Kirribilli House and Garden Heritage Management Plan 2025–2030

I, Steven Kennedy, Secretary of the Department of the Prime Minister and Cabinet, acting pursuant to subsection 341S(2) of the Environment Protection and Biodiversity Conservation Act 1999, make the Kirribilli House and Garden Heritage Management Plan 2025–2030, to protect and manage the Commonwealth Heritage values of the Commonwealth Heritage places, Kirribilli House and Kirribilli House Garden and Grounds.

This instrument commences on the day after it is registered.

Dated this day of 15 August 2025   

Dr Steven Kennedy PSM

Prepared for

The Department of Prime Minister and Cabinet

ABN: 18 108 001 191 2

Heritage Management Plan – Volume 1

Kirribilli House and Garden, Kirribilli, NSW

05-Feb-2025

Kirribilli House HMP Update

Doc No. FINAL

Heritage Management Plan - Volume 1

Kirribilli House and Garden, Kirribilli, NSW

Client: The Department of Prime Minister and Cabinet

ABN: 18 108 001 191 2

Prepared by

AECOM Australia Pty Ltd

Gadigal Country, Level 21, 420 George Street, Sydney NSW 2000, PO Box Q410, QVB Post Office NSW 1230, Australia

T +61 2 8008 1700  www.aecom.com

ABN 20 093 846 925

05-Feb-2025

AECOM in Australia and New Zealand is certified to ISO9001, ISO14001 and ISO45001.

Quality Information

Revision History

Professional Registration

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Table of Contents

Heritage Management Plan - Volume 1 2

Quality Information 3

Executive Summary i

1.0 Introduction 3

1.1 Background 3

1.2 Site location 3

1.3 Heritage status 3

1.4 Previous key heritage reports 7

1.5 Objectives 7

1.6 Stakeholder roles and responsibilities 9

1.6.1 Management of Kirribilli House 10

1.7 Methodology 10

1.7.1 General 10

1.7.2 Assessment of significance Thresholds 11

1.7.3 Significance Assessment under the EPBC Act 11

1.7.4 Knowledge Gap Analysis 15

1.8 Consultation 16

1.8.1 Public exhibition 17

1.9 Assumptions and Limitations 17

1.10 Authorship 17

1.11 Acknowledgements 18

2.0 Statutory Controls 19

2.1 Commonwealth Controls 19

2.1.1 Environment Protection and Biodiversity Act 1999 (EPBC Act) 19

2.1.2 Aboriginal and Torres Strait Islander Heritage Protection Act 1984 20

2.2 State and local legislation 21

2.2.1 Heritage Act 1977 (NSW) 21

2.2.2 Environmental Planning and Assessment Act 1979 (NSW) 21

2.2.3 North Sydney Local Environmental Plan 2013 (Local) 22

2.2.4 North Sydney Development Control Plan (DCP) 2013 23

2.3 Other relevant Legislation and Codes 23

2.3.1 National Construction Code (NCC) 23

2.3.2 Disability Discrimination Act 1992 23

2.4 Non-Statutory Information and Guidelines 24

2.4.1 The Burra Charter 24

2.4.2 Ask First: A Guide to Respecting Indigenous Heritage Places and Values 24

2.4.3 Engage Early 24

2.4.4 Australian Natural Heritage Charter 24

2.4.5 National Trust of Australia 25

3.0 Site background 26

3.1 Introduction 26

3.2 Landscape setting 26

3.2.1 Broader views and vistas to Kirribilli House 28

3.2.2 Description of the allotment 29

3.3 Kirribilli House 31

3.3.1 Exterior 31

3.3.2 Internal Description 33

3.3.3 Condition 37

3.4 Garden 38

3.4.1 Garden areas 39

3.4.2 Area 1 – Entry gate and driveway 39

3.4.3 Area 2 – Northern boundary garden 40

3.4.4 Area 3 – Central Garden 40

3.4.5 Area 4 – Viewing Area 41

3.4.6 Area 5 – Lawn 42

3.4.7 Area 6 – Upper foreshore 42

3.4.8 Area 7 – Foreshore 43

3.4.9 Area 8 – Southern Garden 44

3.4.10 Area 9 – Service Area 44

3.4.11 Area 10 – Kitchen Garden 45

3.4.12 Condition 45

3.5 Other elements 46

3.5.1 Guard house 46

3.5.2 Garage 46

3.5.3 Storeroom 47

3.5.4 Ruins of the boat harbour, bathing pool and boathouse 47

3.5.5 Boundary walls and fences 48

3.6 Views from Kirribilli House 48

4.0 Historical background 51

4.1 Indigenous History 51

4.2 Natural History 51

4.3 Historic heritage 51

4.3.1 Historical summary of the house 52

4.3.2 Historical summary of the garden 53

4.3.3 Timeline of events 55

4.3.4 Key Historical photographs 59

4.3.5 Kirribilli House Evolution Plans 62

4.4 Archaeological potential 71

4.4.1 Management of Unexpected Finds 74

4.4.2 Summary of Archaeological Potential 76

5.0 Significance assessment 77

5.1 Natural Heritage Assessment 77

5.1.1 Discussion 77

5.2 Indigenous Heritage Assessment 77

5.3 Heritage Context 77

5.3.1 Preamble 77

5.3.2 Kirribilli House 77

5.3.3 Kirribilli House Garden & Grounds 80

5.4 Condition and Integrity of CHL Values 83

5.4.1 Significance grading 85

5.4.2 Tolerance for change 86

5.4.3 Contributory elements and significance grading 86

5.4.4 Significance grading of landscape elements 111

5.4.5 Significance grading of vegetation 111

5.4.6 Significance grading diagrams 112

6.0 Heritage Risk Assessment 117

6.1 Objectives 117

6.2 Description 117

6.2.1 Risk Assessment Methodology 117

7.0 Managing heritage values 124

7.1 Objectives 124

7.2 Opportunities and constraints 124

7.3 Planned Works 124

7.4 Policies and guidelines 125

7.5 Management Policies 125

7.5.1 Implementation and review of HMP 125

7.5.2 Change in Ownership or Lease 125

7.5.3 Expert advice, skilled trades 126

7.5.4 Training and resources 126

7.5.5 Roles and responsibilities 127

7.5.6 Internal works approval and record keeping 127

7.5.7 Legislative approvals process 127

7.5.8 National Construction Code (NCC) and Disability Discrimination Act (DDA) compliance              128

7.5.9 Safety 128

7.5.10 Access for people with a Disability 128

7.5.11 Planning and coordination 129

7.5.12 Stakeholder consultation 129

7.6 Security 130

7.6.1 Security and privacy 130

7.6.2 Security Infrastructure 130

7.7 Site-wide policies 130

7.7.1 Conservation principles 130

7.7.2 Setting 132

7.7.3 Streetscape 132

7.7.4 Significant views 132

7.7.5 Heritage curtilage 134

7.7.6 Masterplans 134

7.7.7 Grounds generally 135

7.7.8 House generally 136

7.7.9 Maintenance and repair 136

7.7.10 Emergency Works 137

7.7.11 Climate change, sustainability, and resilience 137

7.7.12 Indigenous cultural management 139

7.7.13 Services 141

7.7.14 Archaeological monitoring 142

7.7.15 Carparking and circulation 142

7.7.16 Public access 142

7.7.17 Archival recording 142

7.7.18 Movable items 143

7.7.19 Heritage interpretation 143

7.7.20 Signage and external lighting 144

7.8 Contributory elements 144

7.9 New work 148

7.9.1 Adaptive re-use 148

7.9.2 New development, additions and infills 148

7.9.3 Changes to function of spaces 149

7.10 Conservation in accordance with significance 149

7.11 Conservation of Materials 150

7.11.1 Traditional materials 150

7.11.2 Reconstruction 150

7.11.3 Colour schemes and finishes 150

7.11.4 Previous inappropriate conservation methods 150

7.11.5 Heritage reporting on the review and implementation of the HMP 150

7.11.6 Knowledge gap analysis 152

7.12 Implementation plan 154

8.0 Maintenance Schedule 155

8.1 Introduction 155

8.2 Catch-up Maintenance 155

8.3 Cyclical Inspection and Maintenance Schedule 161

See Volume 2 – Appendix A to Appendix Q

List of Tables

Table 1‑1: Site Identification Details 3

Table 1‑2: Heritage status - Summary of search results of relevant heritage registers 4

Table 1‑3 EPBC Act Compliance Checklist 7

Table 1‑4: Stakeholders’ roles and responsibilities for Kirribilli House 9

Table 1‑5 EBPC Act heritage significance criteria 11

Table 1‑6: Summary of Significance Rankings for Built and Indigenous Heritage 13

Table 1‑7: Summary of Significance Rankings for Natural Heritage Values 15

Table 1‑8: Registered Aboriginal Organisations consulted 17

Table 4‑1: Site chronology 55

Table 5‑1: Condition Assessment of CHL Values Against Both Listings 84

Table 5‑2 Tolerance for change according to level of significance 86

Table 5‑3: Schedule of significant (contributory) elements 87

Table 5‑4: Significance grading of landscape elements (updated AECOM, 2023) 111

Table 5‑5: Significance grading of vegetation elements at Kirribilli House (location is shown in Figure 5‑57) (updated AECOM, 2023)              111

Table 6‑1 Likelihood rating matrix (assessment on the probability of the risk occurring) 117

Table 6‑2 Consequence Descriptions 117

Table 6‑3 Risk Management Framework Matrix 118

Table 6‑4: Risk Assessment 119

Table 8‑1 Catch-up maintenance 156

Table 8‑2 Cyclical Inspection and Maintenance Plan 162

List of Figures

Figure 1‑1: Study Area 5

Figure 1‑2: Site Plan 6

Figure 2‑1: Sydney Opera House buffer zone extends to Kirribilli House (circled red) (SREP 2005)              21

Figure 2‑2: Extent of Kirribilli Heritage Conservation Area (CA11) in red hatching. Kirribilli House is circled in red (Source: NSW Government Planning Portal, North Sydney LEP 2013, Heritage Map 4)              22

Figure 3‑1: Kirribilli House (obscured by vegetation) and gardens showing context of the Sydney CBD, Opera House and extant bathing pool seen from the harbour ferry (AECOM, 2023)              26

Figure 3‑2: Adjacent Admiralty House, garden and Marine Barracks showing context of the Sydney Harbour Bridge seen from a harbour ferry (AECOM, 2023)              27

Figure 3‑3: Kirribilli House and garden seen from the harbour ferry (AECOM, 2023) 27

Figure 3‑4: Adjacent Admiralty House, garden, and Marine Barracks (below) and garden of Kirribilli House (right of photo) seen from a harbour ferry (AECOM, 2023)              27

Figure 3‑5: Broughton Street looking towards Kirribilli Village Centre (AECOM, 2023) 28

Figure 3‑6: Broughton Street lookout (AECOM, 2023) 28

Figure 3‑7: Residential buildings on Kirribilli Avenue (AECOM, 2023) 28

Figure 3‑8: Residential buildings on Kirribilli Avenue (AECOM, 2023) 28

Figure 3‑9: View from Sydney Opera House (AECOM, 2023) 29

Figure 3‑10: View from Cremorne Point (AECOM, 2023) 29

Figure 3‑11: Site survey and elements (GML 2016 with AECOM updates) 30

Figure 3‑12: Kirribilli Avenue looking west showing stone wall at property boundary and views to the Sydney Harbour Bridge (AECOM, 2023)              30

Figure 3‑13: Lady Gowrie lookout looking east showing timber paling fence at property boundary and views to the harbour (AECOM, 2023)              30

Figure 3‑14: Main entrance to Kirribilli House through iron gates from Kirribilli Avenue looking south (AECOM, 2023)              31

Figure 3‑15: Stone wall and transition to timber paling fence from Kirribilli Avenue looking south (AECOM, 2023)              31

Figure 3‑16: Kirribilli House from Kirribilli Avenue looking south (AECOM, 2023) 31

Figure 3‑17: North elevation (AECOM, 2023) 32

Figure 3‑18: East elevation (AECOM, 2023) 32

Figure 3‑19: Part south elevation (AECOM, 2023) 32

Figure 3‑20: Part south elevation (AECOM, 2023) 32

Figure 3‑21: West elevation (AECOM, 2023) 32

Figure 3‑22: Entry lobby detail 33

Figure 3‑23: Timber framed verandah detail (AECOM, 2023) 33

Figure 3‑24: Ground floor plan – Refer to Volume 3 33

Figure 3‑25: Entry lobby (AECOM, 2023) 33

Figure 3‑26: Stair Hall (AECOM, 2023) 33

Figure 3‑27: Stair Hall (AECOM, 2023) 34

Figure 3‑28: Green room (AECOM, 2023) 34

Figure 3‑29: Drawing room (AECOM, 2023) 34

Figure 3‑30: Dining room (AECOM, 2023) 34

Figure 3‑31: Second stairwell (AECOM, 2023) 34

Figure 3‑32: Second stairwell (AECOM, 2023) 34

Figure 3‑33: Staff room (AECOM, 2023) 35

Figure 3‑34: Kitchen (AECOM, 2023) 35

Figure 3‑35: First floor plan – Refer to Volume 3 36

Figure 3‑36: Stairwell (AECOM, 2023) 36

Figure 3‑37: Corridor (AECOM, 2023) 36

Figure 3‑38: Family room (AECOM, 2023) 36

Figure 3‑39: Bedroom 2 (AECOM, 2023) 36

Figure 3‑40: Bedroom 4 (AECOM, 2023) 36

Figure 3‑41: Bedroom 3 (AECOM, 2023) 36

Figure 3‑42: Early window hardware (AECOM, 2023) 37

Figure 3‑43: Early window hardware (AECOM, 2023) 37

Figure 3‑44: Landscape areas within the grounds of Kirribilli House (Taylor Brammer Landscape Architects Pty Ltd, 2020:5)              39

Figure 3‑45: Entry gate and driveway (AECOM, 2023) 40

Figure 3‑46: Driveway loop showing Jacaranda (AECOM, 2023) 40

Figure 3‑47: Northern boundary (beyond) showing the loss of privacy from the erosion of canopy trees (AECOM, 2023)              40

Figure 3‑48:3‑49 Garden edges informally placed compromise the natural sandstone outcrop (AECOM, 2023)              40

Figure 3‑50: Sandstone outcrop (AECOM, 2023) 41

Figure 3‑51: Garden rock wall poorly constructed (AECOM, 2023) 41

Figure 3‑52: Flagged terrace and retaining wall (AECOM, 2023) 41

Figure 3‑53: Viewing terrace (AECOM, 2023) 41

Figure 3‑54: Steep slope of the lawn (AECOM, 2023) 42

Figure 3‑55: Poorly constructed garden walls (AECOM, 2023) 42

Figure 3‑56: Area bound by metal fence and shrub like plantings (AECOM, 2023) 43

Figure 3‑57: Shrubs and rock outcrops (AECOM, 2023) 43

Figure 3‑58: Concrete steps (AECOM, 2023) 43

Figure 3‑59: Mixture of random stone and brick retaining walls (AECOM, 2023) 43

Figure 3‑60: Plantings and paths defining the boundary to Admiralty House (AECOM, 2023) 44

Figure 3‑61: Paving and seating inconsistent with heritage values (AECOM, 2023) 44

Figure 3‑62: Existing gate and access (AECOM, 2023) 45

Figure 3‑63: Concrete paths inconsistent with heritage values (AECOM, 2023) 45

Figure 3‑64: Stone retaining wall and hedge to edge of area (AECOM, 2023) 45

Figure 3‑65: Kitchen Garden (AECOM, 2023) 45

Figure 3‑66: Guard house east elevation (AECOM, 2023) 46

Figure 3‑67: Guard house west elevation (AECOM, 2023) 46

Figure 3‑68: Garage north elevation (AECOM, 2023) 47

Figure 3‑69: Garage western elevation (AECOM, 2023) 47

Figure 3‑70: Storeroom west elevation (right of photo) (AECOM, 2023) 47

Figure 3‑71: Storeroom east elevation (centre of photo) (AECOM, 2023) 47

Figure 3‑72: Ruins of the boat harbour, bathing pool and boathouses (AECOM, 20223) 48

Figure 3‑73: Ruins of the boat harbour, bathing pool and boathouses (AECOM, 20223) 48

Figure 3‑74: Southern boundary to Admiralty House (AECOM, 20223) 48

Figure 3‑75: Western boundary (AECOM, 20223) 48

Figure 3‑76: Framed view of the Sydney Harbour from site entry (AECOM 2023) 49

Figure 3‑77: Panoramic views to Sydney Harbour, Fort Denison, and Garden Island from garden (AECOM 2023)              49

Figure 3‑78: Panoramic views to Sydney Harbour, Bradleys Head, Kurraba Point and Cremorne Point from garden (AECOM 2023)              49

Figure 3‑79: Panoramic views to Sydney Harbour and Sydney CBD from garden (AECOM 2023)              49

