Heritage strategy | National Library of Australia (NLA)

Heritage strategy

Introduction

The aim of this Heritage Strategy is to achieve the conservation of the cultural heritage significance of the National Library of Australia consistent with the ongoing operation of the place as the home of Australia’s national collections and centre for national bibliographic and other services, and as a key component of the National Zone. 

This Heritage Strategy is the third version to be prepared for the National Library. The Strategy has been prepared by the National Library in fulfilment of its obligations under section 341ZA of the Environment Protection & Biodiversity Conservation Act 1999 (EPBC Act). The Strategy has also been prepared in the light of the guidelines issued by the then Department of Sustainability, Environment, Water, Population and Communities (2010) (now the Department of Climate Change, Energy, the Environment and Water), and is structured to address the specific requirements of the EPBC Act.

This Strategy meets both the National Library’s specific obligations to prepare a Heritage Strategy in relation to the land it manages and provides a strategy to meet its general obligations under the EPBC Act to take no action that has, will have or is likely to have a significant impact on the environment unless approved by the Minister for the Environment and Water. This includes heritage values on adjacent land. 

An important point to note about the nature and structure of this Strategy is that it attempts to provide brief strategic directions dealing with each component required in the EPBC Act and Regulations. 

The National Library owns or leases five properties in the Australian Capital Territory (ACT), of which only the National Library building in Parkes is assessed as having heritage values (see p. 12). The National Library building is included in the Commonwealth Heritage List.

1. Statement of the National Library's objective for management of its heritage places

Background 

The National Library is committed to the conservation of the Commonwealth Heritage values of its building and will reflect this commitment in its corporate planning documents and processes. This strategy, and the Conservation Management Plan (CMP), sets out the National Library’s objectives for identification, protection, conservation, presentation and transmission to all generations of the Commonwealth Heritage values of the place.

The National Library’s current corporate strategy is the National Library of Australia Corporate Plan 2023–2024. The implementation of the National Library of Australia Corporate Plan is assessed through a performance management system of key performance indicators.

Strategies

Strategy 1.1 

In its corporate plan the National Library will maintain a high-level commitment to managing the heritage values of the National Library building. 

Strategy 1.2 

The National Library will reflect its commitment to the appropriate management of the heritage property under its control in the CMP.

2. How the Heritage Strategy operates within the National Library's corporate planning framework 

Background

The National Library is committed to manage the Commonwealth Heritage values of its building in a manner consistent with the Commonwealth Heritage Management Principles (see Appendix 1). Its corporate planning framework recognises and reflects the National Library’s commitment to respect those values.

Strategies

Strategy 2.1 

The National Library’s corporate planning and budgetary processes will be monitored and amended as necessary to include sound governance arrangements that reflect the National Library’s objective to identify, protect, conserve, present and transmit to all generations the Commonwealth Heritage values of the place, and clearly identify and make transparent the programs and budget components that relate to that objective (see also Strategies 1.1 and 1.2). 

Strategy 2.2 

The Heritage Strategy is one of the key strategic documents in the corporate planning framework.

Strategy 2.3 

The National Library’s Annual Report will include a summary of projects and funding provided for:

  • the maintenance and conservation of Commonwealth Heritage values.
  • heritage studies, management planning and other activities relating to Commonwealth Heritage values.

3. Positions within the National Library which are responsible for heritage matters

Background

The following table identifies the National Library personnel responsible at different levels for identifying and managing heritage values, for works decisions, approvals and actions, and for implementing, reviewing and monitoring the strategy and reporting to the Minister for the Environment and Water.

Table 1: Positions within the National Library with heritage-related responsibilities

PositionFunction in relation to the Heritage Strategy
Library CouncilProvides policy direction and overview as set out in the National Library Act 1960.
Director-General

Executive responsibility for approving planning, works and program budgets.

Responsible for mediating conflicts arising between managing for heritage values and management for other purposes (Strategy 6.3).

