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Australian Capital Territory (Planning and Land Management) Act - National Capital Planning Authority - Report for period 31 January to 30 June 1989

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Α Α Α Α Α Α Α Α Α Α Α Α Α Α First Annual Report 31 January - 30 June 1989


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aaaaaaaaaaaaaa First Annual Report 31 January - 30 June 1989


Australian Government Publishing Service Canberra

© Com m onwealth of Australia 1989

ISSN 1034-4020

This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without written permission from the Director, Publishing and Marketing AGPS. Inquiries should be directed to the Manager, AGPS Press, GPO Box 84, Canberra, ACT 2601.


No: 292 of 1989 Ordered to b e printed by authority _________ ISSN 0727-4181

Cover: AGPS Design Studio, stock recycled board.

Typeset and Printed in Australia by Canberra Publishing & Printing Co., Fyshwick, A.C.T.

The Hon A.C. Holding, MP Minister for the Arts, Tourism and Territories Parliament House Canberra ACT

In accordance with the provisions of Section 50 of the Australian Capital Territory (Planning and Land Management) Act 1988,1 have pleasure in submitting the first Annual Report of the National Capital Planning Authority, covering the period since its establishment on 31 January 1989 to 30 June 1989.

Yours sincerely

R. B. Lansdown, CBE Chairperson




The Establishment of the Authority 1

A Program of Action 3

National Land 6

The National Capital Plan 8

Major Issues for the Plan 13

Implementation and Review 14

Capital Works Program 15

Architecture and Urban Design 16

Environmental Planning 18

Transport Planning and Engineering 21

Studies, Surveys and Consultations 21

Information Service 23

New Publications 24

Public Information 25

Organisation and FOI 26


A NCPA Organisation Chart 29

B Financial Statements 30

C Planning Variations and Referrals 45

D Publications 45



The Establishment of the Authority The National Capital Planning Authority was established on 31 January 1989 when the Australian Capital Territory (Planning and Land Management) Act 1988 came into effect. The Authority took over the

National Capital planning responsibilities which had, since 1958, been exercised by the National Capital Development Commission (NCDC), which was abolished on 30 January 1989.

The task of the NCDC had been to 'plan, develop and construct' Canberra as the National Capital, while the responsible Common­ wealth Department, under various names, carried out the remain­ ing functions of local administration.

By 1988 a full Territorial fiscus had been established in anticipation of self-government for the ACT. In 1989 the Government proceeded to establish an ACT Government, with a clear separation of Com­ monwealth and Territorial responsibilities. The NCDC's functions were then divided between the two governments.

Certain planning and development functions were transferred to the ACT Government which was required under the ACT (Planning and Land Management) Act to establish a Territory Planning Auth­ ority. The interests of the people of Australia as a whole in the

planning and development of the National Capital were to be protected by the creation of a new body, the National Capital Planning Authority, answerable to the Parliament of the Common­ wealth.


The functions of the Authority as set out in the Act are: (a) to prepare and administer a National Capital Plan; (b) to keep the Plan under constant review and to propose amend­ ments to it when necessary;


M r A.S. Blunn chairs a meeting of the Interim National Capital Planning Authority.

(c) on behalf of the Commonwealth, to commission works to be carried out in Designated Areas in accordance with the Plan where neither a Department of State of the Commonwealth nor any Commonwealth authority has the responsibility to commis­ sion those works; (d) to recommend to the Minister the carrying out of works that it

considers desirable to maintain or enhance the character of the National Capital; (e) to foster an awareness of Canberra as the National Capital; and (f) with the approval of the Minister, to perform planning services for any person or body, whether within Australia or overseas.


On 31 January 1989, an Interim Authority was appointed for the NCPA. It consisted of an Acting Chief Executive and an Acting part­ time Chairperson and part-time Members seconded for the purpose from the Australian Public Service. The Interim Authority was constituted as follows:

Acting Chairperson Mr A.S. Blunn, AO, Secretary Department of the Arts, Sport, the Environment, Tourism and Territories (DASETT).


Acting Members Mr H.B. MacDonald, DASETT Mr G.R. Dempster, DASETT

Acting Chief Executive Mr M.P Smith

Mr MacDonald resigned from the Interim Authority in April 1989 when he was appointed Administrator of Norfolk Island.


The staff of the Authority was initially established at 35 officers. These comprise a multidisciplinary team consisting of town plan­ ners, architects, engineers, environmentalists, technical officers and administrative staff. A small number of specialised consultants and agents has been employed for particular projects. An organisation chart is presented on page 29 of this Report.


Immediately after its establishment, the Authority occupied premises at 220 Northbourne Avenue, Braddon.

Since 5 June 1989 the Authority has occupied its own offices at 10-12 Brisbane Avenue, Barton. The new offices were officially opened on 19 June by the Minister for the Arts, Tourism and Territories, the Hon Clyde Holding, MP.


On appointment, the Interim Authority made certain temporary arrangements pending the completion and authorisation of the National Capital Plan, recognising that established NCDC policies were required by Section 62 of the Act to continue to be in force in

the intervening period.


The Hon. Clyde Holding, Minister for the Arts, Tourism and

Territories officially opens the Authority's new Barton offices. Acting Chief

Executive Malcolm Smith is in the background.


After consultation with the Interim Territory Planning Authority, the NCPA identified on a map circulated to all local and national government agencies areas in which it had an interest. These were called 'Areas of National Capital Interest'. The ACT Administration and other government departments and authorities were advised that until a formal Memorandum of Understanding had been signed, or the National Capital Plan authorised, all proposals for land use planning, land development, or the construction of works must be referred to the Authority if they affected land identified as 'Areas of National Capital Interest'.

The Interim Authority also decided to publish the National Capital Plan in two volumes, the first of which would be a draft which would propose the parts of the ACT which should be declared



Designated Areas. These would be areas having the special charac­ teristics of the National Capital and in which the National Capital Planning Authority (NCPA) would be the planning authority. As Section 10 of the Act provides, the Authority will 'set out the detailed conditions of planning, design and development in Desig­ nated Areas and the priorities in carrying out such planning, design and development.' This part of the Plan was to be published in July


Simultaneously, the members of the Interim Authority and of the staff discussed in detail the priorities that should be adopted in developing the remainder of the Plan, to be published as soon as possible in a second volume.