Figure 3‑80: Panoramic views to Opera House obscured by plantings, viewed from garden beds closest to foreshore (AECOM 2023)              49

Figure 3‑81: Filtered views to the Opera House from garden (AECOM 2023) 49

Figure 3‑82: Filtered views of Fort Denison from garden paths (AECOM, 2023) 50

Figure 3‑83: Panoramic views to Kurraba Point and Cremorne Point (AECOM, 2023) 50

Figure 3‑84: Framed view from upper-level window (AECOM 2023) 50

Figure 3‑85: Framed view from staff room (AECOM 2023) 50

Figure 4‑1: 1890s SPF image showing Kirribilli House, thick vegetation in gardens and harbour structures (Source: Mitchell Library)              59

Figure 4‑2: 1890s SPF image showing detail of terraced gardens, manicured hedges, and harbour structures (Source: Mitchell Library)              59

Figure 4‑3: c.1920 Detail of Richardson & Wrench Sales Brochure, showing Kirribilli House and garden including plantings (Kirribilli House Subdivision: Richardson & Wrench Ltd –Saturday 17 January 1920 at 3.30 pm)              60

Figure 4‑4: Detail of Richardson & Wrench Sales Brochure, c. 1920 showing the bathing pool, stone walls, boat harbour and timber shelter and boatshed (Kirribilli House Subdivision: Richardson & Wrench Ltd – 17 January 1920 at 3.30 pm)              60

Figure 4‑5: c.1921, Detail of photograph of the Pastoral Finance Association Building (to the left of Admiralty House out of frame) on Kirribilli Point, taken by Milton Kent showing Kirribilli House, garden and harbourside structures (Source: State Library of NSW, ON 447/Box 123              60

Figure 4‑6: 1920s View from the Estate Richardson & Wrench Sales Brochure showing panoramic views (Kirribilli House Subdivision: Richardson & Wrench Ltd –Saturday 17 January 1920 at 3.30 pm)              61

Figure 4‑7: 1943 Photographic aerial showing Kirribilli House prior to western extension (spatial.nsw.gov.au)              61

Figure 4‑8: 1965 Photographic aerial showing Kirribilli House after western extension (spatial.nsw.gov.au)              61

Figure 4‑9: 2005 Photographic aerial (spatial.nsw.gov.au) 61

Figure 4‑10: 2023 Photographic aerial showing loss of tree canopy to northern boundary (maps.six.nsw.gov.au)              61

Figure 4‑11: Ground floor plan evolution – Refer to Volume 3 62

Figure 4‑12: First floor plan evolution – Refer to Volume 3 62

Figure 4‑13: East and west elevations evolution (Source: Design 5 report 2010) 63

Figure 4‑14: North and south elevations evolution (Source: Design 5 report 2010) 64

Figure 4‑15: Kirribilli Grounds 1850s to 1860s (Source: Geoffrey Britton 2015) 65

Figure 4‑16: Kirribilli Grounds 1880s-1890s (Source: Geoffrey Britton, 2015) 66

Figure 4‑17: Kirribilli Grounds 1920s – 1930s (Source: Geoffrey Britton, 2015) 67

Figure 4‑18: Kirribilli Grounds 1957 (Source Geoffrey Britton, 2015) 68

Figure 4‑19: Kirribilli Grounds, 1960s-1970s (Source: Geoffrey Britton, 2015) 69

Figure 4‑20: Evolution of key landscape elements (Source: Geoffrey Britton, 2015) 70

Figure 4‑21: General view of hallway following floorboard removal, looking east. The former cellar structure is at left of frame (Source: Higginbotham, 1987:6)              71

Figure 4‑22: Footings of a dry-pressed partition wall at the western end of the hallway (Source: Higginbotham, 1987:6)              71

Figure 4‑23: View of cellar, looking northwest. Original joists are at far left and right, with newer (narrower) joists over the cellar (Source: Higginbotham, 1987:7)              72

Figure 4‑24: Entrance hallway, looking north. Original joists in foreground with cellar at extreme left (Source: (Higginbotham, 1987:8)              72

Figure 4‑25: Detail of Metropolitan Water Sewerage & Drainage Board map from 1892 showing features surrounding Kirribilli House (Source: Stanton Library, LH REF MF 299/1, Image #MF2990001)              73

Figure 4‑26: Greenhouse/summer house northeast of main house, undated (Source: Department of Prime Minister and Cabinet)              74

Figure 4‑27: Unexpected finds procedure 75

Figure 5‑1: One of the access paths to Admiralty House and Laundry building on western boundary (AECOM, 2023)              87

Figure 5‑2: Views from the immediate foreshore (AECOM, 2023) 87

Figure 5‑3: Panoramic views (AECOM, 2023) 88

Figure 5‑4: Rock outcrop (AECOM, 2023) 88

Figure 5‑5: Entry gate (AECOM, 2023) 89

Figure 5‑6: c.1913 entry gate (Source: Mitchell Library PXA548—Kirribilli Album) 89

Figure 5‑7: Driveway (AECOM, 2023) 89

Figure 5‑8: 1913 Entry path (Mitchell Library PXA548—Kirribilli Album) 90

Figure 5‑9: Upper eastern grassed banks and terraces (AECOM, 2023) 90

Figure 5‑10: c.1913 (Source: Mitchell Library PXA548 – Kirribilli Album) 91

Figure 5‑11: Lower eastern lawn and eastern walk (AECOM, 2023) 91

Figure 5‑12: 1890s SPF image (Source: Mitchell Library) 91

Figure 5‑13: Northeast gardens (AECOM, 2023) 92

Figure 5‑14: 1900-1902 Northeast Garden (Source: State Library of NSW, W H Davis Manuscript Collection, PXA4467)              92

Figure 5‑15: Northeastern terrace (AECOM, 2023) 93

Figure 5‑16: Clifftop Garden (AECOM, 2023) 93

Figure 5‑17: Foreshore and cliffs (AECOM, 2023) 93

Figure 5‑18: 1890s Foreshore and cliffs (Source: Mitchell Library) 94

Figure 5‑19: Harbourside ruins (AECOM, 2023) 94

Figure 5‑20: 1878 Crown plan showing harbourside structures (1892 plan) 94

Figure 5‑21: Southern lawn terrace and rockeries (AECOM, 2023) 95

Figure 5‑22: Western Garden (AECOM, 2023) 95

Figure 5‑23: Paths and stairs (AECOM, 2023) 96

Figure 5‑24: Significant trees (AECOM, 2023) 96

Figure 5‑25: Victorian Rustic Gothic style 97

Figure 5‑26: North elevation (AECOM, 2023) 97

Figure 5‑27: East elevation (AECOM, 2023) 98

Figure 5‑28: Part south elevation (AECOM, 2023) 98

Figure 5‑29: West elevation (AECOM, 2023) 98

Figure 5‑30: Chimney (AECOM, 2023) 99

Figure 5‑31: Masonry wall (AECOM, 2023) 99

Figure 5‑32: Verandah (AECOM, 2023) 100

Figure 5‑33: Front porch (AECOM, 2023) 100

Figure 5‑34: Bay window (AECOM, 2023) 101

Figure 5‑35: French doors (AECOM, 2023) 101

Figure 5‑36: Original casement window (AECOM, 2023) 102

Figure 5‑37: Timber shutters (AECOM, 2023) 102

Figure 5‑38: Bathroom additions (AECOM, 2023) 103

Figure 5‑39: Service wing (AECOM, 2023) 103

Figure 5‑40: Entry hall (AECOM, 2023) 104

Figure 5‑41: Drawing room (AECOM, 2023) 104

Figure 5‑42: Dining room (AECOM, 2023) 105

Figure 5‑43: Prime Minister’s study (AECOM, 2023) 105

Figure 5‑44: Green room (AECOM, 2023) 106

Figure 5‑45: Hallways and stairs (AECOM, 2023 and painting Witiiti George) 106

Figure 5‑46: Family room (AECOM, 2023) 107

Figure 5‑47: Bedroom 2 (AECOM, 2023) 107

Figure 5‑48: Bathroom (AECOM, 2023) 107

Figure 5‑49: Kitchen (AECOM, 2023) 108

Figure 5‑50: architraves and skirtings (AECOM, 2023 and painting from National Gallery Australia)              108

Figure 5‑51: Subfloor access (AECOM, 2023) 109

Figure 5‑52: Garage (AECOM, 2023) 109

Figure 5‑53: Guard house (AECOM, 2023) 109

Figure 5‑54: Storeroom (AECOM, 2023) 110

Figure 5‑55: Cabinets in hallway (AECOM, 2023 and The Australian Fund) 110

Figure 5‑56: Significance grading of grounds from 2016 HMP (based on Design 5, 2010) updated by AECOM in Table 5-7.              113

Figure 5‑57:Significance grading – vegetation (trees and shrubs) showing results of AECOM tree survey              114

Figure 5‑58: Significance grading First floor plan – Refer to Volume 3 115

Figure 5‑59: Significance grading Roof plan – Refer to Volume 3 115

Figure 5‑60: Significance grading Section – Refer to Volume 3 115

Figure 5‑61: Significance grading North elevation (Design 5, 2010) 115

Figure 5‑62: Significance grading South elevation (Design 5, 2010) 115

Figure 5‑63: Significance grading East elevation (Design 5, 2010) 116

Figure 5‑64: Significance grading West elevation (Design 5, 2010) 116

Figure 5‑65: Significance grading Garage – Volume 3 116

Figure 7‑1: Significant views to Kirribilli House from various vantage points of Sydney Harbour (maps.six.nsw.gov.au              134

Figure 7‑2: Significant views from Kirribilli House and Garden (maps.six.nsw.gov.au) 134

Figure 8‑1: Rising damp to western addition 157

Figure 8‑2: Rising damp adjacent to southern wall outside study 157

Executive Summary

AECOM Australia Pty Ltd (AECOM) was commissioned by the Department of Prime Minister and Cabinet (PM&C) to prepare an updated Heritage Management Plan (HMP) for Kirribilli House at Kirribilli, New South Wales (NSW). This HMP replaces and updates the HMP prepared in 2016, Kirribilli House Operational Heritage Management Plan, Volumes 1 and 2 (GML Heritage Pty Ltd, 2016). The HMP has been prepared to meet the obligations of the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) and to assist PM&C with decisions relating to the care and management of Kirribilli House and Garden.

Kirribilli House and Kirribilli House, Garden and Grounds are separately listed on the Commonwealth Heritage List. Kirribilli House is also listed on Schedule 5 of the North Sydney Local Environmental Plan (LEP) 2013 and the National Trust of Australia.

AECOM have undertaken a review of historical documents and physical assessments through site visits to review and update the heritage significance of Kirribilli House and Garden, which has been re-written as follows.

Statement of significance

Kirribilli House and Garden is highly significant to the Australian cultural history as it has been the official Sydney residence of the Australian Prime Minister since 1957. The site, together with Admiralty House, evidences the early land grants to convict Samuel Lightfoot (1794), Robert Ryan (1800) and Robert Campbell (1806). Kirribilli House and Garden demonstrates the lifestyle of prominent Sydney residents of the Victorian era. The site has direct association with an early public campaign to protect harbourside development in the 1920s. The site has historical significance for its continued association with the Commonwealth role of the Governor-General (Criteria A).

The site is a rare surviving example of a substantial Victorian Rustic Gothic residence in a harbour setting with a significant government use. The bathing pool, although in a ruinous state, has been identified as one of the oldest bathing pools on Sydney Harbour. The site has the potential for archaeology (Criterion B and C).

Kirribilli House and Garden has representative value for its Victorian Rustic Gothic style, as a substantial and harbourside Victorian house. The house and garden are highly significant for aesthetic features. The site has landmark Victorian picturesque qualities and together with Admiralty House and its grounds forms part of a continuous harbour foreshore landscape that is reminiscent of the early Port Jackson shoreline. The Victorian Rustic Gothic style characteristics found at Kirribilli House include the picturesque setting, modest scale, irregular massing, steeply pitched gabled rooves with highly decorated bargeboards, prominent gable, gabled dormer, slate roof, textured masonry walling, bay windows, timber verandah and tall medieval looking chimneys. The garden at Kirribilli House is a representative example of a Victorian garden represented by the picturesque qualities, sweeping lawn, meandering stone paths, terracing, dry stone walling, fencing, dramatic views (panoramic and framed), floristic diversity including leaf form, colour and texture. The harmonious relationship between the house and garden and the contributory architectural elements of the Victorian Rustic Gothic style, contribute to the site’s high aesthetic value (Criterion D and E).

Kirribilli House and Garden is important to the people of Australia. The public have knowledge and respect for the site’s role, that is as the official Sydney residence of the Prime Minister. Their awareness also extends to the understanding of the separate vice regal role of the Governor-General, represented physically by the co-location of Admiralty and Kirribilli Houses. There is an appreciation by the public that Kirribilli House is a modest scale (Criterion G).

Kirribilli House and Garden is significant for its association with Australian Prime Ministers since 1957 and various dignitaries. The garden is associated with Professor E G Waterhouse (linguist, horticulturalist and camellia expert), G W Gillham (head gardener of Admiralty house) and Charles Weston (head of the Yarralumla Nursery in Canberra). The 1957 modifications to the site were undertaken by the well-known architectural firm, Fowell, Mansfield and Maclurcan. The People’s Open Air Space Movement (1920s) along with prominent members of the community including Dr Mary Booth (physician and welfare worker) and Senator H E Pratten (mining entrepreneur and politician) helped protect Kirribilli House from demolition (Criterion H).

The Indigenous heritage assessment did not identify any significant heritage values; however, this would change if future investigations identified cultural modifications of the sandstone outcrops beneath the landscaped garden. This does not negate the fact that the site is located within a broader cultural landscape with intangible cultural values. 

Further heritage assessment for potential National and State heritage values have confirmed that Kirribilli House and Garden may meet the criteria for listing in both the National Heritage List (NHL) and State Heritage Register (SHR) and hence should be nominated for listings.

AECOM have incorporated the findings from the Kirribilli House Landscape Management Plan 2020, Taylor Brammer Landscape Architects (Taylor Brammer Landscape Architects Pty Ltd, 2020), undertaken an updated Tree Survey and Indigenous Assessment and consultation for the site. Following this, AECOM have reviewed and updated the heritage management policies and compiled an updated maintenance plan to assist PM&C with the management of the site.

Note: Volume 3 includes redacted material not available to the public due to security requirements.

1.0                    Introduction

1.1                       Background

Kirribilli House is owned by the Commonwealth of Australia, as represented by the Department of Prime Minister and Cabinet (PM&C). AECOM Australia Pty Ltd (AECOM) was commissioned to prepare an updated Heritage Management Plan (HMP) for Kirribilli House at Kirribilli, New South Wales (NSW) (referred to in this report as ‘the site’, ‘Kirribilli House’, ‘Kirribilli House and Garden’, and the ‘study area’).

The transfer of administration from the Department of Finance to the Department of PM&C took place in 2017. Under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act), Commonwealth agencies are required to identify, manage, and conserve heritage items. The EPBC Act requires that HMPs are reviewed and updated every five years. This HMP replaces and updates a HMP prepared in 2016, Kirribilli House Operational Heritage Management Plan, Volumes 1 and 2 (GML Heritage Pty Ltd, 2016), hereafter referred as, HMP, 2016.

1.2                       Site location

Kirribilli House is located on the Kirribilli peninsula, on the northern foreshore of Sydney Harbour, directly opposite Circular Quay and the Opera House. It is located adjacent to Admiralty House, the Sydney residence of the Governor-General of Australia. The site identification information is presented in Table 1‑1 and the location is shown on Figure 1‑1 and Figure 1‑2.

Table 1‑1: Site Identification Details

1.3                       Heritage status

A search has been undertaken of the relevant heritage registers (Table 1-2). Kirribilli House and Garden has two separate listings in the Commonwealth Heritage List (CHL). It is also listed in Schedule 5 of the North Sydney Local Environmental Plan (LEP) 2013 as an item of local significance within a heritage conservation area.

Table 1‑2: Heritage status - Summary of search results of relevant heritage registers

Figure 1‑1: Study Area

Figure 1‑2: Site Plan

1.4                       Previous key heritage reports

The heritage values of Kirribilli House have been outlined in the following previous reports:

• Kirribilli House Operational Heritage Management Plan, Volume 1 and 2, GML (GML Heritage Pty Ltd, 2016)
• Kirribilli House Landscape management Plan 2020, Taylor Brammer Landscape Architects (Taylor Brammer Landscape Architects Pty Ltd, 2020)
• Draft Kirribilli House Conservation Management Plan 2010, Design 5 (Design 5, 2010)
• Kirribilli House, Conservation Analysis and Draft Conservation Policy 1985, Clive Lucas & Partners (Clive Lucas Stapleton & Partners Pty Ltd, 1986)
• Archaeological Assessment, Kirribilli Foreshore Development, 2000, GML (Godden Mackay Logan Pty Ltd (GML), 2000)
• Kirribilli House Grounds Conservation and Management Plan 1986, Landscape Architects Department of Housing and Construction (Landscape Architects Department of Housing and Construction, 1986).

