DA75 ADFA Duntroon Master Plan - the National Capital Authority

IntroductionThe National Capital Authority (NCA ) is established under the Australian Capital Territory(Planning and Land Management) Act 1988 (the Act). The current National Capital Plan (thePlan) came into effect on 21 January 1990. In accordance with the Act, the NCA is requiredto keep the Plan under constant review and to propose amendments to it where necessary.The object of the Plan is ‘to ensure Canberra and the Territory are planned and developed inaccordance with their national significance.’ The Plan identifies matters of national significancein the planning and development of Canberra and the Territory. These are:»»The pre-eminence of the role of Canberra and the Territory as the National Capital.»»Preservation and enhancement of the landscape features which give the National Capitalits character and setting.»»Respect for the key elements of Walter Burley Griffin’s formally adopted plan forCanberra.»»Creation, preservation and enhancement of fitting sites, approaches and backdrops fornational institutions and ceremonies as well as National Capital Uses.»»The development of a city which both respects the environmental values and reflectsnational concerns with sustainability of Australia’s urban areas.Within the framework of this legislative object or goal, key objectives of the Plan are to:»»Recognise the pre-eminence of the role of Canberra and the Territory as Australia’sNational Capital;»»Further develop and enhance a Central National Area which includes the ParliamentaryZone and its setting and the main diplomatic sites and national institutions, as the heartof the National Capital;»»Emphasise the significance of the main approach routes and avenues;»»Respect the geometry and intent of Walter Burley Griffin’s formally adopted plan forCanberra;»»Maintain and enhance the landscape character of Canberra and the Territory as thesetting for the National Capital;»»Protect the undeveloped hill tops and the open spaces which divide and give form toCanberra’s urban areas;»»Provide a plan offering flexibility and choice to enable the Territory Government properlyto fulfil its functions; and»»Support and promote environmentally responsible urban development practices.The purpose of this amendment is to replace the existing Master Plan for the Royal MilitaryCollege Duntroon (RMC) with a Master Plan for both RMC and the Australian Defence ForceAcademy (ADFA). A new Master Plan for both sites will guide the future planning, design anddevelopment of RMC and ADFA as long term military training establishments.Draft Amendment 75 to the Plan (set out in Part 2 – National Capital Plan - Draft Amendment 75– Australian Defence Force Academy and Royal Military College Duntroon Master Plan) has beenprepared in accordance with section 23 of the Act.5 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

Figure 1 – Site locationBELCONNENÜLEGENDCANBERRACENTRALMAJURAArea Subject toDraft AmendmentWESTONCREEKWODENVALLEYJERRABOMBERRALIMESTONE AVENUEANZAC PARADEANZAC PARKCONSTITUTION AVENUEPARKES WAYKINGS AVENUEBLAMEYMENINDEEDRIVECRESCENTRUSSELLD RIVECOBBYSTREETVASE YWHITE CRESCENTCRESCENTFAIRBAIRN AVENUENORT HCOTTMORSHEAD DRIVEDRIVEDRIVENORTHCOTTGENERAL BRID GES DRIVEBRU CHEPLANT ROADRO ADDAIRY ROADFAIRBAIRN AVENUEHOPKINS DRIVEMONARO HIGHWAYMAJURANOMAD DRIVEBELTANA ROADROADKALLAROO ROADCATALINADRIVEMAJURA ROADDA 75 - LOCALITY MAP7 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

