Introduction
The Lend Lease Preferred Scheme
Maritime Heritage
Barangaroo Design Principles
Barangaroo Design History
Millers Point Alternative Concepts
The Hotel Alternative Concepts
Other Issues
Recommendation

The National Trust believes that Barangaroo represents an incredible opportunity. It is acknowledged that Lend Lease’s Preferred Scheme contains many successful elements. Accordingly, in the spirit of constructive engagement the National Trust has unveiled a set of design principles. The expression of these beliefs suggests a number of alternative concepts that could be examined to improve the project’s functionality from an architectural, economic and heritage perspective.

The National Trust’s design principles have been presented as alternative concepts by leading Australian architects to stimulate discussion. Consistent with the NSW Government’s articulated view that the development of Barangaroo is an inclusive and iterative process the Trust seeks:

1. recognition of Millers Point’s rich maritime history;

2. construction of an iconic cruise ship terminal at Millers Point accommodating an Indigenous Art Gallery; and

3. removal of the hotel tower from the harbour.

The Trust’s vision is viable, respectful and achievable. It is the fusion of ecological and mercantile uses. It is the practical expression of the iconic and the innovative imbued with a rich sense of history.

Our research has revealed that the site is framed by conservation areas and contains items of considerable heritage significance. These include a sandstone seawall, the harbour control tower, pump station and the Millers Point Conservation Area. Nevertheless, it is Sydney Harbour’s outstanding natural and cultural attributes that overwhelmingly inform the site.

Sydney Harbour was listed on the National Trust Register in 1983. It is also the subject of a Regional Environmental Plan (REP) and a national landscape nomination by the NSW State Government. The Trust maintains that Sydney Harbour has four primary functions which are:

i. maritime;
ii. aesthetic.
iii. recreational; and
iv. ecological.

Captain Phillip referred to Port Jackson as “the finest harbour in the world, in which a thousand sail of the line might ride in the most perfect security.” Consistent with Captain Phillip’s conclusions Sydney Harbour presents itself as an extraordinarily navigable waterway and an outstanding berth for ships.

With the removal of the polluting industries the harbour has once again been restored as a unique aquatic habitat and recreational focus. Finally, Sydney’s real estate market is testament to the value of exceptional waterviews.

Accordingly, the National Trust’s Alternative Concepts interpret Barangaroo through its relationship to the harbour. The Trust seeks to establish continuity with the area’s considerable history and the evolving plan that has led to today’s proposal.

Indeed, Barangaroo itself is named after an 18th Century Aboriginal woman. That reason alone should suggest the need for a greater link to land’s indigenous past.

The National Trust’s seven design principles for Barangaroo are a product of a comprehensive examination of the heritage attributes of the area and include:

• Primacy be given to the maritime, ecological;

• recreational and aesthetic functions of the harbour;

• Privatisation of the harbour be prohibited;

• Cruise ships continue to be accommodated at Barangaroo consistent with the spirit of the working harbour;

• The form and function of the headland acknowledge the rich archaeological and maritime history of the area while maximising open space;

• Public and private domains be physically delineated to clearly demarcate boundaries with a view to protecting the community’s right of way to the harbour;

• Public land be permanently dedicated and reserved to protect it from subsequent development proposals; and

• The NSW Government increase transparency and accountability associated with the Barangaroo development.

The Lend Lease Preferred Scheme has merit. The National Trust fought to protect The Rocks from skyscraper construction in the 1970s. A line was drawn. Barangaroo presently respects that line with high rise confined to the commercial sector in Stage 1.

The National Trust recognises that a commercial return on investment must be realised by the Government to fund remediation, the cruise terminal, pedestrian connections and landscaping of the public domain. Any attempt to lower the heights of the buildings in Stage 1 on the shore without a comparable reduction in floor space would simply  push the density north into stage 2.

The National Trust has demonstrated in The Rocks that it does not support high rise towards Millers Point. The Preferred Scheme satisfies that objective provided that the NSW Government of the day does not revisit the building height and densities for Stage 2 with a view to increasing the site’s commercial return.

The majority of commercial and residential development is presently confined to Stage 1 of the project. Lend Lease’s Preferred Scheme illustrates only two apartment buildings in Stage 2.