1.5                       Objectives

The objective of this HMP is to assist PM&C in the management of the assessed heritage values of Kirribilli House. The preparation and implementation of an HMP is required under Section 341S of the EPBC Act for places inscribed on the CHL.

The key issues are:

• Identification and presentation of the Commonwealth, heritage values of Kirribilli House and Garden including historic, natural and Indigenous values
• Provide management policies and guidelines to retain the identified heritage values of Kirribilli House and Garden
• Ensuring that no activities diminish the significance of the setting, form and character of Kirribilli House and Garden
• Ensuring that no activities diminish the main use of Kirribilli House as the Official Sydney residence of the Prime Minister
• Continue to manage and maintain Kirribilli House to a very high standard considering its functional use as the Official Sydney residence of the Prime Minister.

This HMP has been developed to comply with the regulations provided in Schedule 7A and 7B of the EPBC Regulations 2000, which specifies the content of a management plan for CHL places. Table 1‑3 lists the requirements of Schedules 7A and 7B and references the sections of the HMP that address the requirements.

Table 1‑3 EPBC Act Compliance Checklist

1.6                       Stakeholder roles and responsibilities

Kirribilli House is owned by PM&C on behalf of the Commonwealth of Australia. The roles and responsibilities of Kirribilli House are outlined in Table 1‑4.

Table 1‑4: Stakeholders’ roles and responsibilities for Kirribilli House

1.6.1                   Management of Kirribilli House

In 2017, PM&C assumed ownership and property management of Kirribilli House from the Department of Finance (following the Administrative Arrangements Order of 30 November 2017).

Within PM&C overarching responsibility for Kirribilli House sits with the High Office Support Team (HOST). The Office of the Official Secretary to the Governor-General provides grounds and garden maintenance through a Memorandum of Understanding arrangement; while day-to-day facilities maintenance is provided by Jones Lang Lasalle (JLL) utilising existing Whole-of-Government service provision arrangements (these arrangements commenced on 1 March 2023).

The HOST Section will continue to be responsible for capital works planning and delivery, as well as other ad hoc projects.

1.7                       Methodology

1.7.1                   General

To achieve the objectives of an HMP, the following scope of work was undertaken:

• Complete a search of relevant heritage registers
• Review of historical documentation and additional research to fill in knowledge gaps to develop an appreciation of the historical context of the site
• Undertake a site inspection including consultation with Indigenous representatives to understand the physical context of the site
• Assess the heritage values of the site using the relevant Commonwealth criteria
• Undertake a risk assessment to heritage values of the site
• Review and update management policies and develop maintenance activities.

The HMP adheres to the following legislative framework and best practice guidelines:

• EPBC Act and Regulations
• The Australia International Council for Monuments and Sites (ICOMOS) Charter for Places of Cultural Significance (2013) (the Burra Charter)
• Australian Heritage Council (2010), Identifying Commonwealth Heritage values and Establishing a Heritage Register: A Guide for Commonwealth Agencies
• Department of Sustainability, Environment, Water, Population and Communities (now Department of Climate Change, Energy, the Environment and Water [DCCEEW]) Guide: Australia’s Commonwealth Heritage – Working Together – Managing Commonwealth Heritage Places
• Australia Heritage Council, Ask First: A Guide to Respecting Indigenous Heritage Places and Values
• Engage Early: Guidance for Proponents on best practice Indigenous engagement for environmental assessments under the EPBC Act
• Commonwealth of Australia (2002), Australian Natural Heritage Charter.

Consultation with PM&C has determined that the Finance HMP report format is an acceptable template for use.

1.7.2                   Assessment of significance Thresholds

Australia uses a four-tiered system for identifying significance. A site may be of significance at a World, National, State/Territory or local level.

Items that are deemed significant at a national level must demonstrate they are of significance to the people of Australia as a whole and are listed on the National Heritage List (NHL), an example of which is the Sydney Opera House. To be of State/Territory significance, an item must be of value to the people of that State/Territory, in this case NSW, and listed on the NSW State Heritage Register (SHR). An example would be the General Post Office in Martin Place. Items that may not be of significance at a National or State level but are important to the people of a town or region, may be found in statutory listings on the CHL and the relevant LEP.

The DCCEEW website provides some guidance in assessing the level of significance. To be considered for listing on the CHL, an item must be of at least local significance and have ‘significant’ heritage value against one or more criteria. To meet the threshold for the NHL the place must have ‘outstanding’ heritage value to the nation against one or more criteria. Appendix Q contains further information on the NHL and SHR listings.

1.7.3                   Significance Assessment under the EPBC Act

The assessment of potential Indigenous, natural and historic heritage significance has been undertaken using the EPBC Act heritage significance criteria, as outlined in Table 1‑5. The assessment was undertaken using the guideline Identifying Commonwealth Heritage Values and Establishing a Heritage Register: A guideline for Commonwealth agencies (Australian Heritage Council, 2010).

Table 1‑5 EBPC Act heritage significance criteria

AECOM have also adopted the Finance significance ranking guide for ease of assessment and consistency with the previous HMP (GML Heritage Pty Ltd, 2016). The ranking system has been developed in reference to the International Council on Monuments and Sites (ICOMOS), Burra Charter, World Heritage Guidelines, Ask First Guideline for Indigenous places, and the Natural Heritage Charter.

Definitions for each category of the ranking system are provided in Table 1‑6 and Table 1‑7. This HMP adopts this ranking system for evaluating heritage significance.

Table 1‑6: Summary of Significance Rankings for Built and Indigenous Heritage

Table 1‑7: Summary of Significance Rankings for Natural Heritage Values

1.7.4                   Knowledge Gap Analysis

Preliminary review of reports for the site highlighted the following knowledge gaps:

• The heritage significance of the site predominantly lies in the Victorian era and there is insufficient representation of this evidence in the documentary and physical analysis
• Although there are several floor plans available for the site, the original house plans are yet to be located
• Discussion of the significance of the pool and remnant boat shed ruins
• Discussion of the shared history of Admiralty House and the site and why the two sites are separately listed
• Demonstration of the wider landscape context of the harbour setting of the site and critical views and vistas
• Clarity in the process of works approval
• Reliance on the Kirribilli House Landscape Management Plan 2020, Taylor Brammer Landscape Architects (Taylor Brammer Landscape Architects Pty Ltd, 2020) alone is insufficient to demonstrate significance of the landscape elements. This means including information from the HMP, 2016 and previous landscape assessments.

A list of unsolved problems listed in the Kirribilli House, Conservation Analysis and Draft Conservation Policy 1985, Clive Lucas & Partners (Clive Lucas Stapleton & Partners Pty Ltd, 1986) are still unanswered. There are likely to be various reasons why they have not been resolved over the past 40 years, one of which is that a number of studies and documents have been produced over this time but were not consolidated, with some documents falling into disuse and thereafter overlooked. This iteration of the HMP has sought to rectify this by consolidating all relevant previous studies and has thus identified the unresolved issues.

Further, some of these issues require physical interventions to fabric and so may only be undertaken opportunistically as part of other works. It is recommended that the next HMP review should start by attempting to solve these issues through additional research. Some of these questions may be answered by detailed physical examination or during physical interventions to the fabric:

• Confirmation of the position and detail of the original staircase
• The detail of the original front door
• The detail of the original bay window on the eastern elevation
• The early detail of the door(s) in the south wall of Study
• The detail of the original verandah
• The detailing of the c.1860s verandah columns and bracket
• Details of the original drawing room windows
• The early use of some of the spaces in the building c.1856-1880
• The exact position, configuration and use of the early outbuildings, c.1856-1920
• The position and thickness of some early internal walls, c.1856-1920
• Specific details about internal decoration, including some chimney pieces and grates
• The detail and configuration of the boat sheds and original staircase down to harbour
• Details of original fencing and gates.

1.8                       Consultation

Consultation for this HMP has involved:

• An inception meeting with PM&C stakeholders for overall project
• Consultation with onsite House Manager
• Inception meeting and on-site field inspection with an Indigenous stakeholder relating to Indigenous heritage
• Progress meetings with PM&C, including during site visits.

AECOM consulted with the Indigenous stakeholder groups and representatives outlined in Table 1‑8. The consultation list was derived by writing to agencies, which included Heritage NSW, the Metropolitan Local Aboriginal Land Council, the Registrar of the Aboriginal Land Rights Act 1983, the National Native Title Tribunal, Native Title Services Corporation Limited, local council and the catchment management authority, requesting contact details for any relevant Aboriginal groups or individuals. An email inviting expressions of interest and containing summary information on the project was sent to all Aboriginal persons and organisations identified by the regulatory agencies and a total of 16 registrations resulted. Metropolitan Local Aboriginal Land Council cultural officer and archaeologist Rowena Welsh-Jarrett attended the site inspection of Kirribilli House. This was due to security issues necessitating a small core field team for site works. It was reasoned that as the Metropolitan Local Aboriginal Land Council was a representative body that had been involved in previous inspections at Kirribilli House, they were the most appropriate group to attend.

Details of the consultation process and Indigenous values are included in Appendix J.

Table 1‑8: Registered Aboriginal Organisations consulted

1.8.1                   Public exhibition

In accordance with paragraph 341(S)(6)(b) of the EPBC Act and 10.03C of the Regulations, the Department of the Prime Minister and Cabinet sought public comments about the matters addressed by the updated HMP by publishing a public notice in 2023 and placing the draft plan on exhibition. No submissions were received in response to this; this document has been finalised following the close of public notification and exhibition.

1.9                       Assumptions and Limitations

Given the extensive coverage of the history of Kirribilli House in previous HMPs, limited historical research has been undertaken as part of this HMP. Historical information provided is based on previous reports, principally the 2016 HMP by GML Heritage.

1.10                  Authorship

This HMP was prepared by Principal Heritage Architect, Ameera Mahmood with assistance from Senior Heritage Consultant Deborah Farina. The Indigenous assessment was undertaken by ANZ Technical Lead, Dr Darran Jordan, and the Tree and Shrub Survey by Technical Director, Jamie McMahon.
A quality and technical review was also undertaken by Dr Darran Jordan.

1.11                  Acknowledgements

AECOM would like to acknowledge the following individuals for their assistance during the preparation of this report:

• Metropolitan Local Aboriginal Land Council representative Rowena Welsh-Jarrett
• The onsite House Manager

• Representatives of PM&C.
  

2.0                    Statutory Controls

Kirribilli House is located on Commonwealth land, hence the primary instruments that are applicable to the subject site are Commonwealth legislation. The PM&C do not need to meet the State or local legislation however, the PM&C Heritage Strategy (Department of the Prime Minister and Cabinet, 2023a) states that any activities within its properties in principle will aim to comply with the principles set out in the State and local government requirements.

2.1                       Commonwealth Controls

2.1.1                   Environment Protection and Biodiversity Act 1999 (EPBC Act)

The EPBC Act defines ‘environment’ as both natural and cultural environments and therefore includes Aboriginal and non-Aboriginal historical cultural heritage items. Under the Act, protected heritage items are listed on the NHL (items of significance to the nation) or the CHL (items belonging to the Commonwealth or its agencies). These two lists replaced the Register of the National Estate (RNE), which has been suspended and is no longer a statutory list and so has not had its listings included in this HMP.

The heritage registers mandated by the EPBC Act have been consulted; the site is listed under two listings in the CHL.

Under Part 9 of the EPBC Act, any action that is likely to have a significant impact on a matter of National Environmental Significance (MNES) (known as a controlled action under the EPBC Act),
may only progress with approval of the commonwealth minister responsible for heritage. An action is defined as a project, development, undertaking, activity (or series of activities), or alteration. An action would also require approval if:

• It is undertaken on Commonwealth land and would have or is likely to have a significant impact on the environment on Commonwealth land; or
• It is undertaken by the Commonwealth and would have or is likely to have a significant impact.

The primary objective of the EPBC Act is to provide for the protection of the environment, particularly those aspects that are MNES. The key parts of the EPBC Act that are of direct relevance to the heritage assessment and management of the Kirribilli House and Garden are:

• Section 26: Requirement for approval of activities involving Commonwealth land with the potential to have a significant impact on the environment
• Section 28: Requirement for approval of activities undertaken by a Commonwealth agency with the potential to have a significant impact on the environment.

Additionally, the EPBC Act also identifies requirements for the protection of Commonwealth Heritage, being:

• Section 341S: Requirement that a Commonwealth agency must make a written plan to protect and manage the Commonwealth Heritage values of a Commonwealth Heritage place it owns or controls (a Heritage Management Plan such as this one)
• Section 341ZC: Requirement to minimise adverse impacts on the heritage values of a place included on the NHL and/or CHL
• Section 341V: Requirement to comply with a plan prepared under Section 341S
• Section 341X: Requirement to review a plan prepared under Section 341S at least once every five years
• Section 341ZE: Requirement to provide ongoing protection of heritage values of a place included on the CHL in the event of sale or transfer.

Sections 26 and 28

The EPBC Act requires actions on Commonwealth land (Section 26) and actions undertaken by a Commonwealth agency (Section 28) to be assessed for the likelihood that these actions will have a significant impact on the environment. The term ‘environment’ has a broader coverage than MNES and relates to environmental matters that are not necessarily formally listed.

The Act defines the environment as:

1.          Ecosystems and their constituent parts, including people and communities
2.          Natural and physical resources
3.          The qualities and characteristics of locations, places, and areas
4.          Heritage values of places
5.          The social, economic, and cultural aspects of a thing mentioned in paragraph (a), (b), (c) or (d).

Any actions which will, or are likely, to significantly impact the environment need to be assessed.
If potentially significant impacts are identified, opportunities for their avoidance, reduction or management must be sought. A referral under the EPBC Act may also need to be considered.

The World Heritage listed Sydney Opera House and its buffer zone are a MNES, thus constituting an additional statutory arrangement that applies to Kirribilli House and Gardens. There is, therefore, a requirement to consider this MNES in relation to any proposed works and ongoing management at Kirribilli House and Gardens. The most likely impact, due to the distance between the two places, is visual, which has been addressed in Section 7.7.4 under Policy 15 for significant views (see also Figure 2‑1).

2.1.2                   Aboriginal and Torres Strait Islander Heritage Protection Act 1984

The Aboriginal and Torres Strait Islander Heritage Protection Act 1984 (the ATSIHP Act) provides for the preservation and protection of places, areas, and objects of particular significance to Indigenous Australians. The stated purpose of the ATSIHP Act is the “preservation and protection from injury or desecration of areas and objects in Australia and in Australian waters, being areas and objects that are of particular significance to Aboriginals in accordance with Aboriginal tradition” (Part I, Section 4).

Under the Act, ‘Aboriginal tradition’ is defined as “the body of traditions, observances, customs and beliefs of Aboriginals generally or of a particular community or group of Aboriginals, and includes any such traditions, observances, customs or beliefs relating to particular persons, areas, objects or relationships” (Part I, Section 3). A ‘significant Aboriginal area’ is an area of land or water in Australia that is of “particular significance to Aboriginals in accordance with Aboriginal tradition” (Part I, Section 3). A ‘significant Aboriginal object’, on the other hand, refers to an object (including Aboriginal remains) of like significance.

For the purposes of the Act, an area or object is considered to have been injured or desecrated if:

1.          In the case of an area:

1.            It is used or treated in a manner inconsistent with Aboriginal tradition
2.           The use or significance of the area in accordance with Aboriginal tradition is adversely affected
3.         Passage through, or over, or entry upon, the area by any person occurs in a manner inconsistent with Aboriginal tradition.

1.          In the case of an object:

1.            It is used or treated in a manner inconsistent with Aboriginal tradition.

A person must not adversely affect declared significant Aboriginal areas, Aboriginal objects,
or Aboriginal remains.

Duty-of-care notification requirements exist under this Act where a site or artefact is disturbed as
a result of any activity.

2.2                       State and local legislation

2.2.1                   Heritage Act 1977 (NSW)

The Heritage Act 1977 (Heritage Act) was enacted to conserve the environmental heritage of NSW. Under Section 32, places, buildings, works, relics, movable objects, or precincts of heritage significance are protected by means of either Interim Heritage Orders (IHO) or by listing on the NSW SHR.
Items that are assessed as having State heritage significance can be listed on the NSW State Heritage Register by the Minister on the recommendation of the NSW Heritage Council.

Kirribilli House is not listed on the NSW SHR; however, a preliminary assessment indicates that it may be eligible for listing. However, this is outside the scope of this document.

2.2.2                   Environmental Planning and Assessment Act 1979 (NSW)

The Environmental Planning and Assessment Act 1979 (EP&A Act) and Environmental Planning & Assessment Regulation 2000 (EP&A Regulation) provides the legislative framework for environmental planning in NSW. The Act and associated regulation include provisions to ensure that all development proposals that have the potential to have an impact on the environment are subject to an appropriate level of assessment, while also providing opportunity for public involvement. This framework is supported by a range of environmental planning instruments including State Environmental Planning Policies (SEPPs) and LEPs.

