Built in 1950, Cape Baily Lighthouse was fully-functional by 21 December of the same year. The lighthouse was constructed to aid vessels entering and leaving Botany Bay south of Sydney (New South Wales). Cape Baily Lighthouse contributed to the ongoing development of aids to navigation during the mid-20th century, and its notable for its technical configuration and aesthetic values.

Cape Baily Lighthouse is notable for its heritage significance and was placed on the Commonwealth Heritage List in 2004. