Assessing cultural heritage significance - Using the cultural heritage criteria Department of Environment and Heritage Protection
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Department of Environment and Heritage Protection
Guideline
Assessing
cultural heritage
significance
Using the cultural
heritage criteria
Great state. Great opportunity.
Copyright
This guideline has been
Copyright requirements for images in this guideline vary. Holders of copyright for images published in
this guideline are noted in the caption below each image. Please consult individual copyright holders for prepared under section 173
specific copyright licence requirements. Where no acknowledgement is noted image copyright is held by (1) (a) of the Queensland
State of Queensland, Department of Environment and Heritage Protection.
Heritage Act 1992 to provide a
Prepared by: Heritage Branch, Department of Environment and Heritage Protection
© State of Queensland, 2013. framework for entering places
Disclaimer
in the Queensland Heritage
Register. It is part of a series
This document has been prepared with all due diligence and care, based on the best available information
at the time of publication. The department holds no responsibility for any errors or omissions within this guidelines produced by the
document. Any decisions made by other parties based on this document are solely the responsibility of Department of Environment
those parties.
and Heritage Protection to
If you need to access this document in a language other than English, please call the Translating and
Interpreting Service (TIS National) on 131 450 and ask them to telephone Library Services on +61 7 3170 5470.
help Queenslanders protect
heritage places.
This publication can be made available in an alternative format
(e.g. large print or audiotape) on request for people with vision Assessing cultural heritage
impairment; phone +61 7 3170 5470 or email library@ehp.qld.gov.au. significance follows its
August 2013 companion document—
#30251
Developing heritage places—
which guides development on
Queensland Heritage Places.
Cover images (clockwise from top left):
• Barcaldine Masonic Centre
• Centenary Pool, Spring Hill
• All Saints’ Memorial Church, Tamrookum
• Langenbaker House, Ilfracombe
• Booby Island Lightstation, Booby Island
i Assessing cultural heritage significance—Using the cultural heritage criteria
Part C: Understanding and Defining criterion (e) .......................................49
Contents using the Queensland Heritage Satisfying criterion (e).....................................49
Act 1992 criteria ............................... 22 Significance indicators ...................................49
Part A: Overview .............................. 2 Threshold indicators .......................................53
Organisation...................................................22
Background and acknowledgments ................3 Associated vocabulary ....................................54
About this guide .............................................3 Defining criterion (a) .......................................23 Defining criterion (f) ........................................55
Use of dictionary definitions ...........................4 Patterns of settlement ....................................23 Satisfying criterion (f) .....................................55
Using this guide..............................................4 Queensland regions .......................................24 Significance indicators ...................................55
Why do we need this guide? ...........................4 Principal historical themes .............................24 Threshold indicators .......................................57
Application of the Important in demonstrating ............................25 Associated vocabulary ....................................57
Queensland Heritage Act 1992 ....................... 5 Satisfying criterion (a).....................................25
Defining criterion (g) .......................................58
The Queensland Heritage Register ..................5 Significance indicators ...................................26
Levels of significance......................................5 Threshold indicators .......................................27 Satisfying criterion (g).....................................58
Entering places in the Queensland Associated vocabulary ....................................29 Significance indicators ...................................58
heritage register .............................................8 Threshold indicators .......................................61
Defining criterion (b) .......................................30
Method for determining state Associated vocabulary ....................................61
cultural heritage significance ..........................9 Satisfying criterion (b) ....................................31
Defining criterion (h) .......................................62
Entering places in local heritage registers .......9 Significance indicators ...................................32
Threshold indicators .......................................34 Satisfying criterion (h) ....................................63
Significance indicators ...................................63
Part B: Cultural Associated vocabulary ....................................35
Threshold indicators .......................................65
heritage significance ....................... 12 Defining criterion (c) .......................................36
Associated vocabulary ....................................66
Defining cultural heritage significance ............13 Archaeological deposits .................................36
Buildings and structures .................................36 Part D: Qualifying the Criteria ........... 67
Characteristics of cultural
Gardens and plantings ...................................37 Places with similar characteristics ..................68
heritage significance ......................................14
Elements of places .........................................37
Aesthetic significance .....................................14 Part E: The statement of significance 69
Scientific investigation ...................................37
Architectural significance ...............................15
Satisfying criterion (c) .....................................37 Writing a statement of cultural heritage
Historical significance ....................................16 significance under the provisions of the
Significance indicators ...................................38
Scientific significance .....................................17 Queensland Heritage Act 1992 ....................... 70
Threshold indicators .......................................39
Social significance..........................................18 The statement of cultural heritage significance
Associated vocabulary ....................................40
Other significance...........................................18 should: ...........................................................70
Defining criterion (d) .......................................41
Significance to past, present Example of an entry in the Queensland Heritage
or future generations ......................................19 Class of cultural places ...................................41 Register written under the provisions of the
Principal characteristics..................................41 Queensland Heritage Act 1992. .......................70
Period of significance .....................................20 Representativeness vs Rarity ..........................41
Satisfying criterion (d) ....................................42 Appendices ..................................... 76
Significance indicators ...................................42
Threshold indicators .......................................47
Index ............................................... 81
Associated vocabulary ....................................48
Further information .......................... 88
Part A: Overview
Contents ii
1 Assessing cultural heritage significance—Using the cultural heritage criteria
Part A
Overview
• Background
• About this guide
• Use of dictionary definitions
• Using this guide
• Why do we need this guide?