8 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan1.3 Environment and Heritage1.3.1 HeritageThe following places of heritage significance are located within the boundaries of RMC andADFA 1 :RMC Conservation AreaThe RMC Duntroon Conservation Area is listed on the Commonwealth Heritage List (CHL). TheConservation Area covers approximately 15 hectares of the central area of RMC, including theParade Ground and associated cadet precinct, Duntroon House and Gardens.The Conservation Area is set in tiers on the eastern slopes of Mount Pleasant, providing thesetting for military ceremonies, parades, social, commemorative, religious, teaching and someresidential functions of the institution.RMC has historical significance as Australia’s first military college since Federation and asCanberra’s first major institution. The RMC Duntroon Conservation Area displays RMC’s majorstages of the development that led the facility to becoming Australia’s leading military college.The Campbell Estate buildings adapted for college use, along with the officer’s residences inHarrison and Parnell Streets remain from the first development area. A second developmentstage, when RMC was re-established in 1937, is demonstrated by the Parade Ground andAssociated Buildings. Later period features of the campus such as the memorial stones andChangi Chapel demonstrate the significant role of Duntroon graduates and Australia haveplayed in major wars.It should be noted that individual buildings or locations within the RMC Duntroon ConservationArea are also listed individually on the CHL. These include Duntroon House and Garden, ChangiChapel and the ANZAC Chapel of St Paul, Parade Ground and Associated Buildings Group, andindividual residences and sheds.1.3.2 EnvironmentA preliminary archaeological assessment of the ADFA site by ERM in 2008 found that the site asa whole “has a no to low archaeological potential to contain Aboriginal sites with moderate or goodscientific heritage values.”An archaeological assessment of RMC undertaken by Navin Officer in 2008 noted fourIndigenous heritage sites. The sites are not listed on the CHL.A number of threatened and significant flora and fauna species, and ecological communities,have been identified on the main ADFA campus. Open space areas north of Fairbairn Avenuealso provide valuable habitat areas for significant fauna species. These include Box-Gum GrassyWoodland and Natural Temperate Grasslands, Rutidosis leptorrhynchoides (Button Wrinklewor),Tympanocryptis pinguicolla (Grassland Earless Dragon), Synemon plana (Golden Sun Moth) andDelmar impar (Striped Legless Lizard).1The information for each heritage place has been sourced from the Australian Heritage Database.The full citations can be found in the Australian Heritage Database athttp://www.environment.gov.au/cgi-bin/ahdb/search.pl

1.4 Explanatory Statement1.4.1 Purpose of the Draft AmendmentThe purpose of this amendment is to replace the existing Master Plan for the RMC with aMaster Plan for both the RMC and ADFA. A new Master Plan for both sites will guide thefuture planning, design and development of RMC and ADFA as long term military trainingestablishments.1.4.2 Existing National Capital Plan ProvisionsRMC and ADFA are located within the Central National Area (CNA), as identified in Figure 13 TheCentral National Area (Duntroon, ADFA & Campbell Park) of the Plan. Figure 13 identifies the landuse policy for the site as ‘Community Facility’ (Figure 2).The Plan requires the preparation of Master Plans for a number of major sites within the CNA,including both RMC and ADFA. The existing RMC Master Plan, which forms Appendix T1 of thePlan, was incorporated into the Plan through Amendment 3 (approved on 6 July 1993). Althougha Master Plan was prepared for ADFA in 1997, it was never incorporated into the Plan.The majority of the RMC and ADFA site is located within the Designated Areas of the Plan(Figure 3), and therefore the NCA has the detailed planning responsibility, including the approvalof any works, for the site. The most north-eastern portion of the site is not currently withinDesignated Areas.9 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

10 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master PlanFigure 2 National Capital Plan Figure 13 The Central National Area (Duntroon,ADFA & Campbell Park)CAMPBELL6664A.D.F.A.Campbell ParkOffices67Royal Military College119120DUNTROON6211811867Community FacilityDefence InstallationRuralRoad67Adjoining Central National Map AreasArea Subject to AmendmentRefer to Appendix H for Design and Sitting conditionswhich apply to all blocksNote: Office (up to a maximum of 55,000m gross floor area)is permitted land use for Campbell Park OfficesFigure 13The Central National Area(Duntroon, ADFA &Campbell Park)

Figure 3 Current Designated AreasÜ0 250 500MetresDesignated AreasArea Subject to Draft AmendmentLocation: M:\Projects\National Capital Plan\DA_75\DA_75_ExistingDes_Area.mxd11 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