Study of the Act showed that the Authority's future work had to be set in the context of a careful understanding of the concept of National Land and the action already taken by the Commonwealth Government in this respect. It was decided that since the National Capital Plan had to be produced within a relatively short time, it would be impossible to conduct immediately a comprehensive review of policies that currently applied. The decision was therefore adopted to develop a practical Plan as soon as possible in the light of the major issues that were perceived as relevant for the next decade; and that once a legal Plan had been established, a far-reaching review would immediately be started.

The following sections outline the Authority's priorities and con­ cerns in preparing a National Capital Plan and providing for its monitoring and thorough review.

National Land The ACT (Planning and Land Management) Act 1988 sets out the arrangements to apply under Self-Government for the planning, development and management of land in the Territory. The Act lays down the following fundamental provisions:


(a) The Commonwealth retains the ownership of all land in the ACT. For the Commonwealth to do otherwise would require an amendment of Section 125 of the Australian Constitution, which provides that the Territory set aside for the Seat of Government shall be vested in and belong to the Commonwealth. The Commonwealth owns the Territory in which the National Capital is situated, on behalf of all Australians. (b) Reflecting the Commonwealth's continuing ownership of the

land in the Territory, the Seat of Government (Administration) Act 1910, states, at Section 9, that no Crown land in the Territory shall be sold or disposed of for any estate of freehold. In consistency with this provision, the ACT (Planning and Land Management) Act 1988 provides for continuation of the leasehold

system of land tenure and for leases generally to be for fixed terms to a maximum of 99 years. (c) The Act provides for specified areas of land in the Territory to be set aside for the Commonwealth's own use. This land is called

National Land. (d) Any land which is not declared or deemed by the Minister to be National Land, is Territory land, managed by the Executive of the Territory Government, on behalf of the Commonwealth.

The Executive of the Territory Government has the authority to grant, dispose of, acquire, hold and administer estates in Territory land within the constraints that these estates be leasehold and shall not generally be granted for a term exceed­

ing 99 years.

On 2 March 1989, the Minister for the Arts, Tourism and Territories, the Hon. Clyde Holding, MP, acting on behalf of the Commonwealth, declared specified areas of the Territory to be National Land.

In so doing the Minister was creating in the ACT an arran­ gement virtually identical with the Commonwealth's occupancy of land in the States, i.e. the land was set aside for Common­ wealth purposes and can be used and disposed of by the Commonwealth largely as it sees fit.


This is an administrative arrangement intended to ensure that the Territory Government has the freedom to manage and administer the land throughout the Territory, while not hinder­ ing the proper conduct, by the Commonwealth, of its own affairs.

The National Capital Planning Authority had no involvement in or responsibility for the declaration of National Land. The decisions about which land was to be National Land were made by the Minister for Administrative Services and the Minister for the Arts, Tourism and Territories in consultation with the ACT Administration.

The National Capital Plan The major element in the ACT (Planning and Land Management) Act 1988 is its establishment of the legal arrangements for planning for the future development of the Territory.

The Act requires that there shall be a National Capital Plan prepared by the NCPA and also a Territory Plan prepared by a Territory Planning Authority. The Act also requires that the Territory Plan shall not be inconsistent with the National Capital Plan.

The Act states: The object of the National Capital Plan is to ensure that Canberra and the Territory are planned and developed in accordance with their national significance.'

It also states: The object of the Territory Plan is to ensure, in a manner not inconsistent with the National Capital Plan, the plan­ ning and development of the Territory to provide the people of the Territory with an attractive, safe and efficient environment in which to live and work and have their recreation.'


National Capital Planning Authority's new offices at 10-12

Brisbane Avenue, Barton.

In identifying matters to be covered in the National Capital Plan, the Act requires that the Plan shall:

• ‘define the planning principles and policies for giving effect to the object of the Plan and, in particidar, shall set standards for the maintenance and enhancement of the character of the National Capital and set general standards and aesthetic principles to be adhered to in the development of

the National Capital; • ‘set out the general policies to be implemented throughout the Territory, being policies of: (i) land use (including the range and nature of permitted land use); and

(ii) the planning of national and arterial road systems.' The Act also provides that the Plan may: • 'specify areas of land that have the special characteristics of the National Capital to be Designated Areas'; • 'set out the detailed conditions of planning, design and development in

Designated Areas and the priorities in carrying out such planning, design and development'; and • 'set out special requirements for the development of any area (not being a Designated Area), being requirements that are desirable in the interest of

the National Capital.' It should also be noted that in the Definitions applying to the whole Act, the term 'land' includes water.


Section 11 requires the Commonwealth as well as the Territory Government to act in a manner consistent with the Plan. That provision states that:

'The Commonwealth, a Commonwealth Authority, the Territory, or a Territory Authority shall not do any act that is inconsistent with the Plan.'


To clarify those areas of the Territory where the National Capital Planning Authority would be the decision-making body with re­ spect to development, it was decided that the Plan should be issued in two volumes and that Volume 1 would set out the Authority's draft proposals for areas to be designated, that is, identified as having the special characteristics of the National Capital and thus to be under the direct planning and development control of the National Capital Planning Authority.

The Act provides that once an area has been specified as a Designated Area, and approved after a process of public consulta­ tions, no works can be performed in that area unless the proposal to perform the works has been submitted to the Authority, the Authority has approved the works in writing, and the works are in accordance with the Plan. In other words, in Designated Areas the National Capital Planning Authority is responsible for development control as well as broader planning policy.

Revenues from Territory land in Designated Areas, however, remain revenues which accrue to the Territory Government.

Outside Designated Areas, development control will normally be the responsibility of the Territory Government.


Proposed Designated Areas identified in Volume 1 of the National Capital Plan encompass three broad categories of land, which are: the Central National Areas which display the most evident characteristics of Canberra as the National Capital and Seat of

Government ^ the Avenues, which are regarded as critical features of the Griffin Plan, and ^ the National Capital Open Space System, which is regarded as

establishing a uniquely Australian character for Canberra as a National Capital as well as a unique setting for development both of the central national area and of the metropolitan area as a whole.

Public consultation on the proposed Designated Areas, in the Territory and throughout Australia, is to begin in July. The Auth­ ority will make final recommendations to the Minister on this aspect

of the Plan later in 1989.