• Queensland Heritage Act 1992
• Queensland Heritage Register
• Levels of significance
• Methodology
Barcaldine Masonic Centre (1901)
Part A
P A: O
Overview
i 2
Functions of the Queensland In particular the guide is intended to assist when:
Background and
An interpretation and Heritage Council • making an application for entry of a place in,
acknowledgments or removal of a place from, the Queensland
methodological framework The Queensland Heritage Council is an Heritage Register
independent statutory authority appointed • making an application for a certificate of
for entering places in the In October-November 2004 the Queensland
Environmental Protection Agency (now the under the Queensland Heritage Act 1992. immunity from entry in the Queensland
Its key functions are to:
Queensland Heritage Register Department of Environment and Heritage Protection) Heritage Register
prepared a discussion paper on the criteria • provide strategic advice to the Minister • making recommendation in regard to
using the criteria established established under the Queensland Heritage Act responsible for the Heritage Act about matters an application for entry or removal, or a
1992. This document brought together and further relating to Queensland’s cultural heritage certificate of immunity.
by the Queensland Heritage developed work on the criteria begun in 1998 by • provide information to the community to
The guide reflects best practice cultural heritage
Act 1992 staff in the Cultural Heritage Branch. The process
had been a long and collaborative exercise with the
encourage interest in, and understanding of,
assessment generally. It owes much to the
Queensland’s cultural heritage
Queensland Heritage Council’s Heritage Register Australian ICOMOS Burra Charter 1999 and work
• advise entities (such as local governments on criteria prepared for the Australian Heritage
Advisory Committee. Staff involved included: Helen
and community organisations) about Commission in the late 1980s and early 1990s.
Bennett, Joanne Edwards, Fiona Gardiner, Cameron
conserving Queensland’s cultural heritage
Harvey, Susan Hill, Ken Horrigan, Maureen Lillie, Jinx The guide is divided into five parts and has a
Miles, Bronwyn Price and Nicola Stairmand. • encourage the appropriate management of
glossary, reference list and index.
places of cultural heritage significance
A workshop, attended by members of the Heritage Part A places the guide within the context of the
• decide which places are entered in, or
Council, the Heritage Register Advisory Committee application of the Queensland Heritage Act 1992
removed from, the Queensland Heritage
and Cultural Heritage Branch staff, was held on and defines a methodology for determining state-
Register
19 November 2004 to discuss the interpretive level cultural heritage significance through the
approach and methodology proposed in the • make recommendation on proposed
application of significance and threshold indicators.
criteria discussion paper. development of State-owned places entered
in the Queensland Heritage Register. In Part B of the guide the definition of cultural
Working from the suggestions offered at the heritage significance under the Queensland
November 2004 workshop, Cultural Heritage Heritage Act 1992 is deconstructed, with each
Branch prepared an illustrated guide to
interpreting cultural heritage significance and About this guide aspect of cultural heritage significance (aesthetic,
architectural, historical, scientific and social)
the criteria for entry of a place in the Queensland discussed separately. Illustrated examples
Heritage Register, as defined under the provisions This illustrated guide offers a model for demonstrate the principles discussed.
of the Queensland Heritage Act 1992 (the Act). professional assessment of historical cultural
heritage significance in Queensland. Concluding Part B is a brief exploration of the
At the request of the Queensland Heritage notion of significance to past, present or future
Council, senior legal advice on the guide was It provides discussion and information on: generations and discussion of the concept and
sought. Mr Mark Hinson SC reviewed the guide application of ‘period of significance’.
in March 2006 and his recommendations were • cultural heritage significance (as defined in
incorporated into the document published in 2006. the section 4 schedule of the Queensland In Part C of this guide each of the eight criteria
Heritage Act 1992) and the application of for entry in the Queensland Heritage Register
Between 2010 and 2013 the criteria guideline significance indicators are discussed separately. These criteria are the
was updated and revised to reflect substantial • the criteria for entry in the register means by which the state-level cultural heritage
amendments to the Queensland Heritage Act specified in the Act and the application significance of a place may be determined.
1992, which came into force on 31 March 2008 of threshold indicators for determining
and on 4 April 2011. This guideline reflects Part C is illustrated with examples
State-level significance.
Queensland Heritage Council and Department of demonstrating how significance and threshold
Environment and Heritage Protection (EHP) policy indicators are applied.
and practice, and is issued by the Chief Executive,
EHP, under s173 of the Act.
3 Assessing cultural heritage significance—Using the cultural heritage criteria
Part D is a brief discussion of the qualification of
the criteria of the Queensland Heritage Act 1992. Using this guide Why do we need
Part E provides advice on writing a statement
To determine state significance
this guide?
of cultural heritage significance and gives an
example of a typical ‘entry’ in the Queensland For any place entered in the Queensland Heritage The Queensland Heritage Act 1992, incorporating
Heritage Register. Register as a State Heritage Place, the entry must amendments made in 1995, 2003, 2004, 2005,
include a statement about the cultural heritage 2007-2009 and 2011, is the principal legislative
The appendices comprise definitions and a list of
significance of the place related to the cultural instrument through which State heritage places,
references consulted.
heritage criteria. archaeological places and protected areas are
The guide concludes with a comprehensive index identified and managed in Queensland.
and list of Illustrations. This guide provides a methodology for identifying
and assessing places eligible for entry in the Understanding the provisions of the Act relating
Queensland Heritage Register as State heritage to the assessment of State heritage places is
places. These are places of state-level cultural fundamental to the successful conservation of
Use of dictionary heritage significance. Queensland’s historical cultural heritage.