As a site that is situated on the foreshore of Sydney Harbour, there are relevant sections in the State Environmental Planning Policy (Biodiversity and Conservation) 2021 that are applicable to Kirribilli House. The site can be impacted and can cause an impact to other items of environmental values on the Harbour. Prominent sites include the World heritage listed Sydney Opera House which has a visual buffer zone extending to Kirribilli Point.

Figure 2‑1: Sydney Opera House buffer zone extends to Kirribilli House (circled red) (SREP 2005)

2.2.3                   North Sydney Local Environmental Plan 2013 (Local)

The site is located wholly within the North Sydney Local Government Area (LGA), in which the relevant Environmental Planning Instrument (EPI) is the North Sydney LEP 2013. Clause 5.10 of the North Sydney LEP provides specific provisions for the protection of heritage items and relics within the North Sydney LGA.

Under the North Sydney LEP, development consent is required for any of the following:

1.        demolishing or moving a heritage item
2.        altering a heritage item or relic by making structural or non-structural changes to its exterior, such as to its detail, fabric, finish, or appearance
3.        altering a heritage item by making structural changes to its interior
4.        moving any relic, or excavating land and discovering, exposing, or moving a relic
5.        erecting a building on, or subdividing, land on which a heritage item is located.

Schedule 5 of the North Sydney LEP 2013 provides a list of heritage items within the North Sydney LGA where the site is listed as “Kirribilli House” (I0264). Kirribilli House is also within the Kirribilli Heritage Conservation Area (CA11).

Figure 2‑2: Extent of Kirribilli Heritage Conservation Area (CA11) in red hatching. Kirribilli House is outlined in blue (Source: NSW Government Planning Portal, North Sydney LEP 2013, Heritage Map 4)

2.2.4                   North Sydney Development Control Plan (DCP) 2013

The significance of Kirribilli Conservation Area has been identified in the North Sydney DCP 2013 as:

(a) as a consistent early 20th century residential area with a mix of Federation and one or two storey Inter War dwelling houses and two or three storey residential flat buildings on large allotments with a strong orientation to the water

(b) as a largely intact early 20th century suburb retaining much of the urban detail and fabric seen in gardens, fencing, street formations, use of sandstone and later reinforced concrete “naturale” fencing, sandstone kerbing, natural rock faces, wide streets, and compatible plantings

(c) for its unity derived from its subdivision history which is still clearly seen in the development of the area

(d) as containing the important government buildings Kirribilli House and Admiralty House.

Identified significant elements include the sloping site falling to Sydney Harbour, irregular street pattern and topography as well as views to Sydney Harbour, the Opera House and the City of Sydney.

2.3                       Other relevant Legislation and Codes

2.3.1                   National Construction Code (NCC)

The National Construction Code (NCC) sets out the legal requirements for building construction in Australia. The main provisions of the Building Code of Australia (BCA) within the NCC include structural requirements, fire resistance, access and egress, services, equipment, health and amenities. The NCC include separate compliance for each State and territory and cites relevant Australian standards.

When considering the BCA requirements in heritage buildings, proposals must ensure that heritage significant fabric and spatial qualities are not compromised. Where proposed works do not meet deemed-to-satisfy provisions, alternative solutions should be sought which might include seeking dispensation for heritage elements or performance-based solutions. Modifications to the site should consider the most sympathetic option to the heritage values of the site.

2.3.2                   Disability Discrimination Act 1992

The Commonwealth Disability Discrimination Act 1992 (DDA) aims to reduce discrimination against people with a disability. The DDA requires that people are given equal opportunity to access public transport and buildings, including those with heritage significance. Clause 11 relating to unjustifiable hardship is particularly relevant to heritage sites:

(1)  For the purposes of this Act, in determining whether a hardship that would be imposed on a person (the first person) would be an unjustifiable hardship, all relevant circumstances of the particular case must be taken into account, including the following:

(a)  the nature of the benefit or detriment likely to accrue to, or to be suffered by, any person concerned

(b)  the effect of the disability of any person concerned

(c)  the financial circumstances, and the estimated amount of expenditure required to be made, by the first person

(d)  the availability of financial and other assistance to the first person

(e)  any relevant action plans given to the Commission under section 64.

(2)  For the purposes of this Act, the burden of proving that something would impose unjustifiable hardship lies on the person claiming unjustifiable hardship.

In relation to Kirribilli House, the predominant issues revolve around access throughout the site by staff and visitors. Unjustifiable hardships can include modifications to highly significant fabric. There is opportunity to reach a balance between DDA compliance and a sympathetic solution to the heritage values of the site.

2.4                       Non-Statutory Information and Guidelines

2.4.1                   The Burra Charter

The Burra Charter: The Australian ICOMOS charter for places of cultural significance (ICOMOS (Australia), 2013) sets a standard of practice for those who provide advice, make decisions about,
or undertake works to places of cultural significance including owners, managers and custodians.
The Charter provides specific guidance for physical and procedural actions that should occur in relation to significant places. A copy of the charter can be accessed online at http://icomos.org/australia.

2.4.2                   Ask First: A Guide to Respecting Indigenous Heritage Places and Values

Ask First: A guide to respecting Indigenous heritage places and values (Ask First) was developed by the Australian Heritage Commission (now Australian Heritage Council) to provide a process for Indigenous cultural heritage consultation and management; it has been adopted as the standard approach by Federal government agencies, including Finance. Ask First (Australian Heritage Commission, 2002) recommends a three-stage consultation process:

1.          Initial consultation

-            Identify Traditional Owners

-            Meet with relevant Indigenous people to describe the project or activity

1.          Identifying Indigenous heritage places and values

-            Undertake background research

-            Ensure that the relevant Indigenous people are actively involved and identify their heritage places and values

1.          Managing Indigenous heritage places

-            Identify any special management requirements with relevant Indigenous people

-            Implement and review outcomes with relevant Indigenous people and other stakeholders.

The consultation process outlined in Section 1.8 was undertaken in accordance with these guidelines.

2.4.3                   Engage Early

Engage Early: Guidance for proponents on best practice Indigenous engagement for environmental assessments under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act) (Engage Early) was developed by the Commonwealth of Australia, 2016 and should be read in conjunction with Ask First (refer to Section 2.4.2). Engage Early provides framework for an early and cooperative approach for how proponents should engage and consult with Indigenous peoples during the environmental assessment process under the EPBC Act.

The framework for what is considered to be best practice consultation includes:

• The early identification and acknowledgement of all relevant Indigenous peoples and communities
• Building trust by early and ongoing engagement, commitment, and clarity
• Being aware of statutory processes regarding consultation and consent processes
• Establishing appropriate timeframes for consultation
• Demonstrating appropriate cultural awareness and respect for the Indigenous people’s timeframes and desires.

2.4.4                   Australian Natural Heritage Charter

The Australian Natural Heritage Charter (Commonwealth of Australia, 2002) contains best practice conservation principles for the establishment of natural heritage values and how to manage them.
It provides a framework for the management and restoration of natural systems.

2.4.5                   National Trust of Australia

The National Trust of Australia (National Trust NSW) is a non-government, non-profit, community organisation incorporated as a public limited company under Australian Corporations law. The National Trust NSW maintains a register of heritage places in NSW that have been assessed as having cultural and historical value. Inclusion on the National Trust’s register does not afford statutory protection. However, it does highlight the heritage significance of a place and promotes consideration of ongoing statutory protection options.

Kirribilli House is included on the NSW National Trust Register.

3.0                    Site background

3.1                       Introduction

Kirribilli House and Garden is comprised of three key components:

           Landscape setting

           Kirribilli House

           Garden.

Each of these elements are described in the sections below. A physical inspection of the site was conducted between 15 and 16 March 2023 by Ameera Mahmood (Principal Heritage Architect) and Deborah Farina (Senior Historical Archaeologist) of AECOM. Detailed results of the survey are included in Appendix H, which includes individual tables describing each heritage element, its condition and integrity. A site inspection was undertaken on 18 May by Dr Darran Jordan (AECOM) and Rowena Welsh-Jarrett (Metropolitan Local Aboriginal Land Council) to identify and discuss Indigenous heritage values. The findings are included in Section 4.1. A tree survey was undertaken by Jamie McMahon (Technical Director of Environment) and Kai Irrgang (Graduate Environmental Scientist) of AECOM on 15 March 2023. The findings of the tree survey are included in Appendix I.

3.2                       Landscape setting

Kirribilli House is situated at Kirribilli Point, a peninsula on the northern side of Sydney Harbour. Sydney Harbour Bridge and Milson’s Point are directly to the west of Kirribilli Point and Careening Cove is directly to the east. The topography of Kirribilli Point consists of typical Hawkesbury sandstone formation. The land slopes from the ridge above Kirribilli Avenue (formerly Campbell Street) towards the water in moderate steep slopes in a series of sandstone rock benches and outcrops (Casey & Lowe, 1995:1) (Figure 3-1,Figure 3-2, Figure 3-3 and Figure 3-4).

Kirribilli and Admiralty House are in the lower section of the peninsula with direct access to the waterfront. Both sites are positioned prominently on the harbour and together they form part of a continuous harbour foreshore landscape that is reminiscent of the early Port Jackson shoreline.
Kirribilli House and Garden have been purposefully positioned on the elevated dramatic foreshore setting to gain access to harbour views and by doing so has become a prominent feature on Sydney Harbour.

Figure 3‑1: Kirribilli House (obscured by vegetation) and gardens showing context of the Sydney CBD, Opera House and extant bathing pool seen from the harbour ferry (AECOM, 2023)

Figure 3‑2: Adjacent Admiralty House, garden and Marine Barracks showing context of the Sydney Harbour Bridge seen from a harbour ferry (AECOM, 2023)

Figure 3‑3: Kirribilli House and garden seen from the harbour ferry (AECOM, 2023)

Figure 3‑4: Adjacent Admiralty House, garden and Marine Barracks (below) and garden of Kirribilli House (right of photo) seen from a harbour ferry (AECOM, 2023)

Both Kirribilli and Admiralty House are key contributory items within the Kirribilli Conservation Area listed in the North Sydney LEP 2013. The Conservation Area is described in the North Sydney DCP as follows:

The Conservation Area is characterised by a mix of small, medium, and substantial late Victorian, Federation era houses with Inter-War dwelling houses and residential flat buildings with modern residential flat buildings on some of the waterfront sites. Buildings are integrated with the slope and generally have a homogenous scale with established gardens. Some earlier Victorian villas survive in Kirribilli Street and Upper Pitt Street. Also located on the waterfront are Kirribilli and Admiralty Houses.

(North Sydney Council, 2013:C8-16)

The central focus of Kirribilli peninsula is the Kirribilli Village Centre that includes a community centre, local shops and cafes. The village is surrounded by residential buildings as well as a small number of education, transport, maritime, community facilities and views to Sydney Harbour (North Sydney Council, 2013:C8-2) (Figure 3-5 - Figure 3-8).

3.2.1                   Broader views and vistas to Kirribilli House

Kirribilli House and Admiralty House within Kirribilli Point form part of the broader Sydney harbourside landscape. The site can be appreciated from various vantage points including immediate views from Sydney Harbour (including Fort Dennison), moderate views from the Sydney Opera House (Figure 3‑9), Mrs Macquarie’s Chair, Garden Island, Kurraba Point and Cremorne Point (Figure 3‑10) and distant views from Bradleys Head.

3.2.2                   Description of the allotment

Admiralty House occupies the southernmost tip of Kirribilli Point and Kirribilli House is located directly east of Admiralty House. Kirribilli House shares a 130-year history with Admiralty House and was part
of Admiralty House’s estate prior to subdivision in 1854. Kirribilli House is bound by Kirribilli Avenue and Lady Gowrie Lookout to the north, Sydney Harbour foreshore to the east and Admiralty House to the west.

The allotment is a triangular shape (Figure 3‑11), oriented in an east west direction and retains its generous 1850s land parcel. Primary access to Kirribilli House is from the south side of Kirribilli Avenue. The property boundary is fenced by a high stone wall and picket fence on the northern boundary.
The entrance is marked by entry gates and leads to a gravel driveway inside the property and parking area and garage to the west. The driveway has been extensively modified since 1957. Immediately inside the gate on the east is a guard house. The driveway extends into the site forming a circular loop on the northern side of site. The main house is positioned centrally on the block on a cleared flat bench and is directly south of the driveway loop. The land falls steeply and dramatically to the east towards the harbour to sandstone cliffs and a rock apron at the side of the harbour.

At the northeast end of the site accessed by a steep stair, is the current access to the water and the remains of the former boat harbour, bathing pool, stone walling and boat sheds. Along the southern boundary are pathways that connect Kirribilli House with the grounds of Admiralty House (Design 5, 2010: Appendix H, Landscape report by G. Britton) (Figure 3‑12 - Figure 3‑16).

Figure 3‑11: Site survey and elements (GML 2016 with AECOM updates)

3.3                       Kirribilli House

3.3.1                   Exterior

Kirribilli House has an irregular massing and is a modest scale. It is oriented in an east west direction and is asymmetrical in plan. It is a two-storey building designed in the Victorian Rustic Gothic style (1856). The building has a sandstone foundation with a timber framed floor. External walls (single skin) are rendered painted stone (1856 structure), painted face stone (1860s and 1880s additions), some rendered ashlar imitations and rendered painted brickwork (later additions). The roof is dominant and complex with steep pitched gables, slate clad, with lead capping and traceried bargeboards. The roof ridge is terracotta. Chimneys are slender with twin terracotta pots. There is a broad stone flagged verandah (single storied) to the east and south elevations. Windows are vertically proportioned and are multi-paned. French doors have timber shutters. Dormer windows are located at the southern elevation.

The principal elevation is to the north (Figure 3‑17). The main entrance is marked by a pair of timber doors with a fanlight above. The main feature on this elevation is the prominent Gothic style gables. Particularly a large central gable which contains a castellated parapet wall above a bay window.

The east elevation (Figure 3‑18) is defined by timber verandahs to the ground floor, twin gables that frame double hung windows with timber shutters. The south elevation (Figure 3‑19 and Figure 3‑20)
is defined by the timber framed verandah on the ground floor and three dormers centrally placed.
The west elevation (Figure 3‑21) is characterised by three narrow gables and the simple form of the service wing which originates from 1957.

3.3.2                   Internal Description

The principal entry leads to an Entry Lobby (Figure 3‑25) and the main Entry Hall (Figure 3‑26 and Figure 3‑27) which are both oriented in a north south direction. From the hall one can access the Study, Comms room and Toilets to the eastern end of the building. On the western side of the Entry Hall is a secondary hallway (Stair Hall), running in an east west direction and includes stairs leading to the upper floor, wet areas, Green Room (Figure 3‑28) and Bedroom (to the western end). The southern end of the main Entry Hall leads to three open planned rooms including Drawing Room (eastern end) (Figure 3‑29) and Dining Room (Figure 3‑30). The western end of the Stair Hall accesses a room to the south that contains a second stairwell (Figure 3‑31 and Figure 3‑32). From this area, the service wing (west end
of the building) can all be accessed. This wing includes Cellar, Scullery, Store, Pantry, Staff Room (Figure 3‑33), Kitchen (Figure 3‑34), Manager’s Office, Staff Dressing Room, Ironing/Storeroom,
and toilets. The verandahs to the east and south can be accessed from the Study, Drawing Room,
and Dining Rooms. The main rooms in the building are positioned to access the views to the harbour.

Figure 3‑24: Ground floor plan – Refer to Volume 3

The upper level can be accessed from the stairs in the Stair Hall and stairs (Figure 3‑36) in the service wing. A corridor (Figure 3‑37) leads to Bedroom 1 with ensuite and a Family Room to the eastern end (Figure 3‑38). The same corridor accesses the main bathroom and Bedroom 2 (Figure 3‑39).
Adjacent and north of the stairs is Bedroom 4 (with associated ensuite) and directly south is the Bedroom 3.

Figure 3‑35: First floor plan – Refer to Volume 3

3.3.3                   Condition

Physical inspection undertaken by AECOM on 15 March 2023 found the house to be in good condition. Issues noted include rising/falling damp, ground drainage, mould (external storeroom) and minor cracks to walls. These issues were also highlighted in the Structural Condition Assessment Report, 2019, AECOM (AECOM, 2019) with additional items according to priority:

• High priority: Review of roof rafter splices and rectification, removal of debris in roof space, rectification of damp and rot to verandah posts, further structural assessment and rectification of chimneys for restraint and bracing (Note: PM&C have noted that the chimneys are currently being inspected as of May 2023), subfloor inspection to inspection the condition of timber elements,
  pest inspection, recommendation for roof drainage to be assessed by a hydraulic engineer and review of air conditioning due to leaks
• Medium Priority: Installation of a subfloor mechanic ventilation system, application of protective wall primer to stop water ingress, installation of a post-fix damp-proof system, assessment of the stair banister by a BCA consultant, review of grout to shower bases by a specialist contractor, investigation of stormwater and sewer water with a camera by a qualified technician, repair of verandah valley gutter noted be leaking, investigate water tightness of the skylight, installation of roof tie down straps, installation of sarking to main residence and cosmetic defects (organic growth on shingles)
• Low priority: Investigate water damage to storeroom, monitoring of cracks to walls, monitoring of roof rafters above Bedroom 1, monitor plaster ceilings and monitor slope in timber floors.