Work is also proceeding on the preparation of Volume 2, which will cover, among other things, general land use policies and policies with respect to the national and arterial road systems. These policies will provide the general land use framework within which the Territory Government will undertake its responsibility for detailed land use planning.

The planning principles and policies for giving effect to the object of the Plan are also to be specified in the second volume of the Plan.

In addition, the Plan will set out special requirements to be satisfied in particular locations, which will form a framework within which development in that area must take place. Such requirements will specifically guide the activities of organisations involved in the

development of that area, including Commonwealth and Territory Government organisations.

Ideally, the next volume of the National Capital Plan should encompass a comprehensive review of many of the former National Capital Development Commission's policies, especially those with


respect to m etropolitan developm ent and growth strategy. However, the Act specifies (Section 57) that 'When the Governor- General is satisfied that the National Capital Plan sufficiently covers the Territory, the Governor-General shall, by Proclamation, declare that the transition period ends on the day specified in the Proclama­ tion' and that 'The day specified shall not be later than one year after Self-Government Day.' That time limit on the preparation of the National Capital Plan clearly would not permit such a rigorous and fundamental review, particularly given that the Authority would want to undertake that review in a consultative manner and with full participation of the Territory Government.

To attend to a wide-ranging review of policy within a very short time would put at risk the achievement of the fundamental statutory requirement that a National Capital Plan be in place within twelve months.

The Authority therefore decided to assess and examine the ap­ plicability, value and relevance of current metropolitan planning policies and other NCDC policies and to accept the principal policies as the essential elements of a National Capital Plan. This acceptance would be subject to a subsequent fundamental review once the statutory requirements of producing the first plan have been met.

The Authority is assessing current policies for incorporation in the first National Capital Plan with certain standards in mind:

A the relevance of those policies to the national significance of Canberra, having regard to the structure of Walter Burley Griffin's design, the landscape setting, the Parliamentary and central areas and the emphasis given to the major avenues and approaches to the city A the cost effectiveness of particular policies in their application at

the scale of metropolitan development ^ the robustness of the plan in terms of its capacity to accom­ modate the growth and change likely to occur over the next ten years.

After establishing a legal plan, the Authority will begin the policy reviews which are required to replace the former NCDC policies incorporated into the National Capital Flan.

Major issues for the plan The Authority believes the following to be the main issues of the next decade which need to be provided for and accounted for in the context of the Plan:

^ the continuing urban expansion of metropolitan Canberra. The Auth­ ority's view is that, with very few exceptions, the fundamental principles and structures which underpin the 1984 Metropolitan Policy Plan should be those which become the basis of general land use policies and policies with respect to national and arterial roads in the first National Capital Plan.

The Plan recognises that the general land use policy for the development of metropolitan Canberra should be that the city will consist of a series of separate towns flanked by peripheral parkways or major arterial roads; each town having its own centre and each town its own local and substantial concentration of employment.

In terms of accommodating the demands of the next decade the current metropolitan plan structure, incorporating the proposed town of Gungahlin, provides sufficient capacity and capability to accommodate forecast population and employment growth. It is not intended that Volume 2 of the National Capital Plan should propose major divergences from this fundamental struc­ ture.

A the pattern of employment distribution proposed for the Metropolitan Area and in particular the location of government offices. The Auth­ ority supports the Commonwealth Government's policy on government offices which gives priority to locating employment in town centres, thus protecting the Central Area and reducing the need to provide public infrastructure in and around Civic and the Central Area.

± the future scale of development in Civic and the Central Area. The scale of employment and the general character of these areas will be of prime importance from the point of view of their National Capital significance. It will remain a principle of the National


Capital Plan that the core areas of Canberra which express the status, dignity, and significance of the National Capital should not suffer damage in the long term.

A the possible impact of the Very Fast Train. The National Capital Plan will address the issue of route options for the Very Fast Train and therefore of the consequent land use policies which will need to emerge when a final route is selected.

A the resolution of the transport problems raised by the future development of Gungahlin. The conclusions arrived at as a result of the Gungahlin External Transport Study will need to be implemen­ ted.

Implementation and Review The major challenge to be met by the Authority in preparing the National Capital Plan is that of ensuring that the Plan is effective in a new governmental, legislative and administrative environment.

With the introduction in 1989 of self-government in the Australian Capital Territory, new rules apply, new concepts and new ways of managing must apply, and new planning and design environments will apply.

In bringing forward the ACT (Planning and Land Management) Bill, the Government stated that, among other things, it was intended to:

'. · . ensure that the Commonwealth will not be required to take financial responsibility for other than its National Capital interests and, conversely, ACT citizens have the same financial respon­ sibilities as Australians everywhere for local planning and develop­ ment matters.'

The Authority will therefore need to develop a comprehensive vision of the future development of the National Capital and will also need to articulate that vision in comprehensible and persuasive terms to successive elected governments.


Capital Works Program During the period from 31 January 1989 to the end of the financial year, the Authority committed works to the value of $3.8M, includ­ ing the Lakeshore Promenade, roadworks, landscaping and aug­ mentation of services. All these works were carried over from designs being developed by the former NCDC.

A preliminary three-year construction program has been developed, on the basis of which funding has been sought for 1989-90.


The first project in the Parliamentary Zone to be undertaken by the Authority will be constructed on the southern shore of Lake Burley Griffin.

Senator Kerry Sibraa, President of the Senate, at the inauguration of the new Lakeshore Promenade project.

Canberra Times photo


After Lake Burley Griffin was filled in 1964, there was uncertainty about the site of the new Parliament House. For some years, the unofficial site was on the shore of the lake, and until a permanent site was determined by Parliament, no further work could be done on the lake foreshores. Consequently, the southern shore in the Parliamentary Zone was relatively neglected in terms of landscape design.

Now that the new Parliament House has been built on Capital Hill, the Authority has taken the opportunity to gain the approval of Parliament for improvements on the southern foreshore which will benefit visitors and workers in the Parliamentary Zone. The Lake- shore Promenade will extend for 800 metres along the shoreline, from the Australian National Gallery to the National Library of Australia. The project will cost $1.7M and will provide lighting, paving, benches and the planting of grass, shrubs and trees.