definitions For quick reference Figure 1 on page 9 presents in
diagrammatic form a recommended method for
Both the Queensland government and the
Queensland community have an obligation
applying significance and threshold indicators to present and future generations to identify,
Under sections 14A and 14B of the Acts manage and conserve places of cultural heritage
to determine state-level cultural heritage
Interpretation Act 1954, reference may be made
significance. Table 1 on pages 10-11 provides a significance in this state. Acknowledging and
Barcaldine Masonic Centre (1901), entered in the
to extrinsic material in order to best interpret the conserving aspects of our past is a measure of a
summary of these indicators. Queensland Heritage Register in August 1992
intention of any piece of legislation. While the strong society, one in which the past is valued for
use of dictionary definitions is not mentioned For an analysis of the definition of cultural heritage its contribution to the present and its potential to
specifically, it is not excluded, and precedent significance under the Queensland Heritage Act contribute to future societies.
for using dictionary definitions to interpret 1992, refer to Part B of this document.
the intention of the Queensland Heritage Act This guide is intended to aid heritage
1992 was made in the case of Advance Bank v. For more detailed information on the nature and professionals and others interested in the
Queensland Heritage Council in 1993. application of significance and state threshold conservation of Queensland’s cultural heritage.
indicators refer to Part C of this document,
The principal reference used in this guide is the which explores the eight criteria specified in of It is anticipated that the application of the
Macquarie Dictionary 2003 (online edition), the Act. interpretations and methodology explored in
which is considered an Australian standard. this guide will:
Where appropriate, definitions have been drawn
also from the Australian Concise Oxford Dictionary
To determine local significance • avoid misinterpretation of the criteria
during the process of assessing cultural
2004 (4th edition). The guide may be used to identify places of local
heritage significance
heritage significance through the application of
Refer to the glossary in the appendix for a list of • provide clarity when places are under appeal
the significance indicators identified in Part C.
dictionary definitions relied upon. regarding entry in or removal from the
The application of significance indicators Register, on how assessments of cultural
allows us to identify places of cultural heritage heritage significance are made
significance in Queensland, regardless of the
• provide clarity on the policy that underlies
level of that significance.
register decisions made by the Queensland
If a place satisfies one or more significance Heritage Council.
indicators identified in this guide but does not
satisfy the state threshold indicators, then it
remains a place solely of local heritage significance.
Part A: Overview 4
Feature, in relation to a place, includes
Application of the the following – The Queensland Levels of significance
Queensland Heritage (a) a building or structure, or part of a Heritage Register The Queensland Heritage Act 1992 deals with
building or structure;
Act 1992 (b) an artefact, including an archaeological The object of the Queensland Heritage Act 1992 is
places of state-level significance, but a place may
be of cultural heritage significance on one or more
artefact; to provide for the conservation of Queensland’s levels, including:
The Queensland Heritage Act was introduced in cultural heritage for the benefit of the community
1992 to deal specifically with historical cultural (c) a precinct; • local
and future generations. In part this is to be
heritage. The provisions of the Act do not apply to (d) a natural or landscape feature. achieved through the keeping of the Queensland • state
places or artefacts solely of traditional Indigenous Building includes furniture, fittings and Heritage Register and local heritage registers. • national
cultural heritage significance or to natural heritage.1 other artefacts –
The Queensland Heritage Register must include a • world.
Cultural heritage significance is defined in the Act (a) associated with the building; and record of: Identifying the level of significance of a place
as follows:
(b) that contribute to the building’s cultural • State heritage places helps determine how best to manage its
cultural heritage significance, of a place or heritage significance. historical cultural heritage values under existing
• archaeological places
feature of a place, includes its aesthetic, An artefact unattached to land or to place Queensland heritage and planning legislation.
architectural, historical, scientific, social or • protected areas.
cannot be registered in its own right; however,
other significance, to the present generation a moveable or fixed artefact which contributes All places entered in the Queensland Heritage Local significance
or past or future generations. to the cultural heritage significance of a place or Register are Queensland heritage places.
A place is solely of local cultural heritage
For the purposes of the Queensland Heritage Act feature of a place, can be recorded in the heritage State heritage places must be of State cultural significance if its heritage values do not
1992 place, feature and building are defined as:2 register as part of a place. heritage significance, determined by eight criteria contribute significantly to our understanding of
prescribed in the Act. the wider pattern and evolution of Queensland’s
1. Place means a defined or readily identifiable
area of land, whether or not held under 2 or history and heritage. For example, houses that
Places solely of local cultural heritage
more titles or owners. contribute to an historical streetscape often are
significance do not satisfy the criteria for entry in
of local cultural heritage significance but not
the Queensland Heritage Register. These places
2. Place includes – necessarily of state significance.
are more appropriately protected under local
(a) any feature on land mentioned in item 1; and government registers or in heritage overlays in The Queensland Heritage Act 1992 requires each
local planning schemes. local government in Queensland to maintain a
(b) any part of the immediate surrounds of a
feature mentioned in paragraph (a) that local heritage register. Some local governments
may be required for its conservation. are exempted from this provision because
their planning scheme or local heritage register
identifies and makes provision for the conservation
of places of cultural heritage significance.
A local heritage register must include, for each
place entered in it, enough information to identify
the location and boundaries of the place, and a
statement about the cultural heritage significance
of the place.
1 Since April 2004, Queensland’s Indigenous cultural
heritage has been managed under the Aboriginal Cultural
Heritage Act 2003 and the Torres Strait Islander Cultural
Heritage Act 2003.
2 In Queensland legislation the terms ‘place’, ‘feature’ and
‘building’ also refer to the plural, as in ‘places’, ‘features’
and ‘buildings’.
5 Assessing cultural heritage significance—Using the cultural heritage criteria
Each local government is responsible for the entry
of places in, or the removal of places from, its
local heritage register.