Additionally the Structural Condition Assessment Report, 2023, AECOM (AECOM Australia Pty Ltd, 2023) notes the following:

• High priority: Like for like replacement and repacking of sandstone front wall (entry gate) (significant section loss, cracking and grouting failure) and strengthening of the northeastern chimney (previously identified as needing repair).
• Medium priority: Geotechnical testing of footing condition supporting the original building and 1920s extension.
• Low priority: Replacement of damaged courtyard pavers.

3.4                       Garden

The plan of the garden is centred around the house and Sydney Harbour. There are a series of gardens on the north, west and southeast of the house that are focused on providing functional requirements of the house, serving as access ways, amenities, privacy, and productive gardens. Whilst the northeast, east and southern areas are focused on recreation. The latter areas are planned in a loose circular and sweeping form with flat grassed and grassed embankments as the central focus providing access to harbour views and connecting the house to the garden. To the north and south are paved pathways that gradually step down to access the lower terraces defined by stacked dry stone walls. Access to the water is only at the northeast corner through steep stone and concrete stairs.

The following description of the garden has been derived from Kirribilli House Landscape Management Plan, Taylor Brammer, 2020:4.

The grounds of Kirribilli House generally reflect the landscape design principles of a Victorian Rustic Gothic house. These principles include the rolling lawn from the harbour front of the house and terminating in a stone path that winds its way from the house to take advantage of the harbour views and prospect.

A series of meandering paths through established bushes intertwined with rock outcrops continue the theme of pleasure and appreciation of the place. The entry drive is a formal gravel drive that provides a suitable setting to the front entry and complemented with ornamental flowers and terracotta edging to the flower bed.

However, the physical elements of the Victorian era landscape details have been eroded through the sometimes awkward replacement of material, for example, stone steps replaced with concrete, stone edging introduced to absorb level changes to a lawn, where for example the lawn should be reduced in level to create an appropriate relationship between lawn and path with a lawn cut edge.

The garden provides a mixture of generous open grassed areas (north and east sides) for enjoyment and recreation, areas for shade and protection (under large tree canopies and thick plantings), as well as intimate spaces under trees (northeast and to the west of the house). There is some loss of privacy to the house on the northern boundary from the loss of mature trees, especially from the apartments directly opposite on Kirribilli Avenue. A Flame Tree located near the entry porch was removed which now permits additional views to the harbour. Mature trees that are a feature of the garden include two Magnolia grandiflora, a large Camellia reticulata cultivar, a large clump of Strelitzia eclina and a tall Piccabeen (Archontophenix cunninghamiana) along boundary of Admiralty House grounds. A Jelly Palm (Butia capitata) provide a framed view towards the harbour. In the northern area the Hills Fig (Ficus macrocarpa var. Hillii) and Deodar are prominent (Design 5, 2010: Appendix H, Landscape report by G. Britton).

The Tree Survey (Figure 5‑57) (full report see Appendix I) completed by AECOM on 15 March 2023 evidence that many significant plants are no longer present on site compared to the recorded trees from the HMP, 2016. These includes; Monterey cypress (Cupressus macrocarpa), Silky Oak
(Grevillea robusta), Camphor laurel (Cinnamomum camphora), Camellia sp., Purple Vitex (Vitex purpurea), Blueberry Ash (Elaeocarpus reticulatus), Illawarra flame tree (Brachychiton acerifolius),
Bull bay (Magnolia grandiflora), Liquidambar (Liquidambar styraciflua), Cumquat (Fortunella sp.),
Bay Tree (Laurus nobilis), Rose (Rosa rubiginosa), Port Wine Magnolia (Michelia figo),
Jasmine (Trachelospermum jasminoides), Sydney Golden Wattle (Acacia longifolia), Golden wattle
(Acacia pycantha), African Olive (Olea europaea subsp. cuspidata) and  Pittosporum undulatum.

The survey also recorded the presence of many additional plants that were not recorded in the HMP, 2016. Future landscape assessments should review the significance and appropriateness of these plants to determine if they align with the design methodology for the garden.

Despite the loss of significant plants in the garden, the site still retains the principal characteristics of the Victorian layout including the location of the site entry, location of the house, driveway alignment, large dramatic bank immediately east of house, sweeping lawn, grassy lower terraces, rock outcrops, floristic diversity, northern paths accessing the harbour, water access, harbour structures (bathing pool and boat harbour), extant indigenous harbourside vegetation and views to the harbour (Figure 4‑15 and Figure 4‑16).

3.4.1                   Garden areas

A total of 10 areas were identified in the Taylor Brammer Landscape Management Plan
(Taylor Brammer Landscape Architects Pty Ltd, 2020:5). These 10 areas were referred to as ‘precincts’ and were collated by their physical location and characteristics within the grounds. A summary of the garden features is described below. The precincts do not relate to any historical time periods or era; hence this report refers to the ‘precincts’ as ‘areas’. The following text has been directly taken from Taylor Brammer’s report, has been reorganised here for clarity and updated to reflect changes in landscape elements since the 2020 assessment.

Figure 3‑44: Landscape areas within the grounds of Kirribilli House (Taylor Brammer Landscape Architects Pty Ltd, 2020:5)

3.4.2                   Area 1 – Entry gate and driveway

The drive provides the formal entry to Kirribilli House (Figure 3‑45 and Figure 3‑46). The garden hard works detailing is consistent with Victorian Rustic Gothic style. The area is a key landscape zone for Kirribilli House and provides opportunity for a suitable entry to highlight the heritage significance
of Kirribilli House by restoring an appropriate landscape curtilage to the entry and property.

Key features:

• Entry gate, driveway, and driveway loop
• Unconsolidated gravel driveway with ornamental flower gardens and lawn
• Traditional garden edging tiles define the gardens to the house side of the drive
• The vegetation and driveway character and form provides an appropriate scale and character for the entry to the site
• Variety of ornamental planting emphasising horticultural diversity and leaf texture (garden bed adjacent to the house)
• Modified rock outcrop adjacent to the top of the drive that terminates the lawn edge

• Jacaranda in the centre of the roundabout and Camelias to the northern side is not consistent with the style and character for a mid-19th Century picturesque garden. Note: Goeff Britton who undertook the earlier assessment (HMP, 2016) does not agree with this as these plants are likely to have associative significance. Further historic assessment is required to establish their significance.

3.4.3                   Area 2 – Northern boundary garden

The northern boundary garden is an important buffer to Kirribilli Avenue creating a visual vegetated curtilage providing privacy.

Key features:

• Variety of trees and shrubs and extended stumps of trees
• Species include Camellia japonica, Jacaranda sp. And Strelitzia sp. Significance of camelias and Jacaranda require further historic assessment as discussed in above section
• Landscaped areas on the upper portion are contained by fencing and edging whilst in the remaining areas the edging is randomly placed sandstone pieces informally placed to contain garden beds. These garden edges are poorly constructed and compromise the natural sandstone outcrops which are a feature in the garden
• Tree plantings that have formed a distinct northern boundary have been eroded over time.
  These include a mature Fig (Ficus rubiginosa), Silky Oak (Grevillea robusta) and Firewheel tree (Stenocarpus sinuatus).

3.4.4                   Area 3 – Central Garden

The garden area is distinguished by a substantial sandstone outcrop with an extensive garden and planting to the base. The vegetation forms a key landscape component to the garden with a large Fig tree creating shade and shelter. It also highlights the underlying geology (sandstone outcrop) and topographic change. The area reinstates the values of the mid-19th Century Victorian Garden with exotic planting creating a sense of discovery of new specimens from Asia, Africa and Australia.

Key features:

• Established trees are layered with shrubs and ground covers
• Sandstone outcrop, mature vegetation, and poorly constructed rock walls and garden edging
• Significant trees include Phoenix palms, Ficus macrocarpa var. Hilli, Giant bird of paradise, Camellia japonica and ferns to the lower stratum.

3.4.5                   Area 4 – Viewing Area

The area provides opportunity for enjoyment of the garden and a protected viewing point of Sydney Harbour. The style and character of the planting, paving, and walling is representative of mid-20th Century Garden expression and not consistent with the heritage values of the place.

Key features:

• Extensive sandstone flagged terrace and retaining wall with established tree canopies above the terrace area
• Sloping lawn to the centre of the precinct is located over a natural sandstone outcrop
• Lower portion of precinct contains a viewing terrace of regular sandstone pavers and a seat,
  both which are of a scale, character, and form of a mid-19th Century Victorian Garden
• Planting is random in character with several self-seeded trees and plants
• The wall and paving are in very poor condition and access is excluded due to hazardous condition of unstable surfaces
• The lawn and soil underlay contained by informal sandstone rock is unstable
• Plantings include shrubs and ground covers, contemporary cultivators such as Philodendron ‘Xanadu’ and planting from the mid-19th Century.

3.4.6                   Area 5 – Lawn

The eastern lawn of Kirribilli House is a critical portion of the harbourside setting of house and grounds highlighting the dramatic topographic change from harbourside to house. The lawn slopes steeply from the house to a pathway at the base of the garden. There is evidence at the base of the lawn of a former fishpond under the lawn. The area provides opportunity for the use and enjoyment of the garden and appreciation of the panoramic views of Sydney Harbour available from the site and understanding of the harbour setting.

Key features:

• A sandstone path, metal fence and timber gate provide access to the upper foreshore area.
  The metal fence is corroded
• The lawn consists of buffalo-type grass that is resilient to the harbourside environment of salt and prevailing easterly winds
• The lawn has been refurbished and the grass terraces are restored
• The detailing of the pedestrian path character is inconsistent across the site, reflecting evolving tastes and refurbishment in the 20th Century
• Plantings consist of shrubs and groundcovers that are inconsistent with the mid-19th Century Victorian Garden
• The southern portion includes an established clump of Giant White Bird of Paradise, that defines and separates the garden from the grounds of Admiralty House.

3.4.7                   Area 6 – Upper foreshore

The area provides an appropriate transition from central lawn to the foreshore. The shrub like planting is appropriate as a “wild” transition from grass terrace to the informal rugged sandstone outcrops of the harbourside. The upper foreshore area consists of a selection of specimen trees with assorted and
self-seeded plantings across the top of the cliff to the foreshore. The remains of the vegetation and stability is in poor condition and requires reconstruction and assessment. The area provides opportunities to view Sydney Harbour over a contrasting and “wild” garden.

Key features:

• Area defined by low painted metal fence and rock outcrops and is accessed by a timber gate and garden frame. These works are from the 20th Century and are undertaken in a colonial style
• Informal sandstone path leads to a sitting area consisting of sandstone steps, low garden sandstone wall. This sandstone is poorly constructed and unstable. The sitting area does not have a handrail and is a safety risk for informal use.

3.4.8                   Area 7 – Foreshore

The area represents key heritage values of the place demonstrating the use and enjoyment of the place as a place of recreation with key and privileged access to the harbour. The foreshore area is distinguished by a cliff face to the harbour. Vegetation consists of a selection of specimen trees with assorted and self-seeded plantings across the edge of the cliff to the foreshore. The shrub like form of the planting is an appropriate form as a continuation of the Upper Foreshore area to the informal and rugged sandstone outcrops of the harbour side.

Key features:

• Existing stairs provide access to the foreshore where there are the remains of a harbourside structures, boat harbour, bathing pool and boatsheds
• An unsympathetic steel security fencing inhibits access from the harbour to the site
• There are unconsolidated stone mounds that have been fashioned as informal viewing points to the harbour
• Recent stabilisation works done to the cliff face at the high-water mark, further assessment is required in relation to the relationship of the cliff face and vegetation in relation to ongoing stability and character
• Further research is required to accurately assess the condition, original fabric and evidence of the former swimming baths and boathouse
• The planting continues with the informal shrubs and ground covers in Area 6. There are number
  of weed species including African Olive, Asparagus grass and Crofton Weed
• Stairs and handrails are not consistent with the materials and detailing of the heritage values of the place.

3.4.9                   Area 8 – Southern Garden

This area provides a framework to the southern side of the garden defining and separating the garden from Admiralty House and creating the southern boundary of the grounds. It is characterised by mature vegetation of mainly camellia bushes and some mature trees. A sandstone and concrete path separate the garden from the lawn area.

Key features:

• A path provides access to the former fishpond location in the lawn precinct
• The sandstone path has no historic reference. The garden rockeries are inconsistent with the historic garden style of the place
• The upper portion of the precinct includes a sandstone outcrop with a concrete seat that is not consistent with the heritage values of the place
• Planting is restricted to mature to semi-mature species, the railing to the path is painted galvanised rail
• The Bull Bay Magnolia is assessed to have limited life expectancy
• Provide views through to the Admiralty House and facilities.

3.4.10               Area 9 – Service Area

This area is a key location for the operations of Kirribilli House. Clear unobstructed views to the house and relation with the garden as well as the broader setting needs to be maintained whilst retaining unobstructed access for the operations of the house.

Key features:

• This area consists of sandstone slabs that extend from the kitchen and verandah of the house and provide hard stand area for functions and day to day requirements of the house
• Service access path to House
• Maintenance area directly off verandah paving. The sandstone is generally in good condition with an array of gradients to the paving that could be an issue in relation to Occupational Health and Safety (OHS) requirements
• The fencing and paving are in an appropriate style of the garden
• Planting is limited to retain the operational requirement of the precinct and has been limited to the shrub planting to the boundary of Admiralty House.

3.4.11               Area 10 – Kitchen Garden

The area is located at the front of the property and provides screening to the service areas of Kirribilli House, provide a productive garden and allowing for the appreciation of the Victorian Rustic Gothic architectural style.

Key features:

• The kitchen garden is located adjacent to the service area of the house. It consists of several level changes, sandstone walls and grassed areas
• Concrete steps from the House need replacing with sandstone
• The character and form of the kitchen garden is generally consistent with the heritage values
  of place with detailed planting, sandstone garden walls and paths
• The paths vary in material including concrete and sandstone.

3.4.12               Condition

Physical inspection undertaken by AECOM on 15 March 2023 found the garden in fair condition.
Issues noted include; unstable retaining walls, inconsistent ground finishes causing trip hazards,
lack of appropriate handrails and barriers, inappropriate and poor construction of retaining walls, uneven stone steps, loss of privacy from apartments on Kirribilli Avenue, evidence of inadequate ground drainage.  

The Structural Condition Assessment Report, 2019, AECOM (AECOM, 2019) identified the following:

• Urgent: Intrusive investigation throughout the site, removal of loose stone on wall in Area 10, demolition, and construction of Wall to Area 4
• High priority: Investigation of the condition of wall to laundry building once vegetation has been removed, assessment of metal railing by a BCA consultant, addressing loose stone wall around the harbourside structure to prevent cause injury, engaging a geologist to assess the stability
  of rock faces to the harbour and monitoring of retaining wall to water tank
• Medium priority: Reconstruction of retaining walls to eastern end of Area 1 and steep stair to
  Area 7, spalling concrete steps, routine cleaning of drainage systems, repair large crack to sandstone wall (boundary) and repair displaced mortar to harbourside structures
• Low priority: Stormwater drainage review and deteriorating grouting in sandstone boundary wall.

3.5                       Other elements

3.5.1                   Guard house

The Guard house is located directly east and inside the entry gates and is a contemporary octagonal building that originates from 2003. The walls are weatherboard and timber framed with a slate clad roof. The Structural Condition Assessment Report, 2019, AECOM (AECOM, 2019) noted that minor sagging of ceiling slats and minor cracks to walls were noted which should be monitored.

3.5.2                   Garage

Along the western boundary and directly inside the entry gates is a double garage that is a rectilinear shape with a hipped roof that was constructed c.1921. The walls are rendered with a painted brick veneer and the roof has exposed roof rafters under the eaves. The roof is clad with terracotta Marseille roof tiles. The rear of the garage includes a storeroom that previously was a chauffer’s bedroom. A small external addition to the south includes a toilet.

The Structural Condition Assessment Report, 2019, AECOM (AECOM, 2019) noted that there was an ingress of water from the ridge tiles has led to damp issues and removal of the ceiling. This report recommended that a hydraulic engineer should assess the water discharge from the building.