The present temporary bicycle path will be replaced by a permanent one which will make it safer for cyclists and pedestrians. There will also be alterations to visitor car parks.

The upgrading will provide shade in summer and benches from which the views across the lake can be enjoyed. Completion is scheduled for the summer of 1989-90.

Architecture and Urban Design The Architecture and Urban Design Sections both made considera­ ble contributions to the development of Volume 1 of the National Capital Plan and helped with the early drafting of Volume 2 during the period under review.

Other projects undertaken during this period include:

A the detailed design development of infrastructure works for further stages of work in the Parliamentary Zone; A the National Memorial to the Australian Army in Anzac Parade and design of the Merchant Navy Memorial for Kings Park;


final stages of improvements to the viewing area on the summit of Mount Ainslie; ^ planning studies for the Russell Defence complex; a Master Plan for a staged development of Kings Park.

The Sections also dealt as required with design and siting applica­ tions and matters of policy interpretation referred to the Authority by the Interim Territory Planning Authority. Most of these related to proposals for development within the proposed Designated Areas.

The Urban Design Section of the Authority provides the focus of broader scale physical planning at the town and district level. As a consequence of Canberra's unique layout and its integration of the built and landscaped environment, the Section has been staffed with professionals who have specialist skills in landscape and urban

design, but also have an added capacity to work across traditional professional boundaries. The Traffic Engineering and Environmen­ tal Design Sections function separately but are called in to address particular problems.

The President of the Senate, Senator Kerry Sibraa and Senator Bob McMullan and

Senator Margaret Reid at the inauguration of the Lakeshore Promenade project.


In this first year of the NCPA, the Section has conducted studies and managed projects for Barton, Russell, the Parliamentary Zone, and for the development of forward planning in North Canberra.

A further major area of activity has been in the development of the historical and policy considerations for areas to be Designated under the National Capital Plan.

Braddon Sections 18 & 19 Following an Urban Design Study the Authority prepared a Draft Variation to the NCDC's Policy and Draft Implementation Plan for Sections 18 and 19, Braddon. The Draft Variation was released for public comment on 29 June 1989 with the closing date on 14 July.

The Civic Policy Plan (January 1989) in relation to those Sections had sought to provide opportunities for offices and visitor accommoda­ tion which could benefit from a frontage to a main approach road to the city. Northbourne Avenue was also named as a growth corridor to accommodate the long-term expansion of Civic.

The Draft Implementation Plan stated the urban design objectives for the Avenue as a whole and gave the particular development guidelines for Sections 18 and 19, Braddon.

A summary of issues raised during public consultation will be considered by the Authority before final determination of the Draft Variation/Implementation Plan.

Environmental Planning The Authority seeks to ensure that the planning and development of the National Capital is undertaken in a way which harmonises with the natural and cultural environment and conserves important natural resources. This planning conforms to international and Australian conservation strategies and reflects the environmental expectations of the community. The Authority believes that effective environmental planning which covers the protection of environ­ mental quality, environmental assessment, and conservation of the


National Capital Open Space System, is best achieved by integrating environmental considerations into the overall planning of the National Capital.

In practical terms, during the period under review the Environmen­ tal Planning Branch has reviewed and documented all major aspects of Canberra's environment, provided detailed contributions to the National Capital Plan, and continued to monitor the environment and to assess all major developments in terms of their potential effects on the character of the National Capital.

Specifically, in 1989 the Authority compiled a report on the state of the environment entitled Canberra's Environment 1989. This report summarised the ACT environment and outlined those aspects of it where protection is needed and where opportunities exist for the wise use of our resources.


Air quality in Canberra has been reviewed by the Authority up to 1988. The trends in air quality between 1982 and 1988 have been determined and it has been found that the number of days on which air pollution actually exceeds recognised standards is currently very low. Air quality models have also been used to predict the effects of motor vehicles on air quality in town centres. Further work is looking at the growth of the National Capital and the implications this will have for air quality issues related to health and visible haze.

Water quality is closely linked with the nature of urban develop­ ment. To achieve a balance between development and the environ­ ment in the National Capital, the Authority is examining trends in

water quality and the nature of urban development in the context of the ACT Water Use Plan.

Noise from traffic is a major component of community noise in the National Capital. A review of residential, town centre and open space areas affected by noise has been used to determine the emerging issues for Canberra's environment. As Canberra grows,

the Authority will be cooperating with the ACT Administration in


looking at the noise implications of metropolitan structure and the use of appropriate standards to guide development in the National Capital.

Other strategic issues for the National Capital include energy use, waste generation and disposal, and phenomena such as the Green­ house Effect. These issues and their relationships with the National Capital environment are being considered by the Authority in relation to the National Capital Plan and the approval of works.


The ACT contains a diversity of plant and animal communities and species which constitute a valuable ecological resource. While there is still little known about some plants and animals, much valuable information is available from the many ecological studies that have been carried out in the ACT. The Authority is compiling a comprehensive overview of the ecological resources of the National Capital which draws together this information with particular emphasis on the information derived from studies over the last ten years. That information will be used to examine the conservation status and requirements of the Territory's ecological communities, animal habitats, and uncommon or rare plants and animals.

One fauna group on which considerable information is now available is the birds. The Canberra Ornithologists Group, on behalf of the Authority, is completing a three-year study on the birds of the ACT. This is based on intensive surveys of the presence and breeding status of all species of bird throughout the Territory. The survey data are being analysed using a computer database.

A study of the significant natural and cultural sites in the ACT has now been largely completed. The eighth volume in a series of reports on Sites of Significance in the ACT, covering the Cotter River catchment, was launched in April during Heritage Week. Work is well advanced on the final stage of this project, covering sites in the Gudgenby area.


Transport Planning and Engineering The Authority's work on transport planning during the first five months has consisted of technical input to the Gungahlin External Transport Study and to the processes of developing the National Capital Plan, and in particular the engineering and transport planning aspects.

The decision to construct new facilities at the Russell Defence complex made it necessary to revise aspects of the Russell Master Plan, to review the arrangements for parking and access, and to consider the feasibility of alternative parking strategies.

With the advent of self-government, it was necessary to establish lines of communication and liaison with a wide range of bodies concerned with matters of transport and engineering. Considerable time had to be devoted to establishing these relationships and in evaluating the appropriate role of the Authority.