Executive Group (DirectorGeneral; Assistant DirectorsGeneral (x 4) for: Collection; Engagement; Collaboration; Property and Sustainability; the Chief Information Officer; and the Chief Operating Officer).Provides strategic and operational leadership, responsible for budget overview, development and monitoring of policies and objectives, coordinates activities across organisation, and has a key role in management decisions covered by the Heritage Strategy.
Assistant Director-General, Property and Sustainability

Responsible for approving the budget for Facilities and Security, Collection  Storage and Capital Works.

Responsible for approving heritage-related input in the Annual Report.

Responsible for maintenance and building infrastructure works budgeting and overview.

Responsible for managing the implementation, monitoring and review of the Heritage Strategy.

Responsible for managing the implementation, monitoring and review of the CMP.

Assistant Director-General, Engagement 

Responsible for public programs presenting and transmitting Commonwealth Heritage values to all generations.

Responsible for reading room and stack services, and their use by readers.

Chief Operating OfficerResponsible for preparing the Annual Report and corporate plan.
Assistant Director-General, CollectionResponsible for collections of national heritage significance, reading room and stack services and their use by readers.
Director, Facilities and Security

Responsible for monitoring the condition of the building and the maintenance budget program.

Responsible for developing procedures to comply with EPBC Act.

Responsible for commissioning expert heritage advice.

Responsible for ensuring community consultation is implemented as needed.

Responsible for ensuring appropriate liaison with Commonwealth and Territory agencies on heritage matters occurs.

Responsible for management of the Heritage Register.

Responsible for day-to-day heritage management support including advice to other National Library staff, liaison with the Department of Climate Change, Energy, the Environment and Water, and the National Capital Authority.

Contact point for heritage issues.

Building Manager

Responsible for day-to-day management of National Library assets.

Responsible for detailed maintenance works decisions.

Responsible for planning and execution of minor building works.

Strategies

Strategy 3.1 

The National Library will ensure that those occupying all positions with responsibility for heritage matters identified in Table 1 are made aware of those responsibilities.

Strategy 3.2 

The Director, Facilities and Security will be identified within the National Library as the single initial point of contact for heritage matters.

4. The process for consultation and liaison with other government agencies on heritage matters

Background

The National Library building is owned by the Commonwealth and is in a Designated Area on National Land within the Central National Area, and its planning (at least for external fabric and changes) is controlled by the National Capital Authority. The ACT Government has no planning authority over the place, and its Heritage Act 2005 does not apply.

Hence the only legislation that applies to the National Library is that of the Commonwealth. In relation to the heritage values of the places, the relevant legislation is:

  • Environment Protection & Biodiversity Conservation Act 1999.
  • Aboriginal and Torres Strait Islander Heritage Protection Act 1984.

Both Acts are administered by the Department of Climate Change, Energy, the Environment and Water. The land vested in the National Library with heritage values (Block 4 Section 27 Parkes) is limited to the footprint of its building and its podium, a small sealed service area at the LG2 level, an unnamed access road off King Edward Terrace, and small extensions to contain landscaping features and services venting to the west and north. It does not include any
undisturbed land.

The National Capital Authority is both the planning and development control agency for external works affecting the National Library building, and the manager of the immediately adjacent land surrounding the building, including the forecourt, fountain and landscape as part of the address court for the building, the major carpark to the south, and other landscape areas surrounding the building.

The National Library ensures it undertakes appropriate consultation with the Department of Climate Change, Energy, the Environment and Water in relation to any operations involving heritage and environmental issues. 

The National Library will include the ACT Heritage Council in its list of government stakeholders, as a matter of courtesy.

Strategies

Strategy 4.1 

The National Library will consult with the Minister for the Environment and Water or their delegate as required under the EPBC Act, in particular:

  • with regard to the CMP (s341S).
  • with regard to actions that have, will have or are likely to have a significant impact on the National Library building as a Commonwealth Heritage place (s341ZC).

Strategy 4.2 

The National Library will consult with the Australian Heritage Council regarding its Heritage Strategy, if it is substantially revised, before submitting it to the Minister for the Environment and Water as required under s341ZA of the EPBC Act.