3.5.3                   Storeroom

Along the southwestern boundary is the Laundry and Gardeners amenities building which is built directly on the boundary line but is the land of Admiralty House hence, it has been excluded in the assessment and is included here purely for context of the southwestern boundary. Attached to the laundry room and extending onto the property of Kirribilli House is a small narrow storeroom in a rectangular shape with a kink to the southern end. Walls are timber framed and lined and the roof is metal clad.

3.5.4                   Ruins of the boat harbour, bathing pool and boathouse

The ruins of the bathing pool and boathouse are located on the north-eastern corner of the site and on the foreshore. A steep stone stair leads you from the garden to a gate from which the pool and former boathouse are accessed. A boat harbour is located on the north end with a high wall and gate and there is evidence of the former boatshed in the rock surface. The bathing pool is a rectangular shape structure with a raised stone plinth to its surrounds.

3.5.5                   Boundary walls and fences

The northern boundary is fenced predominantly by a timber paling fence (Figure 3‑16). The entry to the site on the northern boundary is marked by wrought iron gates set within sandstone piers (Figure 3‑14). A sandstone high wall extends to either side of the gate and continues to meet the site boundary of Admiralty House (Figure 3‑12). The southern boundary to Admiralty House is fenced by a combination of contemporary timber lattice, paling and metal fence. The western boundary which includes the garage also has a low stone wall and hedge (Figure 3‑74 and Figure 3‑75).

3.6                       Views from Kirribilli House

The site’s geographic position permits extensive harbour views from both the house and garden.
These include panoramas, framed, and filtered views.

4.0                    Historical background

4.1                       Indigenous History

Refer to Appendix J.

4.2                       Natural History

The following text has been summarised from the 2010 HMP and updated by AECOM (Design 5, 2010: Appendix H, Landscape report by G. Britton).

4.2.1.1             Vestiges of Pre-European Landscape

Vestiges of the pre-European landscape include the dramatic sandstone cliffs at the eastern edge that is viewed from the water and the large outcrop through the central part of the site. This formation is typical of the area and features steep slopes with sandstone outcrops. The Sydney Sandstone Complex Type included Open Forest/Woodland Formation (Tanner Architects Pty Ltd, 2010a:14).
The outcropping has in areas covered by plant growth and built up with steps.

The local indigenous vegetation includes Port Jackson fig (Ficus rubiginosa). A specimen remained near the south-eastern corner of the site throughout the 19th century and half of the 20th Century (removed by c.1968). Some seedling specimens remain along Kirribilli Avenue and along the eastern cliff line, still remain. Smooth-barked apple (Angophora costata) was evident in the archival record and are no longer present. Other local species present at the site include Coastal Banksia
(Banksia integrifolia), Blueberry Ash (Elaeocarpus reticulatus), Sweet Pittosporum
(Pittosporum undulatum) and Spikerush (Lomandra longifolia).

4.3                       Historic heritage

A chronological history of the place (1856-1985) was undertaken by Dr Grace Karskens,
Catherine Forbes and Brendan Lennard. This history formed part of the 1985 ‘Kirribilli House, Conservation Analysis and Draft Conservation Policy’ by Clive Lucas & Partners (Draft Conservation Policy 1985). Many sources held in the National Archives were not available to the researchers at that time. A further detailed research and analysis was undertaken by Dr Rosemary Annable between 2008-2010 as part of a draft CMP prepared by Design 5 Architects. The 2016 HMP by GML Heritage reproduced and updated the research undertaken by Dr Annable.

The information listed below was included in the draft Design 5 report and Volume 2 of the GML 2016 HMP and is provided in the Appendices to this HMP (see Volume 2 of this HMP) as follows:

• Appendix B: Historical Background (includes photographs and plans collated for the draft Design 5 report)
• Appendix C: Australian Prime Ministers since 1901 (extracted from https://australianpolitics.com/executive/pm/prime-ministers-since-1901)
• Appendix D: Historical summaries extracted from the Clive Lucas & Partners 1985 Draft Kirribilli House Conservation analysis and Draft Conservation Policy
• Appendix E: Kirribilli House timeline 1794-1957 by Dr Rosemary Annable
• Appendix F: Kirribilli House Owners and Occupants c. 1806-2010 by Dr Rosemary Annable, with a minor update from GML
• Appendix G: Kirribilli House Recent Works 1978-2008 by Dr Rosemary Annable, with information for 2010-2015 provided by the Department of Finance and added by GML, and information for 2015-2023 provided by the Department of Prime Minister & Cabinet and added by AECOM.

These appendices provide detailed information on the history and changes to Kirribilli House.

4.3.1                   Historical summary of the house

This summary has been collated from various sources. The full text and references appear
in Appendix B.

4.3.1.1             Phase 1 – 19th Century to 1920 (Historic theme – the Pleasures of the People-Society, Culture and Entertainment)

Kirribilli House and Garden forms part of the early land grant made to convict Samuel Lightfoot in 1794 and Robert Ryan in 1800 (a member of the NSW Corps). The land was sold to Robert Campbell
in 1806. He saw the area as a useful addition to his ship building business, having direct access
to water and water views. Campbell leased portions of his land including five acres to Lieutenant Colonel John George Nathaniel Gibbes, Collector of Customs. Gibbes built his house at ‘Carabella’ (Kirribilli Point) and named it ‘Wotonga’ (now Admiralty House). The property was sold still mortgaged
to James Lindsay Travers in 1851 who sold one acre and 23 Perches of his land at the northeast corner of his estate to fellow merchant Adolph Frederic Feez for £200. Feez was a native of the Kingdom
of Bavaria. Feez named the property ‘Sophienberg’ and built a house between September 1854 and mid-1857 which became one of the earliest substantial residences of the area.

Sophienberg was sold in 1858 to Mrs Esther Hughes, a widow for £3000. The house stayed with the Hughes/Lawry family until 1907. Mrs Hughes’ son, Tom Lawry, who never married, upon his death bequeathed a life tenancy at Kirribilli House to Laura Lamont (Lamotte). She rented the property
at a nominal rent. Laura married and moved out, and the house was tenanted again from 1915 onwards. Notable tenants include the head gardener of Admiralty House, Michael Minnett. The house was unoccupied for a period and was in a dilapidated state. In 1918, Laura petitioned the Lawry Trust
to sell Kirribilli House and the sale was ordered by the court.

A W Allen purchased the property 1919, as an investment, offering it up for sale soon after proposing the lot be subdivided into five lots. Photographs of the sale brochure shows the site as a very desirable harbourside property. There was public concern that the site would be cleared for the construction of residential flats, as it was the only remaining piece of waterfront land that could be used for public purposes. The People’s Open Air Space Movement and other notable individuals including
Senator Pratten, Dr Mary Booth, Mr Sydney Smith, and the Mayor of North Sydney approached the government to put the matter before the Federal Government. Dr Mary Booth convened a public meeting and made a direct appeal to the Prime Minister. 

During this time Admiralty House was offered to the incoming Governor-General as his residence
in Sydney and there was concern that the construction of flats (at Kirribilli House) directly adjacent
to the property would erode the amenity and value of Admiralty House. This particular concern led the
Prime Minister, Sir Joseph Cook to purchase the house for £12,000. When the offer was rejected by the vendor, the house and land were resumed by the Commonwealth on the day of the auction ‘for defence purposes’.

4.3.1.2             Phase 2 – 1920 to 1956 (Government resumption)

In 1920, the government decided that both Kirribilli House and Admiralty House would be placed at the disposal of the Governor-General and his staff. Alterations and additions were made to the house.
In 1930 during the Depression, the Commonwealth government discontinued the use of both houses, and the contents were sold in an auction. From this period Kirribilli House was leased to several tenants until 1953.

In 1954 the Department of Works reported that the house was in a severe dilapidated state with major damp issues and the grounds was overgrown. The Department gave a costly estimate for extensive repairs. During this time, there was insight that once repaired, the house and grounds would be an enviable property.

4.3.1.3             Phase 3 – 1957 to 2023 (Official residence of the Prime Minister)

The architectural firm Fowell, Mansfield and Maclurcan was engaged to undertake restoration and additions. J C Mansfield, the head designer and supervising architect proposed a plan to allow Kirribilli House to be used as two separate flats or on occasion, as a whole. A service wing and access stair was added. The interior was decorated by Helen Blaxland and Marion Best Pty Ltd. The grounds were also influenced by Mansfield, Professor L D Pryor (the Director of ACT Parks and Gardens) and Professor E G Waterhouse (a notable Sydney scholar and plant breeder). The works to the garden was undertaken by the head gardener of Admiralty House G W Gillham. The planting was to be in three sections: early Australian garden with old-fashioned plants (near house), exotic planting of interest
to overseas visitors, and local flora at the lower slopes towards the harbour. The house was to be used by the Prime Minister when in Sydney and the remaining accommodation made available to overseas guests of the Commonwealth and staff of the Governor-General. The first official guest of the house was Prime Minister Menzies and Dame Pattie Menzies followed by the Prime Minister of Japan.
Since then, Kirribilli House has provided accommodation to Australian Prime Ministers including
Harold Holt, Sir John Gorton, Sir William McMahon, Gough Whitlam, Malcolm Fraser, Bob Hawke,
Paul Keating, John Howard, and subsequent Prime Ministers. During this time only minor alterations were undertaken which were mostly to the interior.

In 1985, extensive analysis and research was undertaken by Clive Lucas and Partners for restoring Kirribilli House. The recommendation was to restore the house to its 1880s configuration and layout,
it being the date of most significance to the architectural history of the site. The works were undertaken in a staged approach. David Spode also undertook works to the interior to align with the 1880s style set-out in the conservation principles. In 1986, as part of the extensive research work that was undertaken for the site, Grace Karskens identified that the Kirribilli House stone harbourside swimming pool (a part of its jetty and boat sheds complex) as probably the oldest bathing pool on Sydney Harbour (Karskens, 1987) (see Volume 2, Appendix N). By 2023, only minor modifications to the interior of the building have occurred.

When John Howard was elected in 1996, he was the first Prime Minister to make Kirribilli an official home since 1953. During this time, the 1880s staircase was to be relocated to its original location in the main hall. Subsequent Prime Ministers Kevin Rudd and Julia Gillard occupied The Lodge and used Kirribilli House only as the residence when in Sydney. In 2013 Tony Abbott made Kirribilli House his residence. Malcolm Turnbull in 2015 replaced Tony Abbott and resided at The Lodge. In 2018
Scott Morrison was elected and made Kirribilli House his primary residence. In 2022 Anthony Albanese became the new Prime Minister and primarily resides at The Lodge using Kirribilli House when in Sydney and for Official Visits.

4.3.2                   Historical summary of the garden

The following text has been summarised from the 2010 HMP (Design 5, 2010: Appendix H, Landscape report by G. Britton).

4.3.2.1             Phase 1 – 19th Century to 1920 (Historic theme – the Pleasures of the People-Society, Culture and Entertainment)

The site was developed from the 19th Century with the levelling and smoothing of the landscape contours. The site was benched and banked during the construction of the house and later from the house modifications. The northeast lawn and elevated area to the west of the house is likely to reveal early development of the land by way of archaeological resources (former stabling structures and outbuildings). Remnants of the 19th Century layout is still evident in the following areas:

• the main gated entry (sandstone walling and gate piers that have been retained but in a different alignment)
• the traditional approach to the house from Kirribilli Avenue
• the access alignment from the eastern grounds down to the marine precinct
• a seat cut into the rock outcrop east of the house (possibly, the rebate cut into another outcrop for
  a former sundial as well as other steps between outcropping)
• a sandstone paving block with a directional compass (cardinal points only) carved into it at the northeast corner of the house
• the general arrangement of grassed areas across the site to the northeast, east and south of the house defined and enclosed by blocks of vegetation
• the concept of a steep, grassy bank (though not its current terraced form) cascading down from the house
• a garden walk (with steps) within the pleasure grounds.

Plantings from this period include two Bull Bays (Magnolia grandiflora) behind the house, large Camphor laurel (Cinnamomum camphora) at Kirribilli Avenue, large clumping plants Strelitzia nicolai (near the southern boundary and northern boundary) and Phoenix reclinata (near the path to the marine precinct), and the solitary Firewheel Tree (Stenocarpus sinuatus) at the northern boundary fence.

Removed plants from this period include the lemon-scented gum (Corymbia citriodora) at Kirribilli Avenue, the flame tree (Brachychiton acerifolium) formerly within the front drive loop, another camphor laurel (Cinnamomum camphora) formerly near the northern boundary, and the kauri pine (Agathis robusta) formerly near the northeast corner of the house.

A hallmark of the historical grounds is the rich nature of the gardens through use of a variety of foliage plants and strategic placement to provide shade, shelter and screening. Only glimpses of these remain in the current garden. The grounds offered vistas (e.g., from the front entry), filtered views and glimpses of the harbour through foliage, and broad panoramas. Other remains from this era include the enduring relationship with Admiralty House, which is both rare and remarkable as the two major marine estates remain virtually intact. They are both appreciated together from the harbour and regarded as an integral part of the iconic harbourside scenery.

Kirribilli House and Admiralty House form part of a collection of 19th Century estates in the area including Sunnyside (1862), Burnleigh (c1875), Newton (1870) and the Kirribilli Neighbourhood Centre building (1873). Together they also contributed to the historic streetscape of Kirribilli Avenue.

4.3.2.2             Phase 2 – 1920 to 1956 (Government resumption)

After Kirribilli House was acquired by the Commonwealth of Australia in 1920, several changes within the grounds occurred. The current garage was built by 1930 replacing the former outbuildings to the west of the house. As the house was tenanted (between 1920 and 1940) it is possible that the present Monterey cypress (Cupressus macrocarpa) and the nearby Jelly palm (Butia capitata) were introduced, along with the Himalayan cedar (Cedrus deodara). It is possible other trees may date to this general period including the Hill’s fig tree which could be planted, or bird propagated. Alternatively, this tree was introduced as part of the 1957 grounds makeover.

Correspondence (1957) from Professor L D Pryor (Director of ACT Parks and Gardens (who assisted
in the landscape design of Kirribilli) records the existence of a Lilli Pilli (possibly remains), Kauri pine (removed), the Flame tree (removed), Lemon-scented gum (removed) and Ginkgo biloba (removed). Much of these trees would have originated before 1920. However, the Lilli Pilli was introduced after 1920. Pryor is known to have designed the landscape of the ACT and establishing the future herbarium in Canberra.

Correspondence from Charles Weston (head of the Yarralumla Nursery in Canberra in 1922) indicates that he was directly selecting and sending the plant species to Kirribilli at that time. Weston was familiar with the garden’s requirements as he had been the head gardener at Admiralty House for 10 years, living on site in the gardener’s cottage before moving across the harbour to work at Government House for another four years.

4.3.2.3             Phase 3 – 1957 to 2023 (Official residence of the Prime Minister)

The layout of the northern and western areas of the garden dates from the 1957 modifications.
The driveway and drive loop were added. Banking continued across the site, steps were added and the earlier dramatic bank was terraced from fill from the work of the north and west areas. A new flight
of steps was added in the 1970s to the southern end of the central rock formation. The pattern
of adding flights of steps at various places with no connecting pathways created more problems in the garden. This pattern has eroded the sense of ‘wildness’ and drama of the earlier picturesque character of the garden.

In 1957, Professor EG Waterhouse provided advice for the grounds. Waterhouse was a linguist,
and horticulturist and camellia expert. It is assumed that the older camellias within the grounds, including those below the central rock outcrop and the large Camellia reticulata at the southern boundary are attributed to his work.

The large Hill’s fig tree may have originated between the interwar period to 1950s or propagated by birds during this time span. Smooth-barked apples lined the main driveway in the 1960s and 1970s (removed by 1986). The smooth-barked apple is a species that is otherwise highly desirable to have on site. The Macadamia and Backhousia (c1960s) is likely to be the influenced by Bettina Gorton
(resident 1968 to 1971) as she was an advocate of Australian flora providing the momentum for the well-known Native Garden at The Lodge. The Ficus pumila hedge along the central rock outcrop
is likely to originate from the 1980s recommendations and has become invasive. The recent addition
of the Kentia palms (Howea forsteriana) and Jacaranda (as a replacement of the flame tree) are in keeping with the Victorian character. In the 1960s there was an unnecessary displacement of stonework to the harbourside structures. There is walling that originates from the 1960s as ‘fieldstone’.

AECOM Note: There are conflicting opinions from Britton and Taylor Brammer on appropriateness
of Jacaranda tree and camellias.

There is generally a demise of several older trees (e.g., large Camphor laurel, old Flame tree and large Lemon-scented gum). A solid and continuous line of trees on the northern boundary appears
(a key feature of early 20th Century) has lost the density.

In 2010, the garden has improved from the 1980s austere character to have denser plantings and there is a prevalence for neatness than a rich mixture of plant species consistent with a Victorian harbourside mansion. There is a lack of defining major precincts such as the important approach sequence or the eastern cliff line where earlier exotics and locally indigenous vegetation are vying with environmental weeds or the use of lighting elements and furniture (e.g., the inappropriate kidney-shaped stone seat). Harbourside structure remain as a ruin.