If a local government proposes to enter or
remove a place in/from the local register, it must
advise the owner of the place and call for public
submissions in response to the proposal.
State significance
A place is of state cultural heritage significance
Railways are good examples of regionally
if its heritage values contribute to our
important places that contribute to our
understanding of the wider pattern and evolution
understanding of Queensland’s development. Consider also the original building at Gayndah
of Queensland’s history and heritage. This Another example of a place of state cultural
In the 19th and early 20th centuries a network State School, erected 1861-1862 and one of
includes places that contribute significantly to heritage significance is the former Stock
of regional railways opened the Queensland the earliest National Schools established in
our understanding of the regional pattern and Exchange Arcade at Charters Towers, erected
interior to pastoral activities, agriculture the new colony of Queensland. It is illustrative
development of Queensland. Many regionally in 1888 as the Royal Arcade and occupied
(including dairying and sugar growing of the instigation and development of secular
significant places highlight the diversity of from 1890 by the Stock Exchange. The arcade
and milling), extractive activities such as education throughout the colony. It is one of the
Queensland’s history and contribute to the became the focus of gold-mining investment
mining and timber-getting and other primary earliest government designed school buildings
representativeness of types of places entered in when Charters Towers was Queensland’s most
industries. Places significant in illustrating the surviving in Queensland, reflecting Board
the Queensland Heritage Register. important goldfield. The place is emblematic of
development of these regional railways are of of General Education recommendations for
Refer to criterion (a) in Part C of this guide for further state heritage significance. For example, the the importance of the discovery of gold to the regulating the standard of Queensland school
discussion of the pattern of Queensland’s history. Normanton Railway Station, constructed c1889 development of North Queensland, being one of buildings, and is a rare example of an early
and opened in 1891, was the railway terminus of only two purpose-built stock exchanges outside 1860s masonry school building in this state.
an important inland railway linking the Croydon the capital, both of which were on goldfields.
goldfield with the river port of Normanton. Its classically derived design illustrates the
wealth and confidence of Charters Towers in the
Places considered to be of state cultural heritage 19th century and it is a rare surviving example of
significance may be entered in the Queensland an early arcade in Queensland.
Heritage Register as State heritage places and
protected under the development provisions of
the Sustainable Planning Act 2009.
In Part C of this guide a number of threshold
indicators for identifying places of state
cultural heritage significance are discussed.
Part A: Overview 6
National significance The World Heritage Convention defines cultural
and natural heritage as follows:
The Commonwealth Government’s Environment
Protection and Biodiversity Conservation Act Cultural heritage refers to monuments,
1999 provides for the establishment of a National groups of buildings and properties with
Heritage List – a register of heritage places of historical, aesthetic, archaeological, scientific,
national cultural and natural significance. ethnological or anthropological value.
Under the provisions of this Act a place is of Natural heritage refers to outstanding
national cultural heritage significance if its physical, biological and geological
heritage values make an outstanding contribution formations, habitats of threatened species of
to our understanding of the pattern and evolution animals and plants and areas with scientific,
of Australia’s history and heritage. conservation or aesthetic value.
Any person may nominate a place to the National The former QANTAS Hangar at Longreach,
Each of the seven Queensland places currently on
Heritage List via the responsible federal minister erected in 1922 – illustrating the western
the World Heritage List has been entered because
(at present the Minister for Environment). Queensland origins of an important Australian
of its natural heritage significance:
and international airline.
Queensland places entered in the National • Australian Fossil Mammal Sites—Riversleigh
Heritage List as at 31 December 2013: • Fraser Island
• Australian Fossil Mammal Sites – Riversleigh • Gondwana Rainforests of Australia—Focal
• Dinosaur Stampede National Monument, World significance Peak Group
Lark Quarry • Gondwana Rainforests of Australia—Main
A place is of world cultural heritage significance if
Range Group
• Elizabeth Springs its heritage values contribute to our understanding
of the pattern and evolution of world history and • Gondwana Rainforests of Australia—Shield
• Fraser Island Volcano Group
heritage and the place is considered to be of
• Glass House Mountains National Landscape outstanding value to humanity.3 • Great Barrier Reef
• Gondwana Rainforests of Australia – Focal • Wet Tropics of Queensland
Peak Group Places considered to be of international cultural
heritage significance may be entered in the World These places are not entered in the Queensland
• Gondwana Rainforests of Australia – Main Heritage List established under the Convention Heritage Register because the Queensland
Range Group concerning the Protection of the World Cultural Heritage Act 1992 makes only oblique provision
• Gondwana Rainforests of Australia – Shield and Natural Heritage (World Heritage Convention), for the conservation of natural heritage. It is
Volcano Group adopted by UNESCO in 1972. Australian not possible to enter a place in the Queensland
• Great Barrier Reef participation in this Convention was ratified Heritage Register solely for its natural heritage
on 22 August 1974. values.
• Ngarrabullgan (Mount Mulligan)
• QANTAS Hangar, Longreach Only the Australian government may nominate A place could, however, be entered in the
Australian places to the World Heritage List. register if the natural (especially aesthetic)
• Tree of Knowledge, Barcaldine values of the place can be demonstrated to have
• Wet Tropics of Queensland been valued by the community over a reasonable
period of time, in the process acquiring historical
or social significance.
If any Queensland place is entered on the World
Heritage List for its cultural (historical) values
rather than its natural values, it also should be
entered in the Queensland Heritage Register and
in the National Heritage List.
3 Convention concerning the Protection of the World
Cultural and Natural Heritage UNESCO 1972
7 Assessing cultural heritage significance—Using the cultural heritage criteriaIn effect the eight criteria listed above are the
Entering places in tests of whether a place is of cultural heritage
the Queensland significance and whether this cultural heritage
significance is of state-level significance.
heritage register Criteria (a) and (h) are used mainly when
assessing the historical significance of a place.