12 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan1.4.3 Effect of the Draft AmendmentThe current land use policy of ADFA and RMC, identified as ‘Community Facility’ in Figure 13The Central National Area (Duntroon, ADFA & Campbell Park), will be amended to ‘DefenceInstallation’ to more accurately reflect the use of the sites.Designated Areas will be extended to cover the entirety of the RMC and ADFA sites. The NCA willthen have the detailed planning responsibility (including the approval of works) for both sites.The existing master plan for RMC at Appendix T1 of the Plan will be replaced with a master planfor both RMC and ADFA.1.5 Draft Amendment ProcessThe process for making an amendment to the Plan is outlined in Figure 4.Figure 4 Outline of the Draft Amendment ProcessWHAT HAS BEEN DONEProposal by the NCA of a draft amendment to the Plan▼CURRENT STATUSPublic consultation on a draft amendment▼WHAT IS NEXTSubmission to MinisterAction by MinisterParliamentary scrutinyExpiration of disallowance period

1.6 Public ConsultationThe NCA welcomes written comments on National Capital Plan Draft Amendment 75 –Australian Defence Force Academy and Royal Military College Duntroon Master Plan frominterested individuals and organisations as part of the consultation process. All responsesreceived will be considered before Amendment 75 is submitted to the Minister for RegionalAustralia, Regional Development and Local Government in accordance with the provisions of theAct.Copies of Draft Amendment 75 are available from:www.nationalcapital.gov.auNational Capital AuthorityGround Floor, Treasury BuildingKing Edward TerracePARKES ACT 2600Between 8.30am and 5pm Monday to FridayNational Capital ExhibitionBarrine DriveCommonwealth ParkBetween 9am and 5pm Monday to Friday, and 10am and 4pm weekendsA public information session will be held on 11 April 2012, from 5:30 pm to 7:00 pm at theNational Capital Authority, Griffin Room, Ground Floor, Treasury Building, King Edward Terrace,PARKES, ACT 2600Written submissions on Draft Amendment 75 are invited until close of business on 17 May 2012and should be forwarded to:Mr Andrew SmithChief PlannerNational Capital AuthorityGPO Box 373CANBERRA ACT 2601Email draft.amendment@natcap.gov.auOr delivered by hand to the NCA office at:Ground Floor, Treasury BuildingKing Edward TerracePARKES ACT 2600Further information on Draft Amendment 75 is available from Rebecca Sorensen by telephoneon (02) 6271 2888 or email draft.amendment@natcap.gov.au.Permission to disclose name and addressIn accordance with the Information on Privacy Principles under the Privacy Act 1988 regardingthe handling of personal information, the NCA seeks agreement to publish the name andaddress of each submitter, or the principal submitter, with their submission in the ConsultationReport and the Public Submissions Table which will be made available on the NCA website.When making a submission, please indicate whether you agree or disagree to your name beingpublished together with the information being published.13 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

14 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master PlanPart 2 National Capital PlanIntroductionÜAmendment 75 - Australian Defence ForceAcademy and Royal Military College DuntroonMaster PlanThe National Capital Plan is amended by the following:a. Amend Figure 3 Designated Areas with the following:0 250 500MetresDesignated AreasLocation: M:\Projects\National Capital Plan\DA_75\DA_75_AmendedDes_Area.mxd

Part One – Principle, Policies and Standards, Designated Areas,Special RequirementsChapter 1 The Central National Areab. Delete Figure 13 The Central National Area (Duntroon, ADFA & Campbell Park) and replace withthe following:Campbell ParkOfficesCAMPBELL6667119118Community FacilityDefence InstallationRuralRoad64A.D.F.A.Royal Military College120DUNTROON1186767Adjoining Central National Map AreasArea Subject to Amendment62Refer to Appendix H for Design and Sitting conditionswhich apply to all blocksNote: Office (up to a maximum of 55,000m gross floor area)is permitted land use for Campbell Park OfficesFigure 13The Central National Area(Duntroon, ADFA &Campbell Park)15 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

