HPG held Information Session to explain why Mosman Council’s Extensive Redevelopment proposal at Middle Head Oval will destroy heritage values
Mosman Council’s $4 million proposal is incompatible with heritage values. It includes constructing new change facilities, including a kiosk, a grandstand, extensive landscaping with concrete seating and barbecues, a drop-off zone and more.
HPG has outlined the implications of this oversized development while there is still time to have your say.
Read the transcript of the Information Session Presentation below.
Download HPG’s handout with key points here >
Information Session Presentation – Transcript
ABOVE: HPG’s Information Session Presentation by Jill L’Estrange, HPG President, 10 August 2024. PHOTO Michael Mangold
Acknowledgement of Country
I wish to acknowledge the traditional owners of the land upon which we are meeting today – the Boregagal and Cammeraigal people of the Eora Nation. I also pay respects to their elders, past and present, and to their culture and heritage.
Welcome
Welcome, and thank you all for coming today to hear what is proposed at Middle Head Oval. I would especially like to welcome the descendants of King Bungaree, who are present today – Mr Neil Evers, Mr Lauri Bimson, and Mr Denis Jones.
ABOVE L-R: Descendants of King Bungaree Mr Neil Evers, Mr Denis Jones and Mr Lauri Bimson. PHOTO: Michael Mangold
King Bungaree, as he was called, was granted land on Middle Head by Governor Macquarie in 1815. His family, together with other Aboriginal families from the Broken Bay area, established a settlement on Middle Head in the vicinity of 10 Terminal and Middle Head Oval.
Linda Bergin, present today, has completed extensive research on the farm's location, and she determines that it is partly on Middle Head Oval. Linda's report has undergone peer review but has yet to be made public.
National Significance of Middle Head
Thanks to the Defence Department – the Australian people have been left an invaluable legacy.
We have, in the middle of our largest city, open lands of historical, Aboriginal, military and environmental importance.
These lands define the most beautiful harbour in the world and help define the Australian people.
Not only did Captain Hunter on 29th January 1788 dance on Cobblers Beach with the Cammeraigal people, but it is from these lands that Australia was protected from Russian, French and Japanese threats – our men trained in warfare, and our men sailed past this headland to fight in overseas theatres of war.
Historical Significance of the Precinct
Middle Head is one of our nation's most significant places. Nowhere else is Australia's history from the First Fleet, important Indigenous interaction, Military history in the nation's defence, important geological formations and native flora and fauna found.
The land subject to Mosman Council's Development Proposal is land managed by the Harbour Trust. Apart from the important Indigenous and colonial heritage and environmental values attached to the Middle Head precinct, there are many sites of military significance, 10 Terminal, ASOPA, Timber Barracks and Middle Head Oval.
10 Terminal
The 10 Terminal building was built in 1941. It was based on the design that the British military used worldwide. The defence personnel stationed at 10 Terminal played an important role in WWII and subsequent theatres of war, including the Vietnam War.
For example, 10 Terminal housed:
Anti–Aircraft and Fortress Engineering School ( instruction in searchlight equipment, camouflage skills and training for tradespeople and engineers)
Army's Signals unit
Australian Women's Army Corps ( administration, communication and transport – also attached to the signals unit)
ASOPA – Australian School of Pacific Administration – playing an important role in training personnel to serve in Papua New Guinea
1958 the School of Military Intelligence – important role during Vietnam and Cold Wars
The unit taught aerial photo interpretation, foreign army tactics and combat
Intelligence, including enemy interrogation techniques that would help them endure and resist treatment if captured. – Tiger Cages.
1961, the 10 Terminal Regiment – Engineers
1968, the 10 Terminal Regiment – supplied Antarctic and Sub-Antarctic bases – playing an important part in Australia's occupation of Antarctica.
1989, the 10 Terminal Regiment became part of the Logistic Support Force of the Australian Army.
The 10 Terminal base is the last complete example of this architectural base design left in Australia.
Australian School of Pacific Administration (ASOPA)
These wooden buildings were built to accommodate the AWAS, the Australian Women's Army Service, who worked in signals and searchlights.
Post World War ll, these barracks were re-purposed to become accommodation for the Artillery Regiment and ASOPA. ASOPA played an important role in Australian relations in the Pacific, including training officers for the Australian New Guinea Administrative Unit.
Timber Barracks
The other Ranks Barracks are specifically listed in Commonwealth Heritage Listed Place ID105587 Ten Terminal Regiment Headquarters and AusAid Training Centre.