Notwithstanding that the GFA for Barangaroo is 30% above the initial concept plan; the National Trust is concerned that the NSW Government may seek to revise the building densities for Stage 2 to secure an increased financial return. The National Trust is opposed to any further height and floor space increases in Stage 2. Accordingly, any approval of the generous GFA in Stage 1 should be contingent on a condition that prohibits further GFA increases in Stage 2 above those illustrated in the current preferred scheme.

The Harbour

The National Trust examined Barangaroo from a heritage perspective. There are a number of heritage items on and surrounding the site. Nevertheless, it is Barangaroo’s relationship with Sydney Harbour that overwhelmingly informs any interpretation of the development area.

The National Trust listed Sydney Harbour as a Landscape Conservation Area in 1983. The Trust contends that the harbour has four primary functions which are:

• maritime

• ecological

• aesthetic; and

• recreational.

Any proposal to extend the Barangaroo development into the harbour should be consistent with these uses. The harbour is a finite resource of priceless value and should not be privatised.

East Darling Harbour and in particular Millers Point possess a rich and diverse maritime heritage. In 1810 Governor Macquarie determined that shipping activities should expand from Sydney Cove (Circular Quay) to Darling Harbour.

The first Australian P&O Agent, Mr. Henry Moore, established Moore’s Wharf at Millers Point in the 1830s. Moore’s wharf was one of the busiest in Sydney for over 60 years. The P&O Steamship Wharf was soon built nearby to handle the growing demand for deepwater berths.

In 1851, the clipper ship “Phoenician” loaded the first shipment of Australian gold for England. In 1852, “Chusan”, the first P&O screw steamship to arrive direct from England, berthed there with the first mails brought out under contract. The colony’s first rail locomotive was unloaded there in 1855.

Australian naval ship construction had its beginning on the shores of Millers Point. The wooden gunboat “Spitfire” was launched at Millers Point on 3rd April 1855. Designed and built by John Cuthbert, it was ordered by the NSW Government to help protect Sydney against Russian warships based at Vladivostok. “Spitfire” was the first warship built in Australia for any colonial government.

It would be regrettable during the bicentennial of Governor Macquarie’s appointment that the NSW Government would choose to demolish, dismantle and bury the heritage at Millers Point. Such ill-considered actions would effectively erase Governor Macquarie’s legacy in creating a viable and productive maritime industry at Barangaroo.

The Barangaroo Delivery Authority proposes  to dismantle, demolish and bury all heritage on Millers Point contained within the scheme area. The National Trust contends that the rich maritime history of Millers Point demands their retention to properly interpret this historic area.

The Harbour Control Tower was constructed in 1974 and while assessed as state significant has not been added to the State Heritage Register. The Minister for Planning’s original conditions of consent dated 9 February 2007 required the retention of the Harbour Control Tower.

The sandstone seawall dates to 1913 and adjoins the existing wharf area. Demolition of the wharf will preclude future maritime activity at Millers Point and severely curtail suitable interpretation of the area.

The sewage pumping station was commissioned in 1904 and was one of the first 20 pump stations built around the Sydney southern harbour foreshore as part of a historic health-infrastructure initiative. They range
from Elizabeth Bay in the East to Balmain in the West. Despite major expressway and hotel construction these pumping stations have been retained in-situ.

The Harbour Control Tower, sandstone seawall as well as the sewage pumping station are owned by State-government authorities and are listed on the statutory heritage and conservation registers of those authorities. The State Agency
Heritage Asset Management Guidelines, published by the NSW Government, require that: “demolition of any heritage asset, or a substantial portion of that asset, should only be considered in exceptional circumstances, and only after establishing there is no prudent or feasible alternative to demolition.”

The National Trust proposes a series of feasible, affordable and appropriate alternatives to retain all these heritage items in-situ. Accordingly, the National Trust seeks the immediate inclusion of all these items on the State Heritage Register.

The National Trust resolved to adopt a set of design principles to inform the development of Barangaroo.
The expression of these beliefs suggests a number of alternative concepts that could be examined to improve the project’s functionality from an architectural, economic and heritage perspective.

The National Trust’s design principles have been visualised as alternative concepts with the assistance of leading Australian architects. The Trust’s vision is viable, respectful and achievable.

It is the fusion of ecological and mercantile uses. It is the practical expression of the iconic and the innovative, imbued with a rich sense of history.