The Queensland Heritage Act 1992 establishes
the criteria for entry of State heritage places in the Criterion (b), which identifies the rarity value of
Queensland Heritage Register, and links cultural a place, can be used to qualify most aspects of
heritage significance with those criteria: cultural heritage significance.
• An entry in the Queensland Heritage Register Criterion (c) is used mainly to assess the scientific
for a State heritage place must include significance (i.e. research potential) of a place
a statement about the cultural heritage but may be applied as a qualifier to other aspects
significance of the place related to the cultural of cultural heritage significance, especially
The Commissariat Stores in the Brisbane
heritage criteria; historical significance.
central business district and the Windmill Tower
• A place may be entered in the Queensland Criterion (d) is used mainly when assessing the at nearby Spring Hill were constructed in the
Heritage Register as a State heritage place if it architectural or historical significance of a place. second half of the 1820s and are the most intact
satisfies 1 or more of the following criteria - of the few surviving sites associated with the
Criterion (e) is used principally when assessing the early convict settlement at Moreton Bay
(a) the place is important in demonstrating the aesthetic or architectural significance of a place. (1824 to 1842). They satisfy criteria (a), (b)
evolution or pattern of Queensland’s history;
Criterion (f) is used when assessing the aesthetic, and (d), being important in demonstrating the
(b) the place demonstrates rare, uncommon evolution or pattern of Queensland’s history
architectural or other (technological) significance
or endangered aspects of Queensland’s by providing rare surviving evidence of the
of a place. Windmill Tower, Spring Hill
cultural heritage; fabric and function of the earliest phase of non-
(c) the place has potential to yield information Criterion (g) deals with the social significance of Indigenous settlement in this state. Therefore
that will contribute to an understanding of a place. they are of historical significance to Queensland
Queensland’s history; and have been entered in the Queensland
(d) the place is important in demonstrating Heritage Register as State heritage places.
the principal characteristics of a particular
class of cultural places;
(e) the place is important because of its
aesthetic significance;
(f) the place is important in demonstrating
a high degree of creative or technical
achievement at a particular period;
(g) the place has a strong or special
association with a particular community
or cultural group for social, cultural or
spiritual reasons;
(h) the place has a special association with
the life or work of a particular person,
group or organisation of importance in
Queensland’s history.
Part A: Overview 8(f) The place or area is important in Figure 1:
Method for determining Entering places in local demonstrating a high degree of creative or
Method of determining satisfaction of criteria
state cultural heritage heritage registers technical achievement at a particular period.
(g) The place or area has a strong or special
specified in the Queensland Heritage Act 1992
significance When assessing places of local cultural heritage association with a particular community (applicable to each criterion)
significance, local governments should use or cultural group for social, cultural or
The application of significance and threshold the definition of cultural heritage significance spiritual reasons.
indicators is an internationally accepted and published in the schedule to the Queensland (h) The place or area has a special association 1. Apply significance indicators
utilised method for determining whether places Heritage Act 1992: with the life or work of a particular person,
i.e. identify the nature of the significance
are of cultural heritage significance. group or organisation of importance in the
cultural heritage significance, of a place of a place and therefore its potential for
area’s history.
The application of significance and threshold or feature of a place, means its aesthetic, satisfying a criterion
indicators can help determine whether places architectural, historical, scientific, social or and the significance indicators identified in Table 1
satisfy the criteria for entry in the Queensland other significance to the present generation may be used to determine local significance.
Heritage Register. This requires a two-stage or past or future generations.
process:
Refer to Part B of this guide for further discussion
1. employing significance indicators to identify the of cultural heritage significance.
cultural heritage significance of a place 2. Apply threshold indicators
It is helpful to establish criteria by which local
2. applying threshold indicators to determine cultural heritage significance can be measured i.e. test whether a place is of
the level of this significance. and significance indicators by which those state-level significance
criteria may be met.
In this guide, the threshold indicators identified
are for state cultural heritage significance. Drawing from the criteria established under
the Queensland Heritage Act for assessing
There are several ‘thresholds’ embedded within
State cultural heritage significance, and the
the criteria for entry in the Queensland Heritage
Register as a State heritage place - in phrases
significance indicators used for determining 3. Satisfaction of
those criteria, the following criteria may be used: criterion determined
such as ‘important in demonstrating’ and ‘strong
or special association’. By applying the two (a) The place or area is important in i.e. the application of significance indicators
stage process of identifying significance and demonstrating the evolution or pattern of qualified by threshold indicators determines
threshold indicators the extent to which a place the local government area’s history. whether a place:
is ‘important in demonstrating’ or has a ‘strong or
(b) The place or area demonstrates rare,
special association’ will be revealed. ‘is important in demonstrating’
uncommon or endangered aspects of the
local government area’s cultural heritage. or
The method for employing significance and
‘demonstrates’
threshold indicators is summarised in the (c) The place or area has potential to yield or
diagram at right. information that will contribute to an ‘has potential to yield’
understanding of the local government or
Table 1, on pages 10-11, provides a summary
area’s history. ‘is important because of’
of significance indicators and state threshold
indicators relative to each criterion and to each (d) The place or area is important or
type of cultural heritage significance defined in demonstrating the principal ‘has a strong or special association with’
under the provisions of the Queensland Heritage characteristics of a particular class of or
Act 1992. Each of these indicators is discussed cultural places. ‘has a special association with’
and exemplified in Part C of this guide. (e) The place or area is important because of its
aesthetic significance to the local community.
