permitted provided that:

• every effort is made to provide good quality paths or paving, consistent with the overall area;
• it is carefully sited, especially in the case of major vistas;
• it pays careful regard to and is sympathetic with the geometry of the Parade;
• it responds to a substantial demonstrated need or requirement;  and
• it is consistent with the guidance provided in Policy 23.

Ideally, new paths would be undertaken as part of an overall masterplanning exercise for the Parade, rather than as an ad hoc response.

Commentary:  This may include new paths from Anzac Park East and West.

Policy 46 Lighting

Limited new lighting may be permitted provided that:

• it is part of a memorial design;
• it does not detract from the street lighting;
• every effort is made to provide good quality lighting, consistent with the overall area;
• it is carefully sited, especially in the case of major vistas;
• it responds to a substantial demonstrated need or requirement;  and
• it is consistent with the guidance provided in Policy 27.

Memorial lighting should be carefully modulated with regard to the suite of memorials along the Parade.  Individual memorials should not be lit too brightly compared to other memorials, or use coloured lighting in a way that creates a jarring contrast with existing memorials.

Policy 47 Infrastructure

Limited new infrastructure may be permitted provided that:

• where possible, such infrastructure is included as part of existing or new memorials;
• every effort is made to provide good quality publicly visible finishes for infrastructure, consistent with the overall area;
• it is carefully sited, especially in the case of major vistas;  and
• it responds to a substantial demonstrated need or requirement.

Interpretation

Policy 48 Interpreting the significance of Anzac Parade

The significance of the place will be interpreted to the range of visitors who use the Parade, and to NCA staff responsible for the place in any way.  This interpretation will include reference to the broader setting.

Implementation Strategies

48.1 The NCA will develop and implement a simple interpretive strategy considering the range of possible messages, audiences and communication techniques.  The interpretation will focus on the heritage values of the place, and this will include the specific memorials.

Audiences will include the local Canberra community, visitors, school children, as well as Australians living in other parts of the country.

Commentary:  Substantial interpretation is already provided such as through guided and self-guided walking tours, and the NCA’s website.  Other options might include:

• using members of the armed services community in interpretive activities;
• greater use of oral histories to provide stories linking individuals with the larger national stories, or to tell stories not obvious in the Parade;  and
• improved interpretation panels within and outside the Parade, subject to careful design and siting, such as at the major viewing points inside and outside the area.

Coordination with the Australian War Memorial is also highly desirable, including the possibility of better sharing interpretation of the Parade.

Refer to Strategy 11.3 regarding consultation with stakeholders about interpretation.

48.2 The interpretive strategy will be periodically reviewed as part of the review of this management plan (see Policy 9).

Policy 49 Signage

Appropriate, consistent and good quality directional, interpretive and information signage will be provided.

Commentary:  See Policy 43 regarding new signage.

Implementation Strategies

49.1 Existing or proposed signage will be reviewed to ensure consistency with this policy and also in the light of the interpretive strategy (Strategy 48.1).

Unforeseen Discoveries

Policy 50 Unforeseen discoveries or disturbance of heritage components

If the unforeseen discovery of new evidence or the unforeseen disturbance of heritage fabric or values requires major management or conservation decisions not envisaged by this heritage management plan, the plan will be reviewed and revised (see Policy 9).

If management action is required before the management plan can be revised, a heritage impact statement will be prepared that:

• assesses the likely impact of the proposed management action on the existing assessed significance of the place;
• assesses the impact on any additional significance revealed by the new discovery;
• considers feasible and prudent alternatives;  and
• if there are no such alternatives, then considers ways to minimise the impact.

If action is required before a heritage impact statement can be developed, the NCA will seek relevant expert heritage advice before taking urgent action.

Urgent management actions shall not diminish the significance of the place unless there is no feasible and prudent alternative.

Commentary

Unforeseen discoveries may be related to location of new documentary or physical evidence about the place or specific heritage values that are not known at the time of this report, and that might impact on the management and conservation of the place.  Discovery of new heritage values, or the discovery of evidence casting doubt on existing assessed significance, would be examples.

Discovery of potential threats to heritage values may also not be adequately canvassed in the existing policies.  Potential threats might include the need to upgrade services or other operational infrastructure to meet current standards, the discovery of hazardous substances that require removal, or the physical deterioration of fabric.

Unforeseen disturbance might be related to accidental damage to fabric, or disastrous events such as fire or flood.

Such actions may be referable matters under the EPBC Act.

Keeping Records

Policy 51 Records of intervention and maintenance

The NCA will maintain records related to any substantial intervention or change in the place, including records about maintenance.

Commentary:  Refer to the NCA’s Heritage Strategy and heritage register regarding provisions about records.

Implementation strategies

51.1 The NCA will retain records relating to actions taken in accordance with Policy 8 – Decision making process for works or actions.

51.2 The NCA will retain copies of all maintenance plans prepared for the place, including superseded plans, and records about monitoring.  (Refer to Policies 14, 20, 29 and 31)

51.3 A summary of substantial interventions, changes and maintenance will be included in the NCA heritage register entry for the place, including a reference to where further details may be found.

Policy 52 Sensitive information

The NCA will develop protocols for the management of sensitive information, should any such information emerge.

Commentary:  At the current time there is no known sensitive information, beyond normal government and commercial information, which is already subject to standard protection procedures.

Further Research

Policy 53 Research to address the limitations of this management plan

Opportunities to undertake research to address the limitations imposed on this plan (see Section 1.4) should be taken if possible, and the results used to revise the management plan.

9.5 Implementation Plan

Responsibility for Implementation

The person with overall responsibility for implementing this management plan is the person holding the position of Chief Executive, National Capital Authority.

Commitment to Best Practice

The NCA is committed to achieving best practice in heritage conservation, in accordance with its legislative responsibilities and Government policy, and in the context of its other specific and general obligations and responsibilities.  This is reflected in the preparation of this management plan and in the adoption of:

• Policy 1 – Significance the basis for management, planning and work;
• Policy 2 – Adoption of Burra Charter;  and
• Policy 7 – Expert heritage conservation advice.

Works Program

Refer to Strategy 3.1 and Table 10 in the preceding section.

Criteria for Prioritising Work

See Strategy 8.3.

Resolving Conflicting Objectives

See Strategy 8.4.

Annual Review

Refer to Strategy 8.5.

Resources for Implementation

It is difficult to be precise about the budget for maintenance of Anzac Parade because funding details are not kept for just the study area.  Accordingly, it is not currently possible to isolate the maintenance budget for just this area.  In addition, the future budgetary situation of the NCA is uncertain.

None the less, funding has been provided in previous years in a range of categories relevant to the Parade, including:

• maintenance of civil infrastructure on National Land;
• Anzac Parade/Australian War Memorial open space maintenance;
• irrigation water;  and
• memorials, fountains and artworks.

As noted in Section 8.4, the NCA has staff who undertake management of the maintenance contracts, interpretation planning, new works planning, events management, and the NCA otherwise uses contractors to undertake actual maintenance.  These staff and contractors will, to some extent, be involved in implementing aspects of this plan.

Books, Journals & Reports

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Australian War Memorial and the Memorial Parade, Anzac Parade, Campbell, ACT