The Authority inherited from the former NCDC some partly completed studies on metropolitan transport issues and on acces­ sibility. These projects were completed.

Work has also begun on gaining an understanding of the 'green­ house' or global warming effect and what its effects may be on the Authority's aspirations for the future of the National Capital.

Studies , Surveys and Consultations GUNGAHLIN

The Authority has assumed responsibility for the Gungahlin External Travel Study, and in May 1989 published an Information Report for public reference.



Current planning proposals envisage the development at Gungahlin of Canberra's fourth new town which is likely, on present predictions, to house some 85000 people when complete. This will present major problems for travel routes, and the Study is intended to enlist interested people in a public consultation on the various possible solutions. The report is an indispensable source of information on the issues at stake.


With the completion of the new Parliament House, attention has again focused on the Parliamentary Zone. In 1986 the NCDC published a Development Plan for works in the Zone, as a result of which a site was chosen for the National Science and Technology Centre and the building was constructed.

When the provisional Parliament House was vacated, the Govern­ ment decided that it would be developed into a museum of political history. The building would accommodate an educational centre for the Australian Electoral Commission, a Government Information Centre and the headquarters of the Australian Heritage Commis­ sion.

These developments have highlighted the need for a continuing implementation program for the Zone, particularly for traffic circulation, landscaping and parking. This information was in fact asked for by the Government before the NCDC was abolished.

The Authority has therefore responded to this request and has prepared a comprehensive program for the progressive implemen­ tation of the Development Plan over the next two years, with the aim of completing the most important works in time for the Centenary of Federation in 2001.


The proposals include completing the Lakeshore Promenade, building the Mall roads, and completing landscaping, roadworks and parking around and near the provisional House.

This program will bring together the Zone and the new House in a unified plan and will also encourage better use of the facilities and tourism attractions of the Zone. At the same time the plan creates a firm framework which will be able to accommodate future needs as they arise.

Information Service The ground floor of the Authority's new offices now houses the National Capital Planning Authority Information Service. This consists of the library, the photographic collection, and the NCPA


The library collection covers broadly all aspects of urban planning and development, including architecture, landscape architecture, traffic engineering and urban economics. It also contains much of the planning and development history of Canberra in some 3000

technical reports.

The Library which is the heart of the Authority's Information Service.


The photographic collection, which includes 35mm slides, trans­ parencies, colour and black and white prints and negatives, makes up a comprehensive pictorial history of the development of Canberra.

The Information Service has access to the Australian Bibliographic Network and to other specialised national and international data bases. It can offer the Authority wide references and current awareness facilities; and a similiar service is available, for a subscription, to consultants and private enterprise.

New Publications The Authority inherited part of the former National Capital Development Commission's publications program (and some of their stock of books and publications).

Seven volumes had already been published in the series Sites of Significance in the ACT. In April 1989, the Authority published the eighth volume in the series, covering the Cotter River Catchment (Technical Paper 56). The sites described are those with significance from the point of view of history, anthropology, prehistory, geology, geomorphology, botany, zoology and so on and therefore include both natural and cultural sites. This series provides both specialists and the general public with descriptive lists of features and characteristics which need to be conserved and protected, or where development is required to be especially careful and sensitive.

A further publication by the Authority was Canberra's Environment 1989 (June 1989). Produced by the Authority's Environmental Planning Branch, this volume records the results of a study of Canberra's environment under four headings: the air, the waters, the ecological and cultural resources, and the city.


This publication was launched on World Environment Day, 5 June, by the Minister for the Arts, Sport, the Environment, Tourism and Territories, Senator Richardson. Canberra's Environment 1989 brings together for the first time in one publication important information about the state of the city's environment and pinpoints the areas which may be a cause for concern if current trends are not corrected.

Public Information The Authority's major outlet for purposes of public information is the Regatta Point National Capital Planning Exhibition. The Exhibi­ tion attracts not only many thousands of school children, students on educational tours and overseas visitors, but has also become a

favourite first stop for tourist coach tours of the National Capital.

Since Regatta Point now receives well over a quarter of a million visitors every year (over 340 000 in 1988) the plans, models, photographs and audio-visual displays there are a most important means of explaining Canberra and the national interest in it.

Part of the Exhibition Building has now been converted into a small bookshop for the sale of Authority publications and other material that explains and promotes the National Capital aspects of the city. This is proving both popular and profitable. Gross weekly sales as at

30 June 1989 had reached $5000.


Much more can be done to inform tourists from overseas about the national significance of the ACT, but it is probably more important from the point of view of the Authority (as distinct from tourism bodies) to find ways of improving the sense of identity between the Australian people as a whole and their National Capital.

The Authority took a step in this direction by taking part in the Sydney Holiday and Travel Show as part of a public sector National Capital attractions exhibit. The Authority published a new brochure


Welcome to the National Capital which illustrated the National Capital attractions operated by Commonwealth agencies; it also put on display a large model of the Parliamentary Zone. Over three days, more than 40 000 people visited the Show and, through discussions with visitors to the stand, useful information was gained about public perceptions of the National Capital.

Organisation and FOI ESTABLISHMENT

The National Capital Planning Authority (NCPA) was established under the Australian Capital Territory (Planning and Land Management) Act 1988.


The Authority is constituted by a Chairperson appointed in accordance with Section 33(4) of the Act, together with a separate Chief Executive and three non-executive members. All except the Chief Executive are part-time members. The structure of the Authority is set out in the organisation chart.


The functions of the Authority as set out in the Act are stated at the beginning of this Report.


Section 8 of the Freedom of Information Act 1982 requires all Government agencies to publish a statement setting out their organisation's role, structure, functions, documents available for public inspection, and facilities for access to such documents.


This statement is correct to 30 June 1989.


Individuals or organisations may participate in policy formulation by making representations to the Minister, by responding to draft plans, proposals or exhibitions, or by contact with the Authority's Government and Community Relations Branch. Liaison is main­ tained with the Joint Committee on the ACT, the ACT Government, and other organisations and individuals.


The Authority has no registers or similar documents open to the public on payment of a fee.

Documents Available For Purchase by the Public. Reports and technical papers giving information on NCPA policies and projects and audiovisual presentations are available.