These indicators are comprehensive but not
exclusive. Where appropriate, the application of
additional indicators is encouraged.
9 Assessing cultural heritage significance—Using the cultural heritage criteriaTable 1:
Summary of significance indicators and state threshold indicators for the criteria specified under the provisions of the Queensland Heritage Act 1992
Type of cultural heritage Criterion Significance indicators State threshold
significance indicators
Historical significance (a) • Product, result or outcome of an event, phase, movement, process, activity or way of life that has made a strong, • Regional importance
noticeable or influential contribution to the evolution or pattern of development of our society or of our environment. • Earliness
Scientific significance the place is important
in demonstrating the • Example of a process or activity that has made a strong, noticeable or influential contribution to the evolution or • Representativeness
evolution or pattern of pattern of development of our society or of our environment.
• Distinctiveness/
Queensland’s history • Influenced by an event, phase, movement, process, activity or way of life that has made a strong, noticeable or Exceptionality
influential contribution to the evolution or pattern of development of our society or of our environment.
• Rarity
• Has influenced an event, phase, movement, process, activity or way of life that has made a strong, noticeable or
influential contribution to the evolution or pattern of development of our society or of our environment.
• Site of or associated with an event or activity that has made a strong, noticeable or influential contribution to the
evolution or development of our society or of our environment.
• Symbolic association with an event, phase, movement, process, activity or way of life that has made a strong, noticeable or
influential contribution to the evolution or pattern of development of our society or of our environment.
All aspects of cultural (b) • Way of life (including fashion, taste and aspiration) that once was common but is now rare or that has always been • Intactness/Integrity
heritage significance uncommon or is endangered. • Distinctiveness
the place demonstrates
rare, uncommon or • Custom that once was common but is now rare or uncommon or no longer practised or has always been uncommon or • Exceptionality
endangered aspects of is endangered.
Queensland’s cultural • Process that once was common but is now rare or uncommon or has always been uncommon or is endangered.
heritage • Function that once was common but is now rare or uncommon or has always been uncommon or is endangered.
• Land use that once was common but is now rare or uncommon or has always been uncommon or is endangered.
• Design or form that once was common but is now rare or uncommon or has always been uncommon or is endangered.
Scientific significance (c) • Potential to contribute new knowledge about Queensland’s history. • Earliness
Historical significance the place has potential • Potential to contribute knowledge that will lead to a greater understanding of particular aspects of Queensland’s history. • Rarity
to yield information • Potential to contribute knowledge that will aid in comparative analysis of similar places. • Extensiveness
that will contribute to • Intactness
an understanding of
Queensland’s history
Architectural (d) • Exemplifies or illustrates in the surviving fabric: • Intactness/Integrity
significance − a way of life or custom that has made a noticeable contribution to the pattern or evolution of Queensland’s history; • Earliness
the place is important
• Rarity/Uncommonness
Historical significance in demonstrating the − the impact of an ideology, value or philosophy on Queensland’s history;
• Exceptionality
principal characteristics − a process or land use that has made a strong contribution to the pattern or evolution of Queensland’s history;
of a particular class of − a function that has been an important part of the pattern of Queensland’s history;
cultural places − the work of a designer who made an important contribution to Queensland’s built environment;
− an architectural style or form that has made an influential or noticeable contribution to the evolution of
Queensland’s built environment;
− a construction technique or particular use of materials that has made a conspicuous or early contribution to the
evolution of Queensland’s built environment; or
− variations within, or the evolution of, or the transition of, the principal characteristics of a class of cultural places.
Part A: Overview 10Type of cultural heritage Criterion Significance indicators State threshold
significance indicators
Aesthetic significance (e) • Demonstrates or possesses: • Intactness
Architectural the place is important − beautiful attributes; • Integrity
significance because of its aesthetic − natural beauty or other natural aesthetic quality; • Degree of
significance − picturesque attributes; deterioration
− evocative qualities; • Setting and
− expressive attributes; location context
− landmark quality; • Demonstrated
− streetscape contribution; or representation
− symbolic meaning.
Aesthetic significance (f) • Displays artistic value. • Intactness/Integrity
Architectural the place is important • Displays architectural excellence. • Peer recognition/
significance in demonstrating a high • Is innovative or develops new technology. award
degree of creative or • Represents a breakthrough in design or construction technique.
Other significance technical achievement
at a particular period • Is a particularly appropriate solution to a technical problem that extends the limits of existing technology.
• Adapts technology in a creative manner.
Social significance (g) • Important to the community as a landmark, marker or signature. • Length of
• A place which offers a valued customary experience. association
the place has a strong
or special association • A popular meeting or gathering place. • Demonstrated
with a particular extent and degree
• Associated with events having a profound effect on a particular community or cultural group. of community
community or cultural
group for social, • A place of ritual or ceremony. association
cultural or spiritual • Symbolically representing the past in the present. • Significant former
reasons • A place of essential community function leading to special attachment. association
Historical significance (h) • Has a special association with: • Importance of the
− a person who has made an important or notable contribution to the evolution or development of our society or our person, group
the place has a special
physical environment; or organisation
association with
in Queensland’s
the life or work of a − a group of people who have made an important or notable contribution to the evolution or development of our
history
particular person, society or of our physical environment; or
group or organisation − an organisation that has made an important or notable contribution to the evolution or development of our society • Degree or extent of
of importance in or of our physical environment. the association
Queensland’s history • Length of
association
• Influence of the
association
11 Assessing cultural heritage significance—Using the cultural heritage criteriaPart B
Cultural heritage significance
• Defining cultural heritage
significance
• Characteristics
• Aesthetic significance
• Architectural significance
• Historical significance
• Scientific significance
• Social significance
• Other significance
• Significance to past, present
and future generations
• Period of significance
All Saints’ Memorial Church, Tamrookum
Partt B
P B: Cultural
C lt l Heritage
H it Si
Significance
ifi 12It is useful to consider the definitions of ‘cultural’ important adjective 1. of much significance
Defining cultural and ‘heritage’ drawn from the Macquarie or consequence: an important event. 2. of
heritage significance Dictionary 2003 (online edition): more than ordinary title to consideration or
notice: an important example. 3. prominent: an
cultural adjective 1. of or relating to culture or important part. 4. of considerable influence or
cultivation… authority, as a person, position, etc. 5. of social
culture noun 1. Sociology the sum total of consequence or distinction, as a person, family,
ways of living built up by a group of human etc. 6. pompous. 7. Obsolete importunate.