Strategy 4.3 

The National Library may consult informally with the Department of Climate Change, Energy, the Environment and Water regarding its Heritage Strategy, CMP and actions that it considers have, will have or are likely to have a significant impact on the building as a Commonwealth Heritage place, noting that such consultation is not formally required under the EPBC Act.

Strategy 4.4 

The National Library will consult with the National Capital Authority as the manager of immediately adjacent land having heritage values (as part of the Parliament House Vista listing and as the setting for the building). The purpose of this consultation will be to achieve sympathetic conservation management which is, where operationally feasible, consistent with the high standards established by the EPBC Act.

5. Consultation and liaison with the community on heritage matters

Background

Consultation with the community, including First Nations stakeholders, is required where changes to the place potentially impact on community interests. Consultation was undertaken in the preparation of the 2012 version of the CMP. The strategies identify the ongoing process for consultation and liaison with the community on heritage matters. The people, groups and organisations consulted during the preparation of the CMP are identified in the CMP.

The Built Infrastructure Program Board (BIPB) plays a key role regarding consultation as it includes representatives from all major internal stakeholder groups. The BIPB reviews all major works. A Minor Works Proposal template has been prepared and endorsed by the BIPB for all works which will impact building fabric. This form triggers internal consultation about impacts on heritage values.

Strategies

Strategy 5.1 

Where changes are proposed involving the National Library building or the land surrounding it (including if the lease area is extended), consultation will be guided by current national standards, namely:

  • Commonwealth Heritage Management Principles.
  • The provisions in Ask First, a guide to respecting Indigenous heritage places and values (Australian Heritage Commission 2002) for Indigenous heritage places.
  • Article 26.3 of the Burra Charter (Australia ICOMOS 2013) for cultural heritage places including both Indigenous and historic places.

Strategy 5.2 

The National Library will continue to implement a procedure for triggering and facilitating consultation.

6. Process for resolution of conflict arising from the assessment and management of Commonwealth Heritage values

Background

There are at least two categories of conflict that may arise regarding heritage values and management within the National Library. These are:

  • determining whether a heritage value exists or not.
  • between managing heritage values and managing for other purposes.

It is noted that some conflicts may be irreconcilable. 

In finding solutions to conflicts, it is important to bear in mind the obligation under s.341ZC of the EPBC Act not to take an action that has an adverse impact on the Commonwealth Heritage values unless there is no feasible and prudent alternative, and all reasonable measures are taken to limit the impact. Depending on the possible impact involved, the issue may also be an action that is subject to approval (by virtue of s.26 or s.28) under the EPBC Act.

Strategies

Strategy 6.1 

To help avoid or resolve potential conflict, where an issue requires clarification of heritage values or policies, the National Library will ensure that it seeks relevant expert opinion.

Strategy 6.2 

Any conflict arising from the assessment or management of the place should be resolved through the CMP, or where the management plan does not deal with the issue, by seeking advice from relevant heritage experts, the Department of Climate Change, Energy, the Environment and Water or Australian Heritage Council (under s.5(h) of the Australian Heritage Council Act 2003) and referring to the Burra Charter.

Strategy 6.3 

If a conflict arises between managing heritage values and managing for other purposes, the process for resolving this will involve:

  • reference to the obligations imposed on the National Library by its Act.
  • reference to the obligations imposed on the National Library by the EPBC Act.
  • reference to the relevant standard heritage industry guidelines such as the Burra Charter.
  • seeking advice from relevant heritage experts, the Department of Climate Change, Energy, the Environment and Water or Australian Heritage Council (under s.5(h) of the Australian Heritage Council Act 2003).

If this does not resolve the conflict, a mediation process will be initiated involving relevant heritage conservation experts and the manager/decision-maker(s) proposing the conflicting management actions. The mediator will be the Director-General or their nominee.