Documents Available Free of Charge Upon Request. These documents include a wide range of information leaflets.

Documents Which May Be Made Available Under the Freedom of Information Act. The Authority holds records and files relating to administration, correspondence, contracts, management matters,

finance, staff, plans and projects, agendas and minutes of meetings of the Authority.


Documents available to the public may be obtained on request from the Authority's office, inspected at its library or, in most cases, obtained at the National Capital Planning Exhibition at Regatta Point. Facilities for inspecting documents provided under the Freedom of Information Act are available in the Authority's office.



Inquiries about the Freedom of Information Act and all requests for documents made under the Act should be made to the FOI Officer, National Capital Planning Authority, 10-12 Brisbane Avenue, Barton, ACT, telephone (062) 712888 or by writing to GPO Box 373, Canberra, ACT 2601.

Courses, Conferences and Seminars In the period under review eleven officers attended courses, conferences or seminars to represent the Authority or to improve their professional skills in areas necessary to the performance of their duties.






( 1 )









A Advise the Executive on the A uthority's functions. A Preparation, review and m onitoring of N ational Capital Plan. A Procession of m atters referred b y ITPA and other

G overnm ent Agencies A A pproval of w orks w ithin D esignated Areas. A Com m ission of w orks w ithin D esignated Areas. A Recom m ending w orks to the M inister. A Provide policy advice in regard to environm ental,

transport, engineering, u rban design, landscape and other broad policy issues affecting the N ational Capital. A U ndertake special studies.

A Provide corporate services. A M anage the statutory processes required for the N ational Capital Plan in term s of exhibition, consultation and parliam entary oversight.

A Assess the N ational Capital Plan in term s of its effects on Com m onw ealth/ACT finances. A Provide advice and service to the A uthority on G overnm ent, Parlim entary and C om m unity relations. A Develop and manage the A uthority's capital w orks

program m es. A Foster awareness of Canberra as the N ational Capital. A Provide public inform ation services.


National Capital Planning Authority Financial Statements 31 January 1989 - 30 June 1989


Certification of the financial statements 31

Aggregate statement of transactions by fund 33

Detailed statement of transactions by fund 34

Details of expenditure from annual appropriations 35

Statement of supplementary financial information 36

Statement of income and expenditure 37

Notes to the financial statements 37

Program statement 41

Glossary of terms 42


National Capital Planning Authority



We certify that the financial statements are in agreement with the Authority's accounts and records and, in our opinion, the statements have been prepared in accordance with the Financial Statements Guidelines for Departmental Secretaries.


PAUL CARMONDY Secretary and Manager



In accordance with sub-section 50(1) of the Audit Act 1901, the Chief Executive of the National Capital Planning Authority has submitted for report the financial statements of the Authority for the period ended 30 June 1989.

Sub-section 50(2) of the Act provides that the financial statements shall be prepared in accordance with financial statements guidelines made by the Minister for Finance and shall set out:

(a) particulars of the receipts and expenditures of the Consolidated Revenue Fund, the Loan Fund and the Trust Fund during the financial year in respect of the Authority, and

(b) such other information (if any) relating to the financial year as is required by the financial statements guidelines to be indicated in the statements.

The parts of the financial statements prepared in accordance with paragraph 50(2)(b) of the Act are not subject to audit examination and report unless the Minister for Finance has declared that they are to be subject to full examination. At the date of this report the Minister had not made a declaration in respect of the National Capital Planning


The parts of the financial statements prepared in accordance with the paragraph 50(2)(a) of the Act which are subject to audit have been prepared in accordance with the policies outlined in the Notes 1(a), 1(b) and 1(c) and have been audited in conformance with the Australian Audit Office Auditing Standards.

In accordance with sub-section 51(1) of the Act, I now report that the parts of the statements prepared in accordance with paragraph 50(2)(a) are, in my opinion:

• in agreement with the accounts and records kept in accordance with section 40 of the Act, and

• in accordance with the financial statements guidelines made by the Minister for Finance.

P.A. Farrelly Assistant Auditor-General


National Capital Planning Authority


This statement shows aggregate cash transactions, for which the Authority is responsible, for each of the three funds comprising the Commonwealth Public Account (CPA).

Consolidated Revenue Fund (CRF)

Notes Period 31/1/89 to 30/6/89 Budget Actual

$ $

Receipts NIL NIL

Expenditure from special appropriations Expenditure from annual appropriations Expenditure 1,855,000


1,312,387 $1,312,287

Loan Fund

Receipts NIL NIL

Expenditure NIL NIL

Trust Fund

Balance 1 February 1989 NIL NIL

Receipts NIL NIL

Expenditure NIL NIL

Balance 30 June 1989 NIL NIL

Represented by:

Cash NIL



Consolidated Revenue Fund (CRF)

Receipts to CRF

The CRF is the main working fund of the Commonwealth and consists of all current moneys received by the Commonwealth (excluding loan raisings and moneys received by the Trust Fund). The Authority is responsible for the following receipt items.

Period 31/1/89 to 30/6/89 Budget Actual

$ $


Expenditure from CRF

The Constitution requires that an appropriation of moneys by the Parliament is required before any expenditure can be made from the CRF. Appropriation follows two forms:

A Special (or standing) appropriations; and A Annual appropriations.

The Authority is responsible for the following expenditure items.