beings, which is transmitted from one importance noun 1. the quality or fact of being
generation to another. 2. a particular state or important. 2. important position or standing;
stage of civilisation, as in the case of a certain personal or social consequence.
nation or period: Greek culture… 3. consequential air or manner.6
heritage noun 1. that which comes or belongs The definitions quoted above permit considerable
to one by reason of birth; an inherited lot or leeway when determining the importance of a
portion. 2. the culture, traditions and national place and therefore its significance. Importance
assets preserved from one generation to and significance are relative concepts,
All Saints’ Church (1919), Darnley Island, another… 6. (also capital) of or relating to
Torres Strait: a place of aesthetic, historical determined by a variety of factors including
classification under a heritage act: a heritage history, locality and community perception.
and social significance. assessment; a heritage building.
A place does not need to be important to
The above indicates that the word ‘heritage’ everyone in Queensland to be of cultural heritage
is now used widely as an adjective applied to significance and worthy of entry in the Queensland
Under the definitions published in the Schedule cultural assets and to work associated with the
to the Queensland Heritage Act 1992: Heritage Register as a State heritage place.
conservation of these assets, attesting to the
cultural heritage significance, of a place strength of the cultural heritage movement in
or feature of a place, means its aesthetic, Australia since the 1970s.
architectural, historical, scientific, social or Qualifying the phrase ‘cultural heritage’ with
other significance to the present generation ‘significance’ implies that there is a process of
or past or future generations. scrutiny and assessment to determine which
In the following pages, the types of significance places, of all that has been inherited from the
identified in the above definition are discussed and past, are worthy of conservation for present and
defined to help interpret the intentions of the Act. future generations.
Australian heritage professionals employ a significance noun 1. importance; consequence.
variety of terms that in effect describe the 2. meaning; import. 3. the quality of being
same quality of a place. ‘Cultural significance’, significant or having a meaning.
‘heritage significance’ and ‘cultural heritage significant adjective 1. important; of
value’ generally are taken to be synonymous with consequence. 2. expressing a meaning;
‘cultural heritage significance’.4 indicative. 3. having a special or covert
meaning; suggestive. 5
In the above definitions of significance, emphasis is
placed on consequence, meaning and importance.
4 cf Marquis-Kyle, Peter & Walker, Meredith The Illustrated 5 Macquarie Dictionary 2003 (online edition) 6 ibid
Burra Charter. Good Practice for Heritage Places Burwood,
Vic: Australia ICOMOS Inc 2004:11
13 Assessing cultural heritage significance—Using the cultural heritage criteriaAesthetic significance These definitions do not suggest that ‘aesthetic’ is
Characteristics of synonymous with ‘beauty’. Instead, they imply a
The following definition of aesthetic significance
cultural heritage is provided in the Schedule accompanying the
judgment or criticism of various different qualities,
which may include beauty. To assume that aesthetic
significance Queensland Heritage Act 1992: and beauty are interchangeable only serves to limit
the understanding of aesthetic significance.
aesthetic significance, of a place or artefact,
To paraphrase from the Burra Charter,7 Australia’s includes its visual merit or interest. Aesthetic qualities are those sensual qualities
premier policy document on cultural heritage, of a place or object that invite judgment against
This definition is inclusive and is not confined
there are four key characteristics of cultural various ideals including beauty, picturesqueness,
to a concern with high standards of beauty. Gold was mined at Mount Morgan from the
heritage significance: evocativeness, expressiveness, grotesqueness or
The concept of ‘visual merit or interest’ implies early 1880s until 1984. From the 1930s open-cut
sublimeness and any number of other descriptors
• Cultural heritage significance relates to and a broad interpretation of aesthetic significance. mining was practised here, and by 1982 the cut
of aesthetic judgment.
is embodied in place – in the fabric, setting, A place may have aesthetic significance if it has had extended approximately 320 metres below
use, associations, meanings, records, related qualities that affect the senses of the viewer or Aesthetic significance may be derived from the original summit of Mount Morgan – the
places and related artefacts. observer. While this is most often expressed in responses to both visual and non-visual aesthetic largest human manufactured hole in Australia.