The National Trust’s seven design principles for Barangaroo are outlined below:

1. Primacy be given to the maritime, ecological, recreational and aesthetic functions of the harbour;

2. Privatisation of the harbour be prohibited;

3. Cruise ships continue to be accommodated at Barangaroo, consistent with the spirit of the working harbour;

4. The form and function of the headland acknowledge the rich archeological and maritime history of the area while maximising open space;

5. Public and private domains be physically delineated to clearly demarcate boundaries with a view to protecting the community’s right of way to the harbour;

6. Public land be permanently dedicated and reserved to protect it from subsequent development proposals; and

7. The NSW Government increase transparency and accountability associated with the Barangaroo development.
   
   

The former Premier Bob Carr MP always spoke of his preference for monumentalism at Millers Point. The former Minister for Planning Craig Knowles MP described Millers Point as a book end to the iconic Opera House on the other side of the Harbour Bridge.

In 2005 an international design competition was launched by the then Premier Bob Carr MP. It attracted 137 entries. The brief was specific in requiring the retention of working harbour functions including a passenger terminal of approximately 5,000m². The terminal would cater for other functions when not operating for passenger ships.

“East Darling Harbour must retain its physical function as a harbour passenger port” (Premier Bob Carr)

Retain working harbour functions includes passenger terminal of approx 5,0000m²

Terminal to cater for other functions when not operating for passenger ships.

In 2006 the NSW Government announced the Hill Thalis + Berkemeier + Jane Irwin team as the winner of the international design competition. Another short listed entry was prepared by Rogers/Lippmann with Lend Lease. These entries accommodated cruise ships and faciltated the construction of a passenger terminal in compliance with the Maritime Transport & Offshore Facilities Security Act 2003 at Barangaroo consistent with the competition brief.

Rogers/Lippmann w/Lend Lease Competition Entry 2006

Accomodates cruise ships

A concept plan was prepared by the NSW Government in 2007 based on the Hill Thalis winning entry. This plan also accommodated cruise ships. The passenger terminal was to cater for two ships and 4,000 passengers.

The Director General’s Guidelines that informed the Minister for Planning’s approval of the concept plan were quite specific. They stated that the design provide for a maximum of 8,.500m2 GFA for a passenger

terminal and a maximum of 3,000m2 GFA for active uses that support the public domain with the public recreation zone.

A consolidated concept plan was then released in September 2007. This introduced the idea of an exclusively naturalistic headland. The National Trust has been unable to discern any demonstrable heritage rationale for this decision that would necessitate the erasure of the site’s overwhelming maritime heritage.

The National Trust acknowledges that local disposal of remediated spoil from the excavation of the coves would offer a logistically, financially and sustainably superior solution. The Trust is therefore not opposed to softening the headland to provide open space at Millers Point provided it does not adversely impact on the interpretation of the maritime heritage.

On Saturday 20 December 2008, The Hon. Kristina Keneally MP, then Minister for Planning announced that the East Darling Harbour (Wharf Cruise Terminal would be “temporarily relocated to White Bay for a minimum of five years while a decision is made on the permanent location for the facility following consultation with the community.”

Instead, a temporary passenger terminal was erected at mid-Barangaroo and the NSW Government intends to construct a permanent facility at White Bay. The National Trust has not been able to establish any convincing planning rationale for Balmain as a cruise ship destination. The creation of a passenger terminal in the absence of a Sydney Metro station will significantly add to traffic congestion on ANZAC Bridge.

The NSW Government has committed to funding the Passenger Terminal from the proceeds of the Barangaroo sale irrespective of its location. In the interests of financial transparency and superior accessibility the National Trust contends that cruise ships should remain at Barangaroo.

In 2010 the Director General of the Department of Planning issued his requirements for a further modification of the 2007 Concept Plan. It does not contain any requirement for a passenger terminal at Barangaroo.

Consistent with the NSW Government’s articulated view that the development of Barangaroo is an inclusive and iterative process the Trust seeks:

1. recognition of Millers Point’s rich maritime history;

2. construction of an iconic cruise ship terminal at Millers Point accommodating an Indigenous Art Gallery; and

3. removal of the hotel tower from the harbour.

The alternative concepts retain the preferred headland form for open space and archipelago purposes. Importantly, the National Trust’s research revealed that the proposed headland’s shoreline extends to the existing wharf’s edge.

The alternative concepts as illustrated can therefore accommodate a naturalistic headland using the remediated spoil while retaining a deep water berth for cruise ships. All the National Trust is asking is for the Government not to demolish the existing wharf at Millers Point.

The National Trust’s principles suggest an elegant design solution which can accommodate the wharf and the cove. The National Trust’s principles acknowledge the open space archipelago in the western harbour while maintaining the spirit of the working harbour at no extra expense.