Period 31/1/89 to 30/6/89

Special Appropriations

Total expenditure from special appropriations

Annual Appropriations

Appropriation Act No. 1 Appropriation Act No. 2 Appropriation Act No. 3 Total expenditure from annual appropriations

Total Expenditure from CRF

Appropriation Expenditure $ $


1,855,000 1,312,387 $1,855,000 $1,312,387

$1,855,000 $1,312,387



Period ended 30 June 1989

Sub-Program Appropriation Expenditure $ $

Appropriation Act No. 3

Division 155 Administrative

^ Running costs (refer note 6) 1.1 1,845,000 1,311,907

^ Other Services 01. Compensation and legal expenses 1.2 10,000 480

$1,855,000 $1,312,387



Notes $'000

Current Assets

Cash on hand and at bank 2 549

Receivables 3 4,126

Inventories 160,007

Other 678,231

Total Current Assets 842,913

Non-Current Assets

Fixed assets 5 479,337

Other 4 45,724

Total Non-Current Assets 525,061

Total Assets 1,367,974

Current Liabilities

Creditors 6 229,129

Employee benefits 422,812

Total Current Liabilities 651,941

Non-Current Liabilities

Employee benefits 45,724

Total Non-Current Liabilities 45,724

Total Liabilities 697,665

Net Assets $670,309

Accumulated Funds $670,309




Appropriation Income 1,312,387

Receipts Income 99,217

Other Income 4,126

Total Income 1,415,730

Expenditure 1,243,718


Extraordinary item — value of assets acquired at nil cost upon dissolution of NCDC 498,297

Amount transferred to accumulated funds 670,309

Accumulated funds — 31 January 1989 -

Accumulated funds — 30 June 1989 $670,309

National Capital Planning Authority


1 Statement of Significant Accounting Policies

(a) The National Capital Planning Authority was established on 31 January 1989 through the Australian Capital Territory (Planning and Land Management) Act 1988. As a consequence of this legislation, the financial statements cover the period 31 January 1989 to 30 June 1989.

(b) The financial statements have been prepared in accordance with the 'Financial Statement Guidelines for Departmental Secretaries' issued by the Minister for Finance.


(c) (i) The financial statements have been prepared on a cash basis with the exception of the Statement of Supplementary Financial Information and the Statement of Income and Expenditure and the notes related to these statements, which include certain accrual type information.

(ii) The financial statements have been prepared in accordance with the historical cost convention and do not take account of changing money values or, except where stated, current values of non-current assets.

(d) Depreciation is calculated on a straight line basis so as to write off the net cost of each non-current asset during its expected useful life.

(e) Inventories are valued at the lower of cost and net realisable value. Costs are assigned to individual items of stock mainly on the basis of weighted average costs.

(f) Employee entitlements represent the employees' entitlements to recreation leave and long service leave. The amounts expected to be paid to employees for their pro-rata entitlement to long service and recreation leave are accrued at current pay rates having regard to period of service. The disclosure of employee entitlements is not required by the Department of Finance's Financial Statements Guidelines for Departmental Secretaries. Flowever the Authority believes that such disclosure enhances the reader's understanding of the financial position of the Authority.

2 Cash at Bank

The Authority, as at 30 June maintained the following bank accounts:

(a) Collector's Receipts Account — Reserve Bank Account No. 91507-1;

(b) Commonwealth Public Account — Reserve Bank Account No. 91079-9;

(c) Credit Card Settlement Account — Westpac Bank Account No. 91504.7; and

(d) National Capital Planning Authority Account — Commonwealth Bank Account No. 850712.


National Capital Planning Authority


3 Receivables

Of the total amount of $4,126 as at 30 June the following amounts were overdue for:

Less than 30 days 30-60 days More than 60 days


2,543 1,381 202


4 Other

At 30 June 1989, 'current assets — other' includes, prepayments of $26,339 and deferred expenditure of $651,892 and 'non-current assets — other' represents deferred expenditure of $45,724. The deferred expenditure represents the benefit to be received when the existing employee entitlements to recreation and long service leave and the creditors included in the Statement of Supplementary Financial Information are paid from future annual appropriations.

5 Fixed Assets

$ $

Furniture and fittings at cost


Less accumulated depreciation 1,934 68,213

Computer and office equipment at cost Less accumulated depreciation

437,734 28,213 409,521

Other 1,610

Less accumulated depreciation 7 1,603



6 Creditors

Of the total amount of $229,129 as at 30 June the following amounts were overdue, as defined in accordance with the Commonwealth policy of payment, for:


Less than 30 days 11,456

30-60 days -

More than 60 days -


National Capital Planning Authority


Running Costs (Annotated Appropriation)

This appropriation was annotated pursuant to section 35 of the Audit Act 1901 to allow the crediting of receipts received from the sale of publications, rental of Regatta Point and telephone recoveries.

The annotated appropriations operated as follows:

Annotated Appropriation Receipts Appropriation Expenditure

$1,855,000 $99,217 $1,954,217 $1,312,387

8 Forward Obligations

The Authority has no forward obligations as at 30 June.

9 Act of Grace Payments

No payments were made during the financial period 31 January to 30 June 1989 pursuant to authorisation given under Section 34A of the Audit Act 1901.


10 Waiver of Rights to Payment of Moneys

No payments were waived during the financial period 31 January to 30 June 1989 under subsection 70C(2) of the Audit Act 1901.

11 Amounts Written Off

No amounts were written off during the financial period 31 January to 30 June 1989 under sub-section 70C(1) of the Audit Act 1901.

12 Losses and Deficiencies etc in Public Moneys and Other Property

There were no losses and deficiencies in public moneys and other property during the financial period 31 January to 30 June 1989 under Part XII of the Audit Act 1901.

13 Resource Received Free of Charge

During the financial period 31 January to 30 June 1989, the Department of Finance provided computer bureau services relating to the Authority's payroll without charge.


This statement shows details of expenditure from annual and special appropriations for each program and sub-program administered by appropriation item contributing to a sub-program followed by its appropriation code in brackets.

the Authority. Each "annual" is identified by its description

ACT National Function

Period ended 30 Budget $ June 1989 Actual $

Payments for Services provided in Connection with the Performance of National Functions

1.1 Running costs (155.1) Salaries Administrative expenses 1.2 Compensation and legal expenses (155.2)

634,500 1,210,500 10,000

530,963 780,944 480

Expenditure from appropriations 1,855,000 1,312,387

Outlays 1,855,000 1,312,387


Appendix: Glossary of Terms

Act of Grace Payments: Section 34A of the Audit Act 1901 provides that, in special circumstances, the Commonwealth may pay an amount to a person notwithstanding that the Commonwealth is not under any legal liability to do so.

Administrative Expenses: Includes not just expenditure on office-based activities but all operational expenditure (excepting salaries). The item includes both direct costs and overhead expenditure: it includes, inter alia, minor capital expenditure which is considered part of ordinary annual services; it does not include, inter alia, major capital expenditure, grants, loans or subsidies.

Annual Appropriations: Acts which appropriate moneys for expenditure in relation to the Government's activities during the financial year. Such appropriations lapse on 30 June. They include the Supply Acts and Appropriation Acts.