These buildings (1, 2 and 3) are recognised as a component of the Korean War, Vietnam and Cold War operational activities of the Ten Terminal precinct, including ASOPA/AusAID Training Centre, III LAA Battery, and 1960s Army Intelligence Centre operations.
Middle Head Oval
In 1951, the Oval was constructed for the artillery regiment. Sport was seen as an important part of peacetime training. The Oval was constructed by reserve army engineers with experience in airfield construction during WW2. Sergeant Geoff Jebb, a regimental cricketer, supervised the grassing of the Oval and the completion of the cricket wicket, which was built from the same Bulli soil as the Sydney Cricket Ground.
Middle Head Oval represents the Intangible Heritage of the precinct.
Like all military establishments, the intangible heritage of skills gained through training, the creation of a spirit de corps and physical training /elimination of boredom through sports are of importance.
Middle Head Oval represents the physical education and organised sports of the military establishment.
There are photographs of the Oval being used for recreation as far back as 1944.
The Site of the Proposed Redevelopment is covered by 5 Heritage Listings
Place ID 105541 – Defence site – Georges Heights and Middle Head
Includes Middle Head Oval and its curtilage. It also references other Commonwealth Heritage Places located near the site.
While not specifically listed as a significant site HPG thinks that the Oval and curtilage are part of the cultural landscape that contains "a wide range of military sites, structures and complexes which …..yield information which will lead to a wider understanding of the historical context, design, construction and operation of military barracks, defence housing, fortifications, gun batteries and defensive works in Australia from 1870 to the post-war years of the twentieth century. (Criterion C Research)"
Place ID105572 – Military Road Framework - Defence Land, Middle Head Rd, Georges Heights.
The "site is historically important as part of a single military road system at Middle Head and Georges Heights, which developed from 1870 following the departure of British troops.
The road system was a strategic link between the gun batteries, barracks and associated defence works and is a major component in a relict cultural landscape ….." (Page 1) Down this road were rolled the canons, part of the 1870s forts located close to this building.
Place ID 105587 – Ten Terminal Regiment Headquarters and AusAid Training Centre, Middle Head.
10 Terminal is close to the Oval and "has associations with the Army Intelligence Centre, which played an important role during the Cold War years and the Vietnam War, as well as the more modern period of occupation by the Regiment itself."
The Aus-Aid Centre (ASOPA) is directly opposite Middle Head Oval and was used "for Pacific Development and Training and at the end of World War II was used to house Italian Prisoners of war and internees." The listing states that "The precinct, as a whole, helps to maintain the historical association between the military and Middle Head which has existed for more than a century."
Place ID 10581 - HMAS Penguin, Middle Head Rd, Georges Heights.
The existing sports pavilion sits at the entrance to HMAS Penguin, which is located directly to the west of the pavilion.
Many of HMAS Penguin's buildings, structures and features, including their design and architectural detail, are noted for their functional and landscape relationships. They were united by nautical features, similar brickwork and green terracotta tiled roofs. A similar brickwork was used for the existing Middle Head Oval pavilion.
Place ID 105575 – Golf Club House (former).
Built in 1924, the clubhouse was used during WWII to house military personnel. The proposed redevelopment is on the direct sight line of the former clubhouse. This will impact the visual amenity of the clubhouse, which is now adaptively reused as a restaurant and function centre.
Parklike Setting – Most Important Value of Middle Head
The main qualities of Middle Head are the sense of departure from normal suburbia, first by the emergence of a parklike setting along Middle Head Road and Clifton Gardens ( now Chowder Bay Road) that then changes to a native mature forest. These areas of bush set the clusters of buildings apart from the city". Suburbia is left behind.
As you enter the Middle Head precinct the view is of a heritage military village nestled into a natural landscape.
Mosman Council Proposal
Demolition of the existing changing facility and a new building in a new location.
Construction of a covered spectator stand ( over existing tiered seating) in the southwest corner of the Oval. The construction includes levelling the existing grassy berm, to build an extra seating tier providing space for tables and chairs.
A landscaped area with additional concrete seating, BBQ facilities, picnic tables, pathways and steps and
It proposes widening Middle Head Road to provide for a paved drop-off area.
HPG's Position
HPG supports upgrading facilities at Middle Head Oval by way of sympathetic and appropriate alterations and additions to the existing changing facility or, only if absolutely necessary, the relocation and replacement of the facility.