16 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master PlanAdministration and Implementationc. Amend the Plan to recognise consequential changes of Amendment 75 to page numbers,section titles and contents page.Appendix T1: Royal Military College Duntroon Master Pland. Delete the existing Appendix T1 and replace with the following:Detailed Conditions of Planning, Design and DevelopmentPurposeThis Master Plan has been prepared to guide the future planning, design and development ofthe Royal Military College (RMC) and the Australian Defence Force Academy (ADFA) as militarytraining establishments.The SiteRMC and ADFA are located approximately 3.5 kilometres south-east of the Canberra city centre.The two facilities share a common boundary and together occupy a total area of approximately231 hectares.The site is surrounded by Mount Pleasant to the north-east and separated from the suburbs ofCampbell and the Russell offices to the west by a bushland ridge which forms a physical barrier.To the north-east is open land used for grazing. Canberra Airport is located to the east and theMolonglo River and Jerrabomberra Wetlands are located to the south of the site.The ADFA campus occupies approximately 52 hectares of land, with a further 54 hectareslocated north-east of Fairbairn Avenue comprised of playing fields and grazing land. The currentADFA campus was designed and planned in the early 1980s, as the primary tertiary institutionfor the Australian Defence Force and was officially opened on 11 December 1986.RMC comprises a site area of approximately 125 hectares. RMC provides military training for allpotential Army General Service Officers (GSO). RMC also undertakes the military component oftraining for army cadets at ADFA. The original homestead was constructed on site in 1833 andthe College, Duntroon, as it was then known, was established in 1911.Vision and objectivesRMC and ADFA will continue to provide premier academic and military facilities and meet theacademic and military training needs for the Australian Defence Force for the foreseeablefuture.Both Institutions represent a vital element of Canberra’s role as the national capital andare included as Designated Areas of the National Capital Plan. RMC is the only Army officertraining facility in Australia, and, given its historical significance, sense of tradition and heritagecharacter, is an important representation of Army presence in the national capital. ADFA is thecentre for tertiary education for the Australian Defence Force (ADF) and educates approximately30% of all Officer cadets within the tri-services of the ADF.Objectives in achieving the Master Plan vision are:

»»To encourage shared use facilities, located centrally to both ADFA and RMC;»»To achieve greater efficiency and increased flexibility in buildings and infrastructure toreflect changing uses;»»To consolidate housing within existing residential areas;»»To maintain and enhance sporting and recreational facilities to meet ADFA and RMCneeds; and»»To conserve and manage significant natural and cultural heritage values.Guiding PrinciplesThe site is located within the Central National Area and a high quality of planning anddevelopment should be achieved within a design context appropriate to its location.Planning for RMC and ADFA is to be based on an integrated and sustainable approach to futureuse and development of both sites. Improved integration between the two sites and greateropportunities for shared use of facilities are expected outcomes.The Master Plan is to facilitate upgrading domestic, academic and recreational facilities toensure that they meet contemporary military and academic training needs and comply withcurrent access, health and safety standards.The urban design values of RMC and ADFA are to be recognised, protected and enhancedas an integral component of future development. In particular, the urban composition thatincorporates the Headquarters Building, Morshead Drive and the Fairbairn Avenue Entry (the‘Gun Gates’) is to be recognised for its significance to the urban character of RMC.Development is intended to occur in a manner consistent with the principles of water sensitiveurban design incorporating integration of stormwater treatment into the landscape, protectionof water quality (particularly in relation to the Molonglo River and its tributaries), and reductionof run-off and peak flows.ConstraintsThe Constraints Map (Figure 1) provides a context for the Master Plan and describes the primaryplanning issues to be considered with respect to development of the site. Significant constraintsare illustrated on the Constraints Map (Figure 1) and are described below.Environmental constraintsSeveral areas of vegetation and potential fauna habitats listed under Australian Governmentenvironment legislation occur on site. These include:»»White Box – Yellow Box – Blakely’s Red Gum Grassy Woodland and Derived NativeGrassland (including Leucochrysum albicans var. tricolor (Hoary Sunray);»»Natural temperate Grassland of the Southern Tablelands of NSW and the AustralianCapital Territory, including habitat for several threatened fauna species).HeritageThe RMC Duntroon Conservation Area is listed on the Commonwealth Heritage List. Individualbuildings or locations within the RMC Duntroon Conservation Area are also listed individuallyon the Commonwealth Heritage List. These include Duntroon House and Garden, Changi17 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