Appropriation: Authorisation by Parliament to expend public moneys from the Consolidated Revenue Fund or Loan Fund for a particular purpose, or the amounts so authorised. All expenditure (i.e. outflows or moneys) from the Commonwealth Public Account must be appropriated, i.e. authorised by the Parliament.

Appropriation Act (No.l): An Act to appropriate moneys from the Consolidated Revenue Fund for the ordinary annual services of Government.

A u d it A ct 1901: The principal legislation governing the collection, payment and reporting of public moneys, the audit of the Public Accounts and the protection and recovery of public property. Finance Regulations and Directions are made pursuant to the Act.

Commonwealth Public Account (CPA): The main bank account of the Common­ wealth, maintained at the Reserve Bank in which are held the moneys of the Consolidated Revenue Fund, Loan Fund and Trust Fund (other than the National Debt Sinking Fund).

Consolidated Revenue Fund (CRF); Loan Fund; Trust Fund: The three funds comprise the Commonwealth Public Account (CPA).

CRF The Principal working fund of the Commonwealth mainly financed by taxation, fees and other current receipts. The Constitution requires an appropriation of moneys by the Parliament before any expenditure can be made from the CRF. These follow two forms:


(i) annual appropriations consisting of Supply Acts (Nos 1 and 2), the Supply (Parliamentary Departments) Act, the Appropriations Acts (Nos 1^) and the Appropriation (Parliamentary Departments) Acts (Nos 1 and 2) (the Supply Acts relate to the first five months of the

financial year and are subsumed by the corresponding Appropriation Acts); and

(ii) special or standing appropriations.

Loan Fund Authority for its establishment comes from the Audit Act. All moneys raised by loan on the public credit of the Commonwealth are credited to the Loan Fund. Expenditures from the Loan Fund require an appropria­ tion by Parliament and are limited to the purpose(s) for which moneys were originally raised as specified.

Trust Fund Essentially comprises trustee funds (termed 'Heads of Trust') established under S. 60 of the Audit Act (i.e. moneys held in trust for the benefit of persons or bodies other than the Commonwealth); trust accounts established under S. 62A of the Audit Act (i.e. working accounts covering certain government agencies and certain other accounts in the nature of 'suspense accounts'); and trust accounts established under other Acts to meet future expenditure.

Payments into the Trust Fund may be by way of appropriation from the CRF or Loan Fund or direct credit of private moneys. Expenditure from the Trust Fund is appropriated for (and limited to) the specific purposes of each trust account, or head of trust, by the Audit Act or the Act establishing the trust account or head of trust. Unlike the unused portion of annual appropriations, trust account balances — as with 'special' or

'standing' appropriations — do not lapse at the end of the financial year.

Expenditure: The total or gross amount of money spent by the Government on any or all of its activities (i.e. the total outflow of moneys from the Commonwealth Public Account) (c.f. Outlays'). All expenditure must be appropriated, i.e. authorised by the Parliament (see also 'Appropriations'). Every expenditure is classified to one of the

economic concepts of outlays, revenue (i.e. offset within revenue) or financing transactions.

Forward Obligations: Obligations existing at 30 June which create or are intended to create a legal liability on the Commonwealth to provide funds in future years and which have not been exempted from the forward obligations system. In special circumstances, arrangements which do not create a legal liability, but which require forward obligations cover for effective program management, may also be included in


the forward obligations system, e.g. memoranda of understanding with other Governments and foreign aid arrangements. The following items are exempted from the forward obligations system:

^ all items classified in Appropriation Acts as Running Costs (i.e. salaries, administrative and operating expenses); ^ those items for which payment is authorised by special legislation where the amount and timing of payments are specified or clearly dictated by eligibility criteria

(i.e. most, but not all, Special Appropriations); and ^ those items which have been exempted by the Minister for Finance as a result of specific case-by-case requests from departments.

Loan Fund: See 'Consolidated Revenue Fund'.

Outlays: An economic concept which shows the net extent to which resources are directed through the Budget to other sectors of the economy after offsetting recoveries and repayments against relevant expenditure items, i.e. outlays consist of expenditure net of associated receipt items. Outlays are 'above the line' transactions. The difference between outlays and revenue determines the Budget balance (i.e. surplus or deficit).

Receipts: The total or gross amount of moneys received by the Commonwealth (ie the Commonwealth Public Account). Every receipt item is classified to one of the economic concepts of revenue, outlays (i.e. offset within outlays) or financing transactions.

Receipts Offset within Outlays: Refers to receipts which are netted against certain expenditure items because they are considered to be closely or functionally related to those items, e.g. receipts from computer hire charges are offset against the running costs of the department's accounting and management information systems.

Revenue: Items classified as revenue are receipts which have not been offset within outlays or classified as financing transactions. It excludes amounts received from the sale of government services or assets (these are offset within outlays) and amounts received from loan raisings (these are classified as financing transactions).

Trust Fund: See 'Consolidated Revenue Fund'.



Planning Variations and Referrals in the period to 30 June 1989 The Authority dealt with a total of 46 planning variations and referrals in the five months to 30 June 1989 following its establishment. These were as follows:

Variations to NCDC Policy by the Interim Territory Planning Authority: 10

Variations to NCDC Policy by the National Capital Planning Authority: 1

Design and Siting Referrals from the Interim Territory Planning Authority: 24

Referrals from the Infrastructure Division of the Office of Industry and Development of the ACT Administration: 7

Referrals from the Office of City Management of the ACT Administration: 4


Publications of the Authority The National Capital Planning Authority is developing a program of publications to reflect the various aspects of its responsibilities, including that of public consultation.

From its inception to 30 June 1989, the Authority had published the following:

Sites of Significance in the ACT, Volume 8: the Cotter River Catchment (Technical Paper No. 56), paperbound, 172 pages, size A4, illustrated. Price $12 plus postage (Weight 536g)

Canberra's Environment 1989, paperbound, 64 pages, size A4. Price $5 plus postage (Weight 215g)

Welcome to the National Capital, colour brochure, free

Diplomatic Missions of Canberra, colour brochure, free

Natural Capital Open Space System, colour brochure, free

National Capital Planning Exhibition, colour brochure, free


89/21 663 Cat. No. 89 1853 7