• The cultural heritage significance of a place terms of visual qualities, aesthetic significance may qualities. Visual qualities include the form, While the Mount Morgan Mine Site is not
may vary for different stakeholders. be judged also in terms of the auditory, olfactory or scale, relationship between components, unity, ‘beautiful’, meaning it does not demonstrate
tangible aspects of a place. contrast, colour, texture and material of the fabric a high degree of careful, considered formal
• The cultural heritage significance of a place
of a place. Non-visual aesthetic qualities include design attributes or other qualities traditionally
may change as the history of the place evolves. The Macquarie Dictionary 2003 (online edition)
sound, smell, taste, touch, feel, sense of place, associated with ‘beauty’, the place has
• Our understanding of the cultural heritage defines aesthetic and aesthetics:
symbolism, or some other quality of a place that overwhelming aesthetic value associated with
significance of a place may change as a result aesthetic adjective 1. relating to the sense of impacts on our senses and draws an aesthetic or the awe inspiring industrial landscape, which
of new information. the beautiful or the science of aesthetics. emotional response.8 has transformed the natural land form into an
2. having a sense of the beautiful; characterised unnatural and barren place, evoking a strong
by a love of beauty. [Greek aisthetikós perceptive] sense of remoteness. This is heightened by
the obvious remains of extraordinary human
aesthetics noun 1. Philosophy the science
endeavour. Although Mount Morgan Mine
which deduces from nature and taste the
Site does not display characteristics of beauty
rules and principles of art; the theory of the
per se, it evokes a strong sensually derived
fine arts; the science of the beautiful, or that
response that does not necessarily rely on prior
branch of philosophy which deals with its
knowledge of the history of the place but which
principles or effects; the doctrines of taste.
can be heightened by that knowledge.
2. Psychology the study of the mind and
emotions in relation to the sense of beauty.
7 At its meeting of 28 January 2005 the Queensland
Heritage Council formally adopted the principles of the
Burra Charter:
RESOLUTION NO. 171.10
The Heritage Council resolved to adopt The Burra Charter: 8 Guidelines to the Burra Charter: Cultural Significance
The Australia ICOMOS Charter for Places of Cultural Australia ICOMOS 1988; Paraskevopoulos 1993:79 in
Significance 1999 including Guidelines to the Burra Ramsay, J and Paraskevopoulos, J (eds) 1994 More than
Charter: Cultural Significance, Guidelines to the Burra Meets the Eye: Identifying and Assessing Aesthetic
Charter: Conservation Policy, Guidelines to the Burra Value, Report of the Aesthetic Value Workshop held at the
On the other hand, places may exhibit aesthetic
Charter: Procedures for Undertaking Studies and Reports University of Melbourne on 27 October 1993 Australian qualities readily associated with ‘beauty’,
and the Code on the Ethics of Co-existence in Conserving Heritage Commission Technical Workshop Series No.7; created by the formal balance and unity of
Significant Places as guidelines for making decisions Australian Heritage Commission Protecting Local Heritage design, components, materials and textures.
under the Queensland Heritage Act 1992. Places: a guide for communities Canberra: AHC 2000
Part B: Cultural Heritage Significance 14Working within the context of the Queensland Architectural significance Architectural significance is associated most
Heritage Act 1992 and the definitions of ‘aesthetic’ closely with:
and ‘aesthetics’ above, the following interpretation No definition of architectural significance is made
of aesthetic significance has been developed: in the provisions of the Queensland Heritage criterion (d): the place is important in
Act 1992, nor in the Schedule or Regulation demonstrating the principal characteristics of a
A place may have aesthetic significance if accompanying the Act. particular class of cultural places;
that place exhibits sensual qualities that can
be judged against various ideals including The Macquarie Dictionary 2003 (online edition) criterion (e): the place is important because of its
beauty, picturesqueness, evocativeness, defines architecture and architectural as: aesthetic significance;
expressiveness, landmark presence, and
architectural adjective 1. of or relating to
symbolism or some other quality of nature or
architecture. 2. conforming to the basic criterion (f): the place is important in
human endeavour.
principles of architecture. 3. having the demonstrating a high degree of creative or
Under the provisions of the Act, aesthetic qualities of architecture. technical achievement at a particular period.
significance is associated most closely with
architecture noun 1. the art or science of This significance can be determined through the
criterion (e): the place is important because of its
building, including plan, design, construction, application of significance and threshold indicators.
aesthetic significance.
and decorative treatment. 2. the style of
Determining aesthetic significance is the building. 3. the action or process of building; Refer to the discussions of criteria (d), (e)
process of identifying the significant aesthetic construction. 4. a building. 5. buildings and (f) in Part C of this guide for how to apply
attributes of a place. These attributes may be collectively. 6. structure or design. significance and state threshold indicators
qualities of beauty (including natural beauty), relating to architectural significance.
Toowoomba City Hall (1900) exemplifies this Working within the context of the Queensland
the picturesque, the evocative, the expressive,
aspect of aesthetic significance. The ornately Heritage Act 1992 and the definitions of
landmark presence, symbolic value, or other
decorated street façade with its classical ‘architecture’ and ‘architectural’ above,
aesthetic quality.
detailing and imposing clock tower is well the following interpretation of architectural
composed and visually pleasing. These attributes and their significance can significance has been developed:
be determined through the application of
A place may have architectural significance if
significance and threshold indicators.
it is important in demonstrating the principal
Refer to the discussion of criterion (e) in Part C characteristics of architectural planning,
of this guide for how to apply significance design, style, decorative detailing or
and state threshold indicators relating to construction technique of a particular class of
aesthetic significance. cultural places, or in demonstrating innovation
or extrapolation in terms of architectural
planning, design, style, decorative detailing or
construction technique.
Determining architectural significance is the All Saints’ Memorial Church, Tamrookum,
process of identifying the principal architectural constructed for the RM Collins family in
characteristics of a place and deciding if these 1915, is an important work by significant
characteristics are important in understanding a Queensland architect RS Dods, demonstrating
class of cultural places in terms of its architecture his skill at designing in timber and his
or architectural innovation or extrapolation, personal style. The accomplished design, the
and the significance of this in the pattern and high quality of the materials and workmanship
evolution of Queensland’s history. and inventive detailing combine to produce a
unique aesthetic achievement.
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