18 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master PlanChapel and the ANZAC Chapel of St Paul, Parade Ground and Associated Buildings Group, andindividual residences and sheds.Airport generated constraintsThe northern portion of ADFA is affected by constraints generated by its proximity to CanberraInternational Airport, including:»»Areas of high aircraft generated noise (High Noise Corridor) – residential developmentand other noise sensitive land uses would be restricted in this area; and»»The Airport Obstacle Limitation Surface (AOLS) – height limitations apply to all forms ofdevelopment within areas affected by this constraint.Figure 1: Constraints Plan

Development guidelines1. Land use1.1 The Master Plan drawing (Figure 2) divides the site into zones that correspond to primarypurposes within the overall function of the facility as a military training and academic institution.Likely land uses which are permissible within each zone are listed in Table 1.Figure 2: Zone map19 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

20 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master PlanTable 1: Permissible likely uses within PrecinctsPrecinct Primary purpose Permissible likely usesOperationalSupport PrecinctThe provide areas for buildingsor infrastructure for personnelsupporting key capability functions.This precinct is intended to providefacilities for a Defence Installation andScientific Research Establishment.Base SupportPrecinctTo provide areas for activitiesassociated with the generaloccupation and function of anestablishment or facility, withoutadversely affecting operational oroperational support activities.This precinct is intended to providefacilities for a Defence Installation.Support activities that would beappropriate for this precinct wouldinclude Community Facility, CommunityProtection Facility, Child Care Centre,Indoor Recreation Facility, OutdoorRecreation Facility and Personal ServicesEstablishment.Domestic Precinct To provide areas for activitiesassociated with the domesticfunctions of an establishment orThis precinct is intended to provideResidential and Social/CommunityFacilities.facility, without adversely affectingoperational, operational support orbase support activities.Open SpacePrecinctTo provide buffers betweenincompatible internal and externalactivities; to enable conservationand/or enhancement of land withsignificant environmental values;and to avoid land being targeted forfuture development on land that isunsuitable for such purposes.This precinct is intended to providefacilities for a Defence Installation(training and recreation equipment),Landscape Buffer and Open Space.FutureDevelopmentPrecinctTo identify larger parcels ofdevelopable land that can facilitatethe future expansion of activitieswithin the base or establishment.This precinct applies to uncommitted landand is to be retained for the future uses ofthe Defence Installation.1.2 New developments with potential to provide services, recreational or community facilities toboth ADFA and RMC should generally be located within the vicinity of General Bridges Drive.1.3 Priority should be given to land uses which strongly relate to the academic and militarytraining functions of the sites.2. Urban design, building height and setback2.1 New buildings, site works and landscape treatment shall complement and enhance theexisting facilities with special emphasis on three areas:»»The RMC Duntroon Conservation Area;»»The Main Entry to RMC Duntroon from Morshead Drive (“The Badge Gates”); and»»The Entry from Fairbairn Avenue (“The Gun Gates”).2.2 All new work in the RMC Duntroon Conservation Area is to be consistent with the existing