7. Processes for monitoring, reviewing and reporting on the implementation of the National Library's Heritage Strategy 

Background

This is the third Strategy for the National Library. The Strategy must be reviewed every three years, and the review must consider the range of matters specified in s10.03F of the EPBC Amendment Regulations 2003. A checklist indicating compliance with the EPBC requirements is included in Appendix 2.

Strategies

Strategy 7.1 

The implementation of the National Library’s Heritage Strategy will be monitored in the three-yearly review of the Strategy in accordance with ss341ZA (5) and (6) of the EPBC Act, which will monitor and evaluate the National Library’s performance on all elements of the Strategy. The review will be initiated and directed by the Chief Operating Officer. A report on the review will be provided to the Minister for the Environment and Water in accordance with the EPBC Act.

Strategy 7.2 

This strategy will be subject to its next review in 2027, in accordance with ss341ZA(5) of the EPBC Act.

8. The identification and assessment of Commonwealth Heritage values in the National Library's control and management

8a. The process for identifying and assessing the Commonwealth heritage values of the National Library’s property

Background

The National Library has identified and assessed the places under its current (2024) control to determine any heritage values they may have. Land and buildings owned by the National Library:

  • Block 4 of Section 27, Parkes, and the building upon it (the National Library building).
  • An off-site storage facility at the corner of Tralee Street and Monaro Highway in Hume (Block 21 Section 1) completed in 2006. The site has no identified heritage values.

Land and buildings leased by the National Library:

  • Hume Annexe - off-site collection storage facility at 64 Shepard Street, Hume. The site has no identified heritage values.
  • National Archives of Australia – a portion of the building is leased for offsite storage until June 2026.
  • Off-site office accommodation at 6 National Circuit, Barton, ACT – 3-year lease during ongoing building works at the main building.

Of these, only the National Library building at Block 4 of Section 27, Parkes is assessed as having heritage values. The remaining buildings are functional warehouse structures or office buildings of relatively recent design and are not assessed by the National Library’s heritage advisors as having any heritage values in relation to their history, design or associations.

The heritage values of the National Library building were assessed by analysing its history, the physical and associational attributes of the place, its design and aesthetic values, and its social and scientific values. The assessment is summarised in the Statement of Significance in the CMP.

A report was submitted to the then Minister for the Environment in compliance with Schedule 7C2(b)(iii) of the EPBC Regulations at the time the CMP was submitted in 2012.

Although the National Library’s property holdings have increased since the 2012 assessment, none of the new properties are assessed as having Commonwealth Heritage values. However, the assessment of the heritage values of the National Library’s main building will be reviewed as part of the update of the CMP, which will also be used to update the Heritage Register.

8b. Program to identify Commonwealth heritage values

Background

The National Library completed its program for the identification of Commonwealth Heritage values of its existing buildings in 2012, resulting in the development of a CMP for the building. The CMP also incorporates policies relating to collections which make up part of the significance of the place.

The National Library will continue to re-assess the Commonwealth Heritage values of the building as part of the monitoring and review process for the CMP (see strategies 7.1 and 7.2). The National Library building is included in the Commonwealth Heritage List (see Appendix 3).

Strategies

Strategy 8b.1 

The National Library will review the heritage values, including the Commonwealth Heritage values, of the building when the Heritage Strategy and CMP are reviewed; or where annual monitoring or an unforeseen discovery demonstrates that values are inadequately identified.

Strategy 8b.2 

If the National Library acquires new property, it will specify a practicable period (ideally six months) within which it will undertake an assessment of the possible heritage values of the property (in accordance with s. 341ZB (3) and 341Z of the EPBC Act).

An experienced heritage practitioner will assess possible heritage values of the place.

If heritage values are identified, a new record will be created in the National Library’s Heritage Register, and the results of an assessment will be reported in the Heritage Strategy and Annual Report.

If the assessment identifies Commonwealth Heritage values, the values will be included in the Heritage Register and the Minister for the Environment and Water notified. 

The Director, Facilities and Security, is responsible for implementing this strategy.