The National Trust’s principles are respectful of the rich  and diverse maritime heritage while acknowledging  the Aboriginal connection to the land beyond the name  Barangaroo. In response to the NSW Government’s  original vision the Trust recommends the construction  of an iconic, multi-functional cruise terminal at Millers  Point which would include an Indigenous Art Gallery.

The alternative concepts visualise a passenger  terminal constructed hard up against the wharf  with the elevated naturalistic headland rising to  the rear.  The Trust believes that the creation of a  headland would complement the construction of  a passenger terminal allowing the building to sit  comfortably in the maritime landscape.

The NSW Government has committed to funding the  construction of a new domestic passenger terminal from  the sale of Barangaroo.  The National Trust contends that  the location of the facility at Barangaroo funded by the sale  of Barangaroo is a transparent and rational proposition

.

The principles and alternative concepts preserve the foreshore walk from Blackwattle Bay to Woolloomooloo. Visitors would be able to traverse the headland while cruise ships are docked and be able to walk around the entire wharf area during the off season.

The current proposal for an exclusively naturalistic headland fails to activate the foreshore. Mrs. Macquarie’s Chair’s success as a destination is a product of its location between the Opera House, the Museum and Woolloomooloo Wharf. Millers Point lacks these attractions and requires an activity node to stimulate pedestrian traffic. Pedestrian traffic is essential for crime prevention through increased casual
surveillance.

The current proposal for an exclusively naturalistic headland with an underground carpark has all the allure of the Domain after midnight. Alternatively, the National Trust’s proposal for a multi functional cruise terminal, including an Indigenous Art Gallery and restaurants, will deliver 4,000 passengers per day during peak season and stimulate visitor numbers all year round.

The alternative concepts provide for a service core which would extend from Towns Place into the site. The core would be buried under the parkland and would discharge vehicles to the rear of the passenger terminal. Service vehicles would also be able to access the ships directly along the wharf.

The National Trust understands that an extensive underground carpark is already funded by the preferred scheme. This therefore represents a reasonable modification which will facilitate controlled access to the terminal facilities.

Service core and car park funded
Remediated spoil reused locally

The National Trust’s alternative concepts respect the original Barangaroo vision articulated by the former Premier Bob Carr MP in the international design
competition. They provide for an iconic building at Millers Point while interpreting the spirit of the working harbour in the 21st Century.

Similarly the Trust’s consultation has revealed the need for an indigenous art gallery in Australia. The Musée du Quai Branly in Paris was opened in 2006
to display indigenous art, culture and civilisations. There is currently no equivalent in Australia.

The creation of an iconic building at Millers Point could combine a passenger cruise ship terminal and an indigenous art gallery with supporting restaurants as well as function centres. The National Trust contends that Millers Point is a gateway to Sydney and therefore presents be an ideal location to celebrate Australasian indigenous heritage.

Net Gain in Public Domain

Retaining the existing wharf abutting the proposed headland will deliver an extra 2.27Ha of public domain at Millers Point. Notwithstanding the 4.5Ha of land allocated for a cruise terminal at White Bay in Balmain which could accommodate some other
commercial and open space activity if the cruise terminal is retained at Barangaroo. Accordingly, the National Trust’s proposal would generate a potential maximum net
increase of up to 6Ha of robust public domain.

Safe and Secure

Millers Point is potentially the most secure cruise ship berth west of the Sydney Harbour Bridge. During a raised threat level there are only two access points controlling a land approach to the wharf area. Accordingly, the alternative concepts are in complete compliance with the Maritime Transport & Offshore Facilities Security Act 2003.

The Trust’s vision negates any potential conflict with the proposed ferry operations at South Barangaroo. Similarly it provides for reasonable visual and acoustic separation from residential areas.

Access to Light Rail

The NSW Governments Transport Plan 2010 proposes the construction of a light rail link between the Sydney CBD, Barangaroo and The Rocks. The promised light rail line has the potential to deliver passengers directly to the back door of the passenger terminal at Millers Point.

Effectively, Millers Point would become a tourist energy node similar to Marina Bay in Singapore with passengers having easy access to The Rocks, Barangaroo’s retail district, nearby hotels and CBD all connected by light rail. Furthermore, a cruise ship terminal at Millers Point would complement the overseas passenger terminal at Circular Quay, with only 750m separating the berths.