character in scale and by use of materials, treatment of facades and landscape works.2.3 A limit of three storeys applies to all new buildings at RMC and four storeys at ADFA tomaintain consistent scale of built form and protect the amenity of neighbouring buildings.2.4 New residential buildings (excluding Live In Accommodation (LIA)) shall be a maximum oftwo storeys in height. New residential buildings should generally be consistent with the heightof existing residential development and be designed to protect the amenity of neighbouringbuildings.2.5 Where the development site abuts an existing dwelling or LIA, sufficient spatial separationshould be provided to ensure the development does not adversely impact on residential amenity.2.6 The siting and location of new development should be compatible with external land usesand set back 20 metres from arterial roads (Morshead Drive and Fairbairn Avenue) to provide alandscape buffer.3. Landscape3.1 A landscape structure is to be devised which adds to the legibility of the site by reinforcingthe identity of each precinct, establishing pedestrian links and a hierarchy of vehicle circulation.3.2 The open area of land along the ridgeline adjacent to General Bridges Drive will remain as alandscape buffer between RMC and ADFA. No buildings shall be constructed within this zone.3.3 Strong vegetative screening is to be maintained along Morshead Drive adjacent to theOperational Support Zone.3.4 Landscape treatment of the perimeter areas is to be compatible with the adjacent landuse, the adjacent road and the quality and character of the existing landscape. The perimeterlandscape treatment must be a minimum of 20 metres wide, measured from the road verge(except where constrained by existing conditions).3.5 The landscape treatment and the urban design elements (portals, etc) of the Main Entry(‘The Badge Gates’) to RMC should reflect the formal, prestigious role of the College. Theplanting of the entry avenue is to be of a formal, deciduous character, similar to the RMCDuntroon Conservation Area.3.6 The Fairbairn Avenue (‘The Gun Gates’) entry, from Fairbairn Avenue to the RMC DuntroonConservation Area (Robert Campbell Road) shall be planted with Eucalypts to create a link to therural surrounds and to retain views beneath the canopy to ADFA.3.7 At the junction of the entry avenue and the RMC Duntroon Conservation Area emphasis is tobe given to the change in landscape character. Beyond this point the road verge planting is to becontinued in deciduous trees and the character of the spaces formalised.4. Car parking, access and movement4.1 All car parking demand generated by day to day activities shall be accommodated within theconfines of RMC and ADFA. Any parking that is displaced by new development is to be replacedelsewhere on the site.4.2 Car parking should be designed and sited to ensure the safe and efficient movement ofvehicles, including buses.4.3 Developments should be integrated with the internal pedestrian network and provide safeand convenient access for pedestrians.21 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan

22 National Capital Plan » Draft Amendment 75 » Australian Defence Force Academy and Duntroon Master Plan4.4 Development should ensure access is maintained to key sites along General Bridges Driveincluding the Duntroon Health Centre and General Bridges’ Grave.4.5 Car parking is to be provided in small lots, well screened and landscaped.5. Architectural character5.1 The architectural character and quality of all buildings should be of a consistently highstandard and should seek consistency in terms of scale, materials, colours, finishes and detail.5.2 Perimeter development shall be of a consistent architectural character and quality, befittingthe national significance of the site and the Approach Routes to the national capital.5.3 Within the Operational Support Precinct, large stores and workshop buildings should bedesigned so as to limit their bulk and visual intrusion by, for example, articulation with recessedelements and varied setbacks.6. Royal Military College Duntroon main entrance6.1 Portal entry structures (“Badge Gates”) shall be retained to mark formal entry to the collegefrom Morshead Drive.6.2 New buildings shall be located symmetrically of the avenue axis. Building character,materials and massing should be consistent with the character of the Parade Ground buildings.6.3 Strong formal avenue planting shall be established with a visual link to the round-about.Screening of residential and logistics complex from avenues is required.7. Lighting7.1 All outdoor lighting, including security and car park lighting, shall be designed and sited tominimise light pollution. Outdoor lighting shall use full cut-off light fittings. Any up-lighting ofbuildings should be carefully designed to keep night time overspill and glare to a minimum.

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The National Capital Authority was established under theAustralian Capital Territory (Planning and Land Management) Act 1988NATIONAL CAPITAL AUTHORITYGPO Box 373, Canberra ACT 2601Telephone: +61 2 6271 2888 Facsimile: +61 2 6273 4427Email: natcap@natcap.gov.auwww.nationalcapital.gov.au