HPG does not support the urbanisation of the site with a covered outdoor seating area and extended paved areas with associated recreational facilities. This development's bulk, scale and style detract from and degrades the important heritage and environmental values of the precinct.
HPG does not support the proposed redevelopment, which impacts the core values of the 5 overarching Commonwealth Heritage Places, which include or are immediately adjacent to the new facility.
HPG considers that the proposed redevelopment will have a 'Significant Impact' on the Commonwealth Heritage Values of the site and should' trigger' a referral to the Minister under the Environment Protection Biodiversity Conservation Act 1999.
HPG's Concerns
Heritage Values Ignored
There has been discussion for many years about the need to upgrade the facilities. However, the development proposal has morphed into a much larger footprint and heritage values have been ignored.
The Harbour Trust has a statutory obligation to "protect, conserve and interpret the environmental and heritage values of Trust Land".
Middle Head Oval is part of the precinct and is protected by several Commonwealth Heritage listings. The statutory Conservation Management Plan clearly states its heritage status. The proposal reveals a complete failure to understand the Oval's importance within defence site 105541 and the impact of the proposed development on adjacent Commonwealth heritage listed places.
The site of the current proposal is at a highly sensitive location at the entry roundabout, the key transition point from suburban Sydney into the Middle Head historic Military Precinct. The current proposal excessively and negatively urbanises a site of the highest level of sensitivity in terms of its welcome to visitors.
Mosman Council's heritage report by Heritage 21 (Heritage 21 Report) states on page 65, "This report pertains to the heritage impact assessment in relation to built heritage only. Heritage 21 do not purport to be experts in Aboriginal and/or natural heritage."
Consequently, Heritage 21 has not addressed Aboriginal heritage, nor has the impact of the development on the natural heritage values of place been explored.
Middle Head is prized for its natural values.
The Oval sits within a built and natural landscape with views of native forest areas to the north and east. The southern end of the Oval sits below a grassy berm. The covered outdoor seating area/ grandstand and associated landscaping will impact the natural environment and urbanise the curtilage of the Oval.
New buildings – Pavilion
The plan provides no evidence to support its contention that the existing pavilion is not 'fit for purpose'.
In fact, Mosman Council's Heritage Impact Statement states that it is "generally in a fair and good condition." Thus, one would think the building is suitable for extension and renovation. An example of a sympathetic renovation is the Georges Heights pavilion.
There are no new buildings at Middle Head, and this development would create a precedent.
The Trust's Comprehensive Plan specifically allows for "improvements and alterations" of existing sporting facilities, and then only subject to certain detailed criteria.
HPG concludes that Middle Head Oval and curtilage are an integral and important component of the Military site. Although the existing changing facilities were built in the 1980s and are not heritage, they were built in the military style and are sympathetic to the architecture of its closest neighbour, HMAS Penguin.
When considering the demolition of buildings, the Comprehensive Plan states that "the totality of the heritage values of the area are to be considered when deciding which buildings are to be retained or demolished. The relationship of the buildings to each other and to the site, are important considerations".
"The decision to retain or remove buildings has to be made through careful consideration of a broad range of values both natural and cultural".
The Trust will only consider the construction of a new building if it has minimal visual, heritage and environmental impact. (Comp Plan p 43)
HPG is of the opinion that the existing Oval Pavilion could be accommodated through "improvements and additions" provided "They have minimal adverse visual impact". (Comp Plan p119). A good example is the recently renovated sports pavilion at Georges Heights Oval.
If it can be shown that the existing building is not 'fit for purpose' (i.e. supported by an independent report) and that the new amenities building is essential to the functional requirements of sport at Middle Head Oval, then HPG considers that a new build may be appropriate.
The new amenities building constructed of coloured precast concrete panels, flat steel roof and timber screening is of materials, shape and size that bear no resemblance to nor is sympathetic to the wooden gabled huts of ASOPA. Nor does the new amenities building complement the 1941 redbrick, green Marseilles tiled, hipped gabled roof of 10 Terminal or the unified group of buildings at HMAS Penguin.
Proposed landscaping and new Covered Outdoor Seating Area
The proposed new buildings (i.e. amenities building) including the covered outdoor seating area /grandstand do not complement the surrounding military buildings.
The size, bulk and style are inappropriate for the site.
The development occupies three times the area of the existing pavilion and has a 100% increase in hardstand areas resulting in an overwhelming and urbanised entrance to the precinct.