Light rail to door of terminal
Link to Barangaroo Retail, The Rocks, Circular Quay, Hotels and CBD
Tourist Energy Node like Marina Bay Singapore

Precedents

The positioning of the tower in the water alienates the harbour and is visually intrusive. The National Trust recognises the recent substantial modifications to the original preferred scheme by Lend Lease, in response to National Trust’s
advocacy, which reduces the impact by shifting the structure significantly closer to shore. Nevertheless the tower remains an unwelcome precedent that represents a privatisation of the harbour and compromises future maritime opportunities.

The Lend Lease Preferred Scheme has about 30% more Gross Floor Area (GFA) than the initial concept plan of February 2007. The hotel would establish an unwelcome precedent by encouraging privatisation of the harbour through the construction of a pier and tower with no maritime justification. One solution is therefore to remove the tower from the harbour and accommodate the hotel in the on-shore development.

The National Trust’s design principles have been necessarily been confined to matters of cultural and natural heritage. Nevertheless, the National Trust is conscious of other issues pertaining to design and delivery that are of corollary interest to our members. These may include but not be limited to architectural elements such as sustainability, land use and public access.

The Trust anticipates that other agencies such as the Department of Planning, the City of Sydney and peak organisations such as the Planning Institute of
Australia may pursue these matters in further detail through the development assessment process. The Trust hopes that the Barangaroo Delivery Authority,
Lend Lease as well as the NSW Government will work collaboratively to publicly disclose those design solutions selected to address the site’s opportunities
and constraints.

Sustainability
The National Trust acknowledges that the Barangaroo Delivery Authority and Lend Lease have committed to the project being water positive, zero waste and carbon neutral. The National Trust applauds the intent to recycle water, reduce energy consumption and recycle waste. However, any proposal should be attended by clearly articulated performance indicators with reported measures on savings comparable to those employed by leading agencies such as Landcom.

Contaminated Land
Excavation of the site to create the coves and canal is expected to reveal contaminated fill under the concrete apron. The National Trust seeks
commitments that the articulation of the foreshore will not release those contaminants stored in the reclaimed land and harbour bed into the marine
environment.

Similarly, that the considerable works necessary to excavate, remediate and dispose of such soil be undertaken in a manner that reduces the noise, dust
and odour impacts on the residents of the adjoining Millers Point Conservation Area as well as Sydney Harbour. The Trust holds concerns for the public health implications of any aeration of contaminated soil in the Millers Point vicinity.

Public Transport
Barangaroo’s sustainability extends well beyond the delivery authority’s boundaries. Barangaroo is expected to attract over 30,000 visitors per day. The Preferred Scheme allows for a ferry terminal, light rail, buses and pedestrian access to heavy rail at Wynyard.

The Trust believes that the NSW Government will need to make a far greater forward investment in heavy rail to meet the demand created by Barangaroo.

Public Domain
The initial concept plan allowed for the site to contain 50% open space. However, the preferred scheme blurs the boundary between private and public domains.
The National Trust recommends that public and private domains be physically delineated to clearly demarcate boundaries with a view to protecting the community’s right of way to the harbour Furthermore, all public land be permanently dedicated and reserved to protect it from subsequent development proposals.

Concept Comparison

Consistent with the NSW Government’s articulated view that the development of Barangaroo is an inclusive and iterative process the Trust seeks:

1. recognition of Millers Point’s rich maritime history;
2. construction of an iconic cruise ship terminal at Millers Point accommodating an Indigenous Art Gallery; and
3. removal of proposed hotel tower from the harbour.

Acknowledgements

Authored by:
Mr. Scott Woodcock – Public Relations Director
Mr. Graham Quint – Advocacy Manager
Mr. Tony Brassil – Industrial Advocacy Officer
Mr. Timothy Evans – Graphic Design

Prepared under the supervision of Mr. Will Holmes à Court with the generous assistance of past and present members of the National Trust’s Industrial, Built and Landscape Advocacy Committees. The National Trust would also like to thank Mr. John Richardson for his architectural insight and advice. In particular, the National Trust would like to recognise the outstanding contribution by Mr. Colin Griffiths for his visualisations of the National Trust’s design principles.

Consultation

The National Trust position paper was prepared in consultation with the Barangaroo Delivery Authority, Lend Lease, the Tourism and Transport Forum, the Sydney Business Chamber, the Department of Planning, the City of Sydney and the City of Leichhardt.