9. Management of Commonwealth Heritage values

9a. Management of the National Library’s Heritage Register

Background

The National Library manages one property with heritage values, the main building in Parkes, ACT. The Heritage Register information for that property is consistent with the EPBC Regulations (10.03G(2)).

Strategies

Strategy 9a.1 

The Heritage Register will be published on its website.

Strategy 9a.2 

The Heritage Register is managed by the Director, Facilities and Security.

Strategy 9a.3 

When the CMP is reviewed (in accordance with the EPBC Act s.341X), the Heritage Register data will also be reviewed and updated as necessary.

9b. Development of management plans for the National Library’s Commonwealth Heritage places

Background

A management plan was completed in 2012 and a revised version prepared in 2017.

Strategies

Strategy 9b.1 

The CMP will be reviewed every 5 years and updated if required, in accordance with s.341X of the EPBC Act. The review will include an assessment of the effectiveness of the plan in protecting and conserving values (EPBC Amendment Regulations, Schedule 7A, clause (k)).

9c. National Library use of heritage places

Background

The National Library building is actively used for the development, curation and preservation of the National Library’s collections, and the provision of National Library services.

Strategies

Strategy 9c.1 

The CMP and its revisions will consider the existing and any proposed use of the place and its policies and strategies used to resolve any conflict with heritage values.

9d. Current or expected development, works, disposal or other proposals that may affect Commonwealth Heritage values

Background

The National Library has identified a range of new building projects that may affect Commonwealth Heritage values (see Appendix 4). These will be considered when reviewing and/or revising the CMP, consistent with the Strategy below.

Strategies

Strategy 9d.1 

Current or expected development, works, disposal or other proposals that may affect Commonwealth Heritage values will be considered when reviewing and/or revising the CMP.

9e. Ensuring that Commonwealth heritage values are considered in the National Library’s planning for future development, works, divestment or other proposals

Background

The CMP is the key vehicle for ensuring the values of Commonwealth Heritage places are considered when planning for future development, works, divestment or other proposals. 

Should the National Library ever dispose of heritage places it owns, s.341ZE of the EPBC Act applies, and the National Library will ensure that a covenant in any sale or lease contract is included to protect the heritage values, or by other means.

These provisions are in addition to the formal advice and approvals which may be required under the EPBC Act.

Strategies

Strategy 9e.1 

The Built Infrastructure Program Board reviews project proposals which might impact on heritage values of the building and applies policies and strategies from the CMP. Or the Director, Facilities and Security will trigger strategies 9e.3 and 9e.4 to ensure that Commonwealth Heritage values are given due weight in the National Library’s planning activities.

Strategy 9e.2 

The CMP and any revisions will consider Commonwealth Heritage values in planning for future development, works, divestment or other proposals.

Strategy 9e.3 

If future development, works, divestment or other proposals arise and the CMP provides insufficient guidance, the existing plan will be reviewed and updated to guide the proposal. Where the timeframe for action precludes preparation/revision of the plan (as in the case of emergency stabilisation works), a process paralleling Strategy 6.3 will be followed.

Strategy 9e.4 

If the National Library disposes of a Commonwealth Heritage place it owns by sale or lease, it will take action to ensure future conservation of the heritage values of the place by covenant or other means, as required in s.341ZE of the EPBC Act.

Strategy 9e.5 

The National Library will take no action that has an adverse impact on the place’s heritage values unless there is no feasible and prudent alternative, and all reasonable steps are taken to minimise the adverse impact in accordance with s.341ZC of the EPBC Act.

Strategy 9e.6 

All major projects will be subject to heritage impact assessments by relevant heritage experts. Minor works will be assessed to identify any potential impacts to heritage values.

9f. Planning and budgeting for the maintenance and long-term conservation of Commonwealth Heritage values

Background

At a detailed level, annual capital and maintenance planning will be guided by the CMP, the BCSMP and the Strategic Asset Management Plan. The National Library’s BIPB governance process will factor in any conservation objectives for works (as identified in Strategies 9e.1-4) that require funding and planning over and above standard operational needs. Clear identification of heritage conservation-related work in building infrastructure projects will assist in the monitoring and reporting of the implementation of the Heritage Strategy. 