4.3.3                   Timeline of events

The following chronology draws from the historical background prepared in the Clive Lucas & Partners report and updated in the draft Design 5 report. This is provided in full at Appendix B, Volume 2 to this HMP. All sources of information detailed in the chronology below are listed in Appendix B, Volume 2 unless otherwise noted.

Table 4‑1: Site chronology

4.3.4                   Key Historical photographs

The following historical photographs demonstrate the development of the house from 1890s to 2023.

Figure 4‑1: 1890s SPF image showing Kirribilli House, thick vegetation in gardens and harbour structures (Source: Mitchell Library)

Figure 4‑2: 1890s SPF image showing detail of terraced gardens, manicured hedges, and harbour structures (Source: Mitchell Library)

Figure 4‑5: c.1921, Detail of photograph of the Pastoral Finance Association Building (to the left of Admiralty House out of frame) on Kirribilli Point, taken by Milton Kent showing Kirribilli House, garden and harbourside structures (Source: State Library of NSW, ON 447/Box 123

Figure 4‑6: 1920s View from the Estate Richardson & Wrench Sales Brochure showing panoramic views (Kirribilli House Subdivision: Richardson & Wrench Ltd –Saturday 17 January 1920 at 3.30 pm)

4.3.5                   Kirribilli House Evolution Plans

The floor plans and elevations provided in Volume 3 and below figures demonstrate the evolution
of changes to the building since its construction in the mid-19th century. The evolution of the grounds
is shown in Figure 4‑15Figure 4-15-Figure 4-20.

Figure 4‑11: Ground floor plan evolution – Refer to Volume 3

Figure 4‑12: First floor plan evolution – Refer to Volume 3

Figure 4‑13: East and west elevations evolution (Source: Design 5 report 2010)

Figure 4‑14: North and south elevations evolution (Source: Design 5 report 2010)

Figure 4‑15: Kirribilli Grounds 1850s to 1860s (Source: Geoffrey Britton 2015)

Figure 4‑16: Kirribilli Grounds 1880s-1890s (Source: Geoffrey Britton, 2015)

Figure 4‑17: Kirribilli Grounds 1920s – 1930s (Source: Geoffrey Britton, 2015)

Figure 4‑18: Kirribilli Grounds 1957 (Source Geoffrey Britton, 2015)

Figure 4‑19: Kirribilli Grounds, 1960s-1970s (Source: Geoffrey Britton, 2015)

Figure 4‑20: Evolution of key landscape elements (Source: Geoffrey Britton, 2015)

4.4                       Archaeological potential

To date, only two known archaeological assessments have been undertaken at Kirribilli House. In 1987, Edward Higginbotham conducted an archaeological inspection of the subfloor space of Kirribilli House ahead of proposed alterations to the flooring. As floorboards were to be removed, the opportunity was taken to inspect the subfloor area of the hallway and augment the historical information presented in the 1985 Conservation Analysis and Draft Conservation Policy by Clive Lucas Stapleton & Partners
(Figure 4‑21).

Figure 4‑21: General view of hallway following floorboard removal, looking east. The former cellar structure is at left of frame (Source: Higginbotham, 1987:6)

After the floorboards in the hallway had been removed, Higginbotham noted the footings of a partition wall visible in the western end of the hallway. The partition wall was constructed of dry-pressed bricks and cement mortar, consistent with the 1921 dating in historical documents (Figure 4‑22).

Figure 4‑22: Footings of a dry-pressed partition wall at the western end of the hallway (Source: Higginbotham, 1987:6)

The removal of this wall exposed a timber-framed construction and lath and plaster wall. This wall
is consistent with the 1957 alterations (Higginbotham, 1987:2).

Figure 4‑23: View of cellar, looking northwest. Original joists are at far left and right, with newer (narrower) joists over the cellar (Source: Higginbotham, 1987:7)

Figure 4‑24: Entrance hallway, looking north. Original joists in foreground with cellar at extreme left (Source: (Higginbotham, 1987:8)

In relation to the cellar and the room above (now the entry powder room), the subfloor space also showed that the cellar had been partially infilled. On this fill were dry-pressed brick piers, bonded with cement mortar, ostensibly to support the wall between the hall and the entry powder room. This wall was constructed with cinder blocks and cement mortar. Although the room was converted to a powder room in 1921, the cinder block wall evidences the extensive alterations of 1957 (Higginbotham, 1987:3).

Of the archaeological evidence within the cellar, Higginbotham also notes:

The configuration of this room… indicates that the original front wall of the house has been removed in the cellar and room above and a dry-pressed brick wall, bonded with cement mortar, constructed in front of it. A concrete joist or beam supports the original front wall above the ground floor room. The floor over the cellar is a concrete slab.

(Higginbotham, 1987:3)

After inspecting the entrance hallway, Higginbotham noted the presence of the original joists,
but no evidence of the original staircase. He notes that the reconfiguration of the cellar and the room above likely removed any such evidence, however opined that the cellar was probably reached by steps beneath the original staircase. Based on the available physical evidence, he therefore concluded that the only logical location for the original staircase was the room above the cellar (Figure 4‑24) (Higginbotham, 1987:3).

No artefactual material was noted in the subfloor space, apart from some building debris, including sandstone chips. However, Higginbotham notes that should underfloor deposits be removed at any time in the future, these deposits will have to be examined further to determine the presence of artefactual material (Higginbotham, 1987:4). This removal and examination should be undertaken by a qualified archaeologist.

In relation to the archaeological potential of the grounds, an archaeological assessment was undertaken in 2010 by Casey & Lowe Pty Ltd as part of Design 5’s draft HMP and was included
as Appendix J in GML’s 2016 HMP (now included in Appendix L). That assessment has been reviewed as part of this report.

As indicated in the historical context, the land now comprising Kirribilli House was once part of what was once called “Wotonga” and is now known as Admiralty House (see Section 4.3.1.1 above and Appendix B, Volume 2). A review of historical plans shows no structures from this phase of the site’s history located within the study area.

A review of early maps and plans shows few other structures outside of the house that still survive.
A map from 1892 show the following features (Figure 4‑25):

• An underground tank or reservoir in the lawns/gardens northeast of the house
• Outbuildings to the west of the main house
• Bathing pavilion and boat house on the harbour’s edge to the east of the main house.

Figure 4‑25: Detail of Metropolitan Water Sewerage & Drainage Board map from 1892 showing features surrounding Kirribilli House (Source: Stanton Library, LH REF MF 299/1, Image #MF2990001)

The outbuildings are likely beneath the western extensions to the main house constructed in 1957. Given the covered walkway from the western elevation of the house to the outbuildings, they were likely buildings that were frequently used, such as an external kitchen, servant’s quarters, and washhouse. Historical sources indicate that from 1878-1879, stables and gardens were located on a separate block opposite Kirribilli House to the north, on land purchased by Lawry family.

The sea pool and jetty were constructed as part of the original house, c.1856 (Clive Lucas Stapleton & Partners Pty Ltd, 1986:44). These are now in ruins along the shore of the harbour.

The rectangular tank, interpreted by Casey and Lowe as either an underground tank or fishpond,
is no longer in the landscape. Archival photographs show a greenhouse in the approximate location
of the “tank”; however, based on a review of archival plans, this feature appears to be a later structure, possibly dating from the 1950s/1960s (Figure 4‑26).

Figure 4‑26: Greenhouse/summer house northeast of main house, undated (Source: Department of Prime Minister and Cabinet)

4.4.1                   Management of Unexpected Finds

This process chiefly applies to archaeological deposits. However, the process also applies
to unexpected finds of built heritage elements uncovered during renovations or other works across the site, such as original ceilings, flooring, walls, fireplaces, hearths and similar.

In the event of uncovering any unexpected item or archaeological deposit, the following procedure must be followed Figure 4‑27.Figure 4‑27

Figure 4‑27: Unexpected finds procedure

4.4.2                   Summary of Archaeological Potential

Based on his inspection of the subfloor space, Higginbotham recommended that:

• The underfloor deposits should be sampled or excavated archaeologically if they are to be removed or extensively disturbed
• The cellar should be more thoroughly inspected for evidence of its original access in the event of the concrete slab floor being removed (either wholly or partially).

It is understood that neither of these recommendations have yet been required to be activated. Accordingly, they should remain as general recommendations to protect archaeological deposits beneath Kirribilli House.

The 2010 archaeological assessment concluded that the subfloor areas of Kirribilli House have the potential to retain structural evidence relating to the building’s original layout. It also notes the limited potential for subfloor deposits (Casey & Lowe, 2010:17). As with Higginbotham, Casey & Lowe recommended that any works to the subfloor should be guided by archaeological investigations
by a qualified archaeologist.

In relation to the grounds, Casey & Lowe concluded that archaeological potential was restricted to the “tank” feature and any brick cistern (a common feature on houses of that time) that may have been attached to the original house. It was recommended further that any ground disturbance works in the vicinity of the tank structure at the north-east of the house should also be guided by archaeological investigations by a qualified archaeologist.

The current assessment identifies that there is potential for archaeology in the western area of the site relating to the former outbuildings. There is potential for maritime archaeology of the seabed is likely which would require further assessments. It is to be noted that the foreshore land is owned by Transport for NSW and may require permission for any future investigation.

Additionally, sandstone outcrops covered by the garden could contain Indigenous archaeology such
as engravings and grinding grooves and there may be modifications on the foreshore.

5.0                    Significance assessment

5.1                       Natural Heritage Assessment

5.1.1                   Discussion

The land on which Kirribilli House and garden sits has been substantially modified and a significant amount of native vegetation has been removed. This process was initiated with the construction
of Kirribilli House in 1856 and (refer to Appendix A) extended by subsequent owners and tenants, particularly with the ground modifications in 1957. The dramatic sandstone cliffs at the eastern edge that is viewed from the water and the large outcrop through the central part of the site is a vestige of the pre-European Landscape.

The current garden has large area of lawn and a mixture of native and exotic plants. There is only some native, remnant vegetation and the area is not known to have high-quality habitat for fauna. Kirribilli House therefore does not meet the natural heritage criteria under the EPBC Act. It is important to note that Kirribilli Point is part of the broader Sydney Harbour landscape and has values associated with that significance.

The surviving local indigenous vegetation includes Port Jackson fig (Ficus rubiginosa). A specimen remains in along Kirribilli Avenue and the eastern corner of the site. Other surviving species include the Coastal Banksia (Banksia integrifolia) and sweet pittosporum (Pittosporum undulatum).

5.2                       Indigenous Heritage Assessment

Previous investigations have identified a low potential for Indigenous sites to be present within the bounds of Kirribilli House and Gardens. This is due to the fact that the construction of the house required excavation into bedrock and the subsequent landscaping and vegetation modification would have removed or disturbed the skeletal soils and Indigenous vegetation that was previously at this location. However, the site inspection undertaken for the HMP and consultation with Indigenous representatives identified that there is potential for the sandstone outcrops currently covered by the landscaped garden to contain cultural modifications, such as grinding grooves and engravings, if any were made in this area in the past. The presence or absence could only be determined by investigation should these outcrops be exposed during future works. Similarly, evidence of past cultural modification could be present in the foreshore area at the base of the escarpment by the water, which would also require further investigation to determine presence or absence. Finally, it was also noted that in addition to the possibility of extant tangible values in the form of sites, which may or may not be present,
the location is part of a larger cultural landscape that still holds intangible cultural values.

5.3                       Heritage Context

5.3.1                   Preamble

The CHL listing separately lists Kirribilli House and Garden. It is AECOM’s view that the listing originates from a historical practice and the site would benefit from one heritage listing in future.
Sections 5.3.2-5.3.3 have been extracted from the Commonwealth Heritage List entries for ‘Kirribilli House’ and ‘Kirribilli House Garden & Grounds.’[1]

5.3.2                   Kirribilli House

5.3.2.1             Summary Statement of Significance

Kirribilli House, dating from the 1850s, is historically highly significant. Since 1957 it has been the residence of Australian Prime Minister when visiting Sydney and has provided accommodation for visiting overseas guests of the Commonwealth. Secondly, the house and grounds help to reflect the lifestyle of prominent Sydney residents of the late nineteenth and early twentieth centuries, and the house was one of the earliest substantial houses built on this part of Sydney Harbour. Kirribilli House is also associated with a significant public campaign in 1920 to protect harbourside open space from development. (Criterion A.4) (Themes: 7.4 Federating Australia, 7.6 Administering Australia, 8.12 Living in and around Australian homes, 8.13 Living in cities and suburbs)

Kirribilli House is associated with Australian Prime Ministers since 1957, including Messrs Menzies, Holt, Gorton, McMahon, Whitlam, Fraser, Hawke, Keating and Howard. It also has associations with a host of overseas heads of state and other dignitaries. (Criterion H. 1)

With its traceried bargeboards and steep gabled roofs, the house reflects some of the main characteristics of Victorian Rustic Gothic style. It is also important as an example of a wealthy Sydney harbourside home of the late nineteenth century, and while it has been altered in many ways it retains a number of original internal and external features. Original and early fabric, internally and externally, contributes to the place’s values. (Criterion D.2)

Kirribilli House also has rarity value in being one of relatively few houses of this style to retain its harbourside setting. (Criterion B.2)

The Gothic styled house and the (separately nominated) redeveloped Victorian era garden have a harmonious visual relationship which is strengthened by the harbour views available from the site. (Criterion E.1)

Kirribilli House is well known to the community, both through general awareness of its official roles, and through occasional open days which have given the public opportunities to visit the property. It is consequently of social significance both to Sydneysiders and to the wider Australian community. (Criterion G.1)

5.3.2.2             Criterion A – Processes

Kirribilli House, dating from the 1850s, is historically highly significant. Since 1957 it has been the residence of Australian Prime Ministers when visiting Sydney and has provided accommodation for visiting overseas guests of the Commonwealth. Secondly, the house and grounds help to reflect the lifestyle of prominent Sydney residents of the late nineteenth and early twentieth centuries, and the house was one of the earliest substantial houses built on this part of Sydney Harbour. Kirribilli House is also associated with a significant public campaign in 1`920 to protect harbourside open space from development.

5.3.2.2.1       Attributes

The fabric and form of the house.

5.3.2.3             Criterion B – Rarity

Kirribilli House also has rarity value in being one of relatively few houses of this style to retain its harbourside setting.

5.3.2.3.1       Attributes

The house, its curtilage and relationship to the harbour.

5.3.2.4             Criterion D – Characteristic Values

With its traceried bargeboards and steep gabled roofs, the house reflects some of the main characteristics of Victorian Rustic Gothic style. It is also important as an example of a wealthy Sydney harbourside home of the late nineteenth century, and while it has been altered in many ways it retains a number of original internal and external features. Original and early fabric, internally and externally, contributes to the place’s values.

5.3.2.4.1       Attributes

The building’s form, its external styling and details and its early and original fabric.

5.3.2.5             Criterion E – Aesthetic Characteristics

The Gothic styled house and the redeveloped Victorian era garden have an harmonious visual relationship which is strengthened by the harbour views available from the site

5.3.2.5.1       Attributes

The architectural appearance of the building, its landscape setting and relationship to the harbour.

5.3.2.6             Criterion G – Social Value

Kirribilli House is well known to the community, both through general awareness of its official roles, and through occasional open days which have given the public opportunities to visit the property. It is consequently of social significance both to Sydneysiders and to the wider Australian community.

5.3.2.6.1       Attributes

The house in its garden setting, plus the occasional public open days

5.3.2.7             Criterion H – Significant People

Kirribilli House is associated with Australian Prime Ministers since 1957, including Messrs Menzies, Holt, Gorton, McMahon, Whitlam, Fraser, Hawke, Keating and Howard. It also has associations with a host of overseas heads of state and other dignitaries.

5.3.2.7.1       Attributes

The whole of the building, both internally and externally.

5.3.2.8             History

The origins of Kirribilli House date back to the 1850s, when in 1854 Sydney merchant Adolf Frederick Feez bought the land for 200 pounds. The house, one of the earliest substantial houses erected in Kirribilli, was built by 1858 when the property was purchased by Esther Hughes for 3000 pounds. In 1871 Mrs Hughes gave the property to her daughter Esther, whose husband James Taylor was the Commissary-General of Ordinance in Sydney. Various changes were made to the house by the Taylors and by the 1880s it had virtually doubled in size; the changes were in sympathy with the original Victorian Gothic styling. The house helps to reflect the lifestyle of wealthy Sydney residents in the late nineteenth century and early twentieth century. Following the death of Mrs Taylor, her son Tom Lawry inherited the property who had it for some time before a sequence of other owners had the place.