The shade structure looming over Middle Head Road is 3m high and 30m long. This structure has an overwhelming impact on the precinct.
There is a discrepancy between the Architectural and Landscape drawings, which implies that the existing concrete seating will be replaced and raised to match the expanded paved area just above the bitumen pavement level of the adjacent Middle Head Road.
The landscaped BBQ area is highly urbanised with concrete pathways, concrete seating and excessive hardstand at odds with the existing natural landscape.
Sight Lines
The main purpose for the demolition and relocation of the pavilion is based on opening up the sight lines at the entrance to partial views of Middle Harbour.
While recognizing the pavilion does have a visual impact, the major and important sightline from the roundabout is eastward, directly down to Middle Head Road to the historic military enclaves.
Visual impact specialist John Aspinall concludes that "The expectation, by the architect and planner, is that the views to the harbour will be increased relates to one point only, at the roundabout, a place that is critical to vehicular, pedestrian and child safety."
Viewpoints which are considered as being of greater significance, in terms of their value, are from the footpaths and exit path from the car park, in addition to the standing points around the Oval itself
The visual impact and potential for view loss will be significantly greater from the new proposal than the existing situation, while the increased risk of traffic accidents, as a result of the 'opening up' of the view from the road junction, deems this proposal to be unacceptable, in my opinion, as a solution for the Council to approve."
The grandstand severely impacts views on the approach to the precinct from Middle Head Road and Chowder Bay Road. It also impacts the view from ASOPA and the former Golf Club.
Heritage 21 states:
"The proposed demolition of the existing amenities building would improve the view lines to Sydney Harbour, engendering a positive impact on the heritage values of place."
HPG'S Response:
In relation to this assessment, Heritage 21 does not address the construction of the covered seating area/ grandstand.
The grandstand severely impacts views on the approach to the precinct from Middle Head Road and Chowder Bay Road. It also impacts views from ASOPA and the former Golf Clubhouse (Burnt Orange) as outlined previously.
HPG disputes the assertion that "demolition of the existing amenities would improve the view lines to Sydney Harbour" and references the John Aspinall report above.
Mosman Council's Heritage 21 Report states in its initial report dated June 2024 that "Any specifics regarding views should be assessed by a view expert. Heritage 21 does not consider itself to be a view expert and any comments in this report are opinion based."
Drop off Area
It is proposed that the Heritage Listed Middle Head Road be widened to provide a vehicle drop-off zone.
In doing so, the important heritage values of the road have been ignored and eroded.
As mentioned, the Military Road Framework – Defence site
The "site is historically important as part of a single military road system at Middle Head and Georges Heights, which developed from 1870 following the departure of British troops. The road system was a strategic link between the gun batteries, barracks and associated defence works and is a major component in a relict cultural landscape ….."
The Conservation Management Plan notes that
The design of the road should be retained
The carriageway should not be widened, the bitumen and existing edging retained No kerbs and It is important that road remains subservient to the landscape
Failure to Consult
Mosman Council has failed to consult with all stakeholders and their decision was never discussed in a public council meeting. The Harbour Trust also failed in its due process, which requires a review of the proposal prior to exhibition. This has led to the withdrawal of the initial DA, revision of the DA and re-exhibition.
The revision has led to excessively lengthy documents, with the addition of more than 50 pages to the suite of documents, with amendments that are not evident due to the failure to provide marked-up documents. The consequence is that apart from those in the community associated with the relevant sporting codes that were consulted, the wider community has not been adequately informed.
Impact of EPBC Act
It is the opinion of Heritage 21 that the proposed development is minor in nature and scale and would not engender any negative impacts on Heritage Place ID105541 in which it is located". On this basis, the proposed development would not need a referral to the Minister under the EPBC Act.
HPG disagrees with the conclusion reached by Heritage 21 and is of the view that the proposed redevelopment will have a 'significant impact' on the heritage and environmental values of place and should be referred to the Minister for determination.
Conclusion
The proposed new, relocated amenities building and its associated shade pavilion have completely misunderstood the highly sensitive nature of the location and the Oval's contributory role in the overall Commonwealth Heritage Values of the historic Middle Head Military Precinct.
A major and fatal flaw in the current proposal is its prioritising northeast views over the axial eastern views into the Precinct.
While the need for an upgraded amenities facility is recognised, the location of the expanded recreation areas and separate, large scale eastern canopy combine to create an inappropriate degree of urbanisation to the highly sensitive Entry Sequence at the adjoining roundabout.