The annual reporting of funding for maintenance work is dealt with at Strategy 2.3. Monitoring and review of budgets is dealt with in Strategy 7.1

Strategies

Strategy 9f.1 

The CMP will be referenced when programming maintenance and building infrastructure works.

Strategy 9f.2 

Building infrastructure works are included in the 10-year BCSMP, and maintenance or conservation of Commonwealth Heritage values will be identified in relevant project proposals. The works will be costed and prioritised with regard to operational and conservation requirements. The Heritage Register will be updated as required to include reference to relevant project documentation.

9g. Monitoring and reviewing the National Library’s success in conserving Commonwealth Heritage values

Background

The primary vehicle for monitoring the success in conserving Commonwealth Heritage values will be through reviews of the Heritage Strategy and the CMP, in particular:

  • the requirement for monitoring and reporting on the condition of values in the management plan (EPBC Amendment Regulations, Schedule 7A, clause (h)(ix)).
  • the review of the CMP every 5 years which includes an assessment of the effectiveness of the plan in protecting and conserving values (EPBC Amendment Regulations, Schedule 7A, clause (k)).

Strategies

Strategy 9g.1 

The results of Heritage Strategy and CMP reviews will be provided to the Minister for the Environment and Water as required by the EPBC Act. This will include information about the effectiveness of documents and processes they promote in protecting and conserving heritage values.

10.Training and promotion

10a. Program for the training of National Library staff

Background

The National Library will provide its staff with appropriate training in heritage awareness and responsibilities.

Strategies

Strategy 10a.1 

The National Library will introduce a heritage awareness and information training program for key staff. Personnel occupying the positions directly responsible for heritage matters will receive, as necessary, awareness training at least every three years, providing an overview of Commonwealth heritage obligations and best practice heritage management.

Strategy 10a.2 

Other staff generally responsible for heritage matters (including those listed in Table 1, p. 6) will receive presentations about the National Library’s heritage values and responsibilities, and Commonwealth heritage obligations. This process will be repeated at least every three years. Relevant heritage obligations will be summarised as part of any presentation to the Executive Group seeking decisions impacting on heritage values of the place.

Strategy 10a.3 

A heritage awareness component will be included in the general induction training for all staff joining the National Library.

10b. Program for promoting community awareness of Commonwealth Heritage values

Background

The CMP gives direction for the interpretation of the significance of the National Library building.

Strategies

Strategy 10b.1 

The National Library will continue to include information about the building’s heritage values in its public programs. The content of this information will be developed and/or updated on an ongoing basis and will be reviewed formally with the Heritage Strategy every three years.

11. Other matters

11a. Management of National Library Property to compliment adjacent heritage places

Background

The National Library building is located within the heritage listed ‘Parliament House Vista’, which incorporates the National Zone, and has a planning and landscape relationship with the High Court of Australia and the National Gallery of Australia, as well as the significant Lake Burley Griffin landscape.

The policies in the CMP ensure that the building and immediate surrounds under the control of the National Library maintain their integrity and condition as built elements sympathetic to adjacent heritage areas (i.e. presenting the National Library in a way that reflects the heritage setting), and also sympathetic to the wider heritage values of the National Zone by contributing to its historical, symbolic and landscape values. A similar obligation lies with the National Capital Authority to ensure that the management of the adjacent areas respects the heritage values of the larger area and those of the National Library building’s own setting.

Strategies

Strategy 11a.1 

The National Library will consider the impact of decisions about its building on the heritage values of adjacent areas. The impact of external works, maintenance, ancillary activities and support structures will be assessed with values of adjacent areas in mind.

Strategy 11a.2 

The National Library will liaise with the National Capital Authority to encourage appropriate sympathetic management of the surrounds and setting of the building to conserve the heritage values of both the National Library building and the National Zone as a whole.

Printable version of the Heritage Strategy

Page published: 29 Jan 2025

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