In 1919 Sydney solicitor A.W. Allen bought the property and in early 1920 proposed a five-lot subdivision. Public reaction was swift and, led by high profile individuals like Dr Mary Booth OBE, Major General Hon Sir Granville Ryrie KCMG, and Sydney Smith, a campaign was launched to save open space at this point on the harbour. As a result, the Commonwealth Government decided to resume the property. More additions were made, and during the 1920s Kirribilli House was used in conjunction with Admiralty House as the Governor General’s residence (although for much of the year Kirribilli House was occupied just by the vice-regal staff). The property was then leased to individuals from 1930 until 1953.

In 1956 the Commonwealth decided to use Kirribilli as the residence of the Prime Minister when visiting Sydney and as accommodation for overseas guests of the Commonwealth. Substantial restoration works (including additions) were carried out in 1957 under the guidance of architects Fowell, Mansfield and Maclurcan, and the garden was redesigned by Professor E.G. Waterhouse. In November of that year the house received its first overseas guest, the Prime Minister of Japan. Kirribilli House has provided Sydney accommodation for Australian Prime Ministers since 1957, including Sir Robert Menzies, Harold Holt, Sir John Gorton, Sir William McMahon, Gough Whitlam, Malcolm Fraser, Bob Hawke, Paul Keating, and John Howard.

5.3.2.9             Description

Kirribilli House is a Victorian Rustic Gothic style single storey house with attics, set amongst gardens and grassed areas sloping down to the northern side of Sydney Harbour. It is a fairly rare example of this style of house still retaining its harbourside setting. Steeply pitched slate gabled roofs with traceried bargeboards are a feature and are a key characteristic of the style. Single storey verandahs are on the eastern and southern sides of the building. There is a castellated bay window, and an entrance porch with a top light. Chimneys are tall and have twin terracotta pots. Walling is stone, which is painted and in some places is rendered in ashlar imitation; there is also some painted brick walling. There is a flat-roofed section to the house. Windows are multi-pane and there are shutters to French doors; there are also some dormers. Roof ridging is terracotta. Although interiors have been extensively altered over the years, there are still some possible lath and plaster ceilings in some rooms, red and white marble chimney pieces dating from the 1850s and 1860s, some 1850s and 1880s flooring, some 1850s cornices, a cedar staircase which is in part 1880s and some 1920s skirtings. Outbuildings include a 1920s brick garage and other structures.

The garden, though redeveloped, retains much of its Victorian era planning and style. (The garden is separately nominated, RNE 103530, and is dealt with in detail in that record). There are grassed banks to the east and south-east of the house, and intermediate lawns around sandstone outcrops edging the harbour; these are all linked with paths and stairs. Groups of trees frame harbour views, and there are many unusual and decorative plantings. A stone wall and steps (dating from the 1957 works) form the West Court in which roses are a feature. The driveway (along which there are fine angophoras) and carriage loop date also from 1957, and there is a kitchen garden. At the water’s edge there is a ruin of a sandstone boat harbour and pool. The pool, dating from the 1850s, is probably the oldest extant bathing pool on Sydney Harbour.

The house, gardens and views have a harmonious relationship, amplifying the place’s aesthetic values. The grounds complement those of adjacent Admiralty House to help form a large, landscaped garden zone on the northern slopes of the harbour. Kirribilli House is a prominent and well-known feature of Sydney Harbour, and occasional open days for the public serve to heighten the social significance of the place in the minds of Sydneysiders. Through its association with Prime Ministers, Kirribilli House is known to large numbers of Australians beyond Sydney.

5.3.2.10         Condition and Integrity

As indicated in the description above, Kirribilli House has seen many changes over the years, internally and externally, but it still retains a high level of integrity. Over the last few years alterations have included an internal door between the dining and drawing rooms, stairways, security installations, bathroom modernisation works, and garden changes. The pool/boat harbour was reconstructed in 1968 but later collapsed. (February 2002)

5.3.3                   Kirribilli House Garden & Grounds

5.3.3.1             Summary Statement of Significance

The Kirribilli House garden and grounds, developed from the 1850s onwards, are historically significant. They help to reflect the lifestyle of prominent Sydney residents of the late nineteenth and early twentieth centuries, and are associated with the development of the Sydney Harbour foreshores over a considerable period. Further, and more importantly, they are associated with Prime Ministerial use of the property since 1957, and with visiting overseas guests of the Commonwealth who have used the property. The property also has notable associations with an early campaign to conserve open space on the harbour foreshore. (Criterion A.4) (Themes: 7.4 Federating Australia, 7.6 Administering Australia, 8.1 Organising recreation, 8.10 Pursuing excellence in the arts and sciences, 8.12 Living in and around Australian homes, 8.13 Living in cities and suburbs)

The garden and grounds are associated with Australian Prime Ministers since 1957, including Messrs Menzies, Holt, Gorton, McMahon, Whitlam, Fraser, Hawke, Keating, and Howard. The garden and grounds are further associated with Professor E.G. Waterhouse who redesigned the garden in 1956 and who occupies an important place in Australia’s garden history. (Criterion H.1)

The garden and grounds are significant as an example of a mainly Victorian era landscape style used to complement a Victorian Rustic Gothic house and to exploit a picturesque harbourside setting. The gardens helps to exemplify Victorian taste and social behaviour on the one hand, and, through later redevelopment, the type of setting considered appropriate for Prime Ministerial activities on the other. The garden includes a number of significant specimens, as mentioned in the description. (Criterion D.2 and B.2)

The Gothic styled house and the redeveloped Victorian era garden have a harmonious visual relationship which is strengthened by the harbour views available from the site. The place’s aesthetic significance is further enhanced by the visibility of the property from the harbour, the textured character of the aged trunks and canopies of the array of mature trees, and the way in which the garden and grounds complement those of adjacent Admiralty House in forming a significant garden backdrop on this northern edge of the harbour. (Criterion E.1)

The nineteenth century harbourside pool is one of the few remaining examples on Sydney Harbour and, although in a ruinous state, it is possibly the oldest bathing pool surviving around the harbour today. (Criteria A.4 and B.2)

The gardens and grounds are well known to the community, as a result of occasional open days which have given the public opportunities to visit the Prime Ministerial property, and because of their high visibility from the harbour. They are consequently of social significance both to Sydneysiders and to the wider Australian community. (Criterion G.1)

5.3.3.2             Criterion A – Processes

The Kirribilli House, Garden and Grounds, developed from the 1850s onwards, are historically significant. They help to reflect the lifestyle of prominent Sydney residents of the late nineteenth and early twentieth centuries, and are associated with the development of Sydney Harbour foreshores over a considerable period. Further, and more importantly, they are associated with Prime Ministerial use of the property since 1957, and with visiting overseas guests of the Commonwealth who have used the property. The property also has notable associations with an early campaign to conserve the open space on the harbour foreshore.

The nineteenth century harbourside pool, although in a ruinous state, it is possibly the oldest bathing pool surviving around the harbour today.

5.3.3.2.1       Attributes

All aspects of the house, garden and pool.

5.3.3.3             Criterion E – Aesthetic Characteristics

The Gothic styled house and the redeveloped Victorian era garden have a harmonious visual relationship which is strengthened by the harbour views available from the site. The place’s aesthetic significance is further enhanced by the visibility of the property from the harbour, the textured character of the aged trunks and canopies of the array of mature trees, and the way in which the garden and grounds complement those of adjacent Admiralty House in forming a significant garden backdrop on this northern edge of the harbour.

5.3.3.3.1       Attributes

The whole building and its garden setting, plus its relationship to Admiralty House, perceived from all viewpoints especially the harbour

5.3.3.4             Criterion G – Social Value

The gardens and grounds are well known to the community, as a result of occasional open days which have given the public opportunities to visit the Prime Ministerial property, and because of their high visibility from the harbour. They are consequently of social significance both to Sydneysiders and to the wider Australian community.

5.3.3.4.1       Attributes

The whole house and its garden setting

5.3.3.5             Criterion H – Significant People

The garden and grounds are associated with Australian Prime Ministers since 1957, including Messrs Menzies, Holt, Gorton, McMahon, Whitlam, Fraser, Hawke, Keating and Howard. The gardens and grounds are further associated with Professor E.G. Waterhouse who redesigned the garden in 1956 and who occupies an important place in Australia’s garden history.

5.3.3.5.1       Attributes

The whole house and its garden setting

5.3.3.6             History

The origins of Kirribilli House and Garden date back to the 1850s, when in 1854 Sydney merchant Adolf Frederick Feez bought the land for 200 pounds (the house is separately registered, see RNE 2879). The house, one of the earliest substantial houses erected in Kirribilli, was built by 1858 when the property was purchased by Esther Hughes for 3000 pounds. In 1871 Mrs Hughes gave the property to her daughter Esther, whose husband James Taylor was the Commissary-General of Ordinance in Sydney. Various changes were made to the house by the Taylors and by the 1880s it had virtually doubled in size; the changes were in sympathy with the original Victorian Gothic styling. The house helps to reflect the lifestyle of wealthy Sydney residents in the late nineteenth century and early twentieth century. Following the death of Mrs Taylor, her son Tom Lawry inherited the property who had it for some time before a sequence of other owners had the place.

In 1919 Sydney solicitor A.W. Allen bought the property and in early 1920 proposed a five-lot subdivision. Public reaction was swift and, led by high profile individuals like Dr Mary Booth OBE, Major General Hon Sir Granville Ryrie KCMG, and Sydney Smith, a campaign was launched to save open space at this point on the harbour. As a result, the Commonwealth Government decided to resume the property. More additions were made, and during the 1920s Kirribilli House was used in conjunction with Admiralty House as the Governor General’s residence (although for much of the year Kirribilli House was occupied just by the vice-regal staff). The property was then leased to individuals from 1930 until 1953.

In 1956 the Commonwealth decided to use Kirribilli as the residence of the Prime Minister when visiting Sydney and as accommodation for overseas guests of the Commonwealth. Substantial restoration works (including additions) were carried out in 1957 under the guidance of architects Fowell, Mansfield and Maclurcan, and the garden was redesigned by Professor E.G. Waterhouse. In November of that year the house received its first overseas guest, the Prime Minister of Japan. Kirribilli House has provided Sydney accommodation for Australian Prime Ministers since 1957, including Sir Robert Menzies, Harold Holt, Sir John Gorton, Sir William McMahon, Gough Whitlam, Malcolm Fraser, Bob Hawke, Paul Keating, and John Howard.

5.3.3.7             Description

The grounds are situated on a sloping sandstone ridge on the northern shore of Sydney Harbour. The land drops steeply to the foreshore, through a series of rockbenches and small cliffs. The soil consists of thin podzols which originally supported a woodland of Eucalypts, Angophoras, Cheese trees, Pittosporums, and Figs. There are very few structures in the grounds, apart from paths, flights of steps and occasional pergolas/arches. A nineteenth century saltwater pool (now a ruin) and former boat harbour abut the foreshore; dating from the 1850s the pool is possibly the oldest remnant bathing pool on Sydney Harbour. The rocky foreshore provides the eastern boundary to the property, the Admiralty House grounds the western and southern boundary, and Kirribilli Avenue and a small park reserve the northern boundary. These boundaries are reinforced by tree and shrub plantings and security fencing. On the western boundary are a garage (1920s), a service court, and a picking garden beside the path leading to Admiralty House. The small private courtyard nearby was developed in 1957, now screened by a plumbago hedge. Old fashioned varieties of standard and climbing roses are a feature of this area.

A series of steep grassed terraces modulate the open space between the House and the Harbour, linked by a system of paths and stairs. Terracotta pots mark some of the stairs. The entrance from Kirribilli Avenue is via a simple gravelled driveway constructed in 1957. It passes a guard post and modest lawn areas to terminate in a loop around an Illawarra Flame Tree (planted c.1860). An Angophora, Kentia Palm, Gingko, and a Jacaranda flank the driveway, while a Jacaranda, Mock Olive, Irish Strawberry Tree, Lemon Scented Gum, Silky Oak, and Camphor Laurel screen the northern boundary. On the southern boundary there are relatively few major trees, the most notable being Jacaranda, magnolia, Swamp Cypress, and Canary Island Palm. These were intended to frame the views south to the Harbour and across the grounds of Admiralty House to Bennelong Point. The eastern (harbourside) boundary is planted with Palms, Tree ferns, Angophora, Camphor Laurel, Hills Fig, Olive, Cedar, Lillypilly, and Cypress. These screen some of the views to and from the Harbour. The Victorian interest in foliage and flowers is perpetuated in the plantings of unusual and decorative species in the garden borders and beds. Camellias provide much of the shrub planting, supplemented by Agaves, Agapanthus, Clivea and Ivy.

The layout of the grounds generally reflect the late Victorian garden style and taste, providing an expansive grassed area which both displays the Gothic style architecture to full effect and allows the enjoyment of the impressive views out to the Harbour. The house, grounds and setting represent one of the few, and prominent, extant examples of Rustic Gothic style properties on the Sydney Harbour shoreline. The grounds are adequate in scale to provide a sufficient setting for this house.

The house, gardens and grounds, and views, have a harmonious relationship, amplifying the place’s aesthetic values. The gardens and grounds complement those of adjacent Admiralty house to help form a large landscaped garden zone on the northern slopes of the harbour. The property is a well-known feature of Sydney Harbour, and occasional open days for the public serve to heighten the social significance of the place in the minds of Sydneysiders. Through its association with Prime Ministers, the place is known to large numbers of Australians beyond Sydney.

5.3.3.8             Condition and Integrity

The garden is very well maintained, and much of its original Victorian character is intact; the garden was redeveloped in the late 1950s. Not being the principal residence of Prime Ministers (until the current Prime Minister), it is assumed that the grounds are adequate for Prime Ministers’ personal and official requirements during limited stays there. Some changes have been made in recent years, including the removal of one of the Gingkoes. The swimming pool is in a ruinous state. (March 2002)

5.4                       Condition and Integrity of CHL Values

The listed CHL values (see Section 5.3) are what is recognised and protected under the EPBC Act and it is the listed CHL values that should guide any conservation works or future developments. Table 5‑1 provides a Condition and Integrity Assessment of the heritage values as outlined in the relevant CHL entries for. This Condition and Integrity Assessment considers the site as one element i.e., Kirribilli House and Garden, whilst the official values have previously listed the site under two separate listings; Kirribilli House and Kirribilli House Garden and Grounds.

Schedule 7A (e) of the EPBC Act requires a description of the condition of the Commonwealth Heritage Values of the place. AECOM notes that heritage values can be represented by tangible and intangible elements. Tangible elements can be readily assessed for their condition and integrity unlike intangible elements. At Kirribilli House and garden, the tangible elements that represent the heritage value of the place are identified in Table 5‑1 as ‘Attributes.’ Thus, these attributes have been assessed for their condition and integrity. The findings in Table 5-1 are supported by the individual assessments of the significant, contributory features of Kirribilli House and garden in Table 5‑3: Schedule of significant (contributory) elements and in detail in Appendix H: Physical survey/Fabric survey (see Volume 3).

Table 5‑1: Condition Assessment of CHL Values Against Both Listings

5.4.1                   Significance grading

Detailed significance assessments for each contributory element were prepared and is included in the in 5.4.3. The threshold for assessment is defined below and has been adopted from the
Draft Kirribilli House Conservation Management Plan 2010, Design 5 (Design 5, 2010):

The place also includes structures, spaces and elements, including landscape, of varying levels
of cultural significance. These have been graded according to their relative significance. These gradings include assessment of historic, aesthetic, social, and technical values, as well as use, meanings, and associations. They include tangible as well as intangible values. The consideration of social values includes the public perception of the place. An explanation of the gradings is provided below:

• Spaces/Elements Graded 1: Exceptional Significance: These structures, spaces or elements are of exceptional cultural significance.  They are essential to an understanding of the significance of the place and play a crucial role in supporting this significance. They retain
  a high degree of integrity and intactness from their original construction/installation or later significant period
• Spaces/Elements Graded 2: High Significance: These spaces or elements are of high cultural significance and play an important role in strengthening and supporting the significance of the place (but less than that for Grade 1). They contribute through configuration, location, and/or use.  Their integrity may have been compromised by later alteration or reconstruction
• Spaces/Elements Graded 3: Moderate Significance: These structures, spaces or elements retain some integrity but are of lesser cultural significance. They play a moderate role in supporting the significance of the place.  Significant fabric may have been altered or obscured. If so, it may have been of higher significance in their earlier configuration or context
• Spaces/Elements Graded 4: Low Significance: These structures, spaces or elements are of low cultural significance.  They may have been substantially altered and/or play a minor role in supporting the significance of the place
• Spaces/Elements Graded 5: Intrusive: These structures, spaces or elements are intrusive and are damaging to the cultural significance of the place.  They obscure rather than support its significance.

5.4.2                   Tolerance for change

A grading of tolerance for change can be identified to manage changes to significant elements and
is described in Table 5‑2.

Table 5‑2 Tolerance for change according to level of significance

5.4.3                   Contributory elements and significance grading

The contributory elements and fabric that comprises the identified significance are summarised in
Table 5‑3. A detailed room by room is included in Volume 2, Appendix H.

Table 5‑3: Schedule of significant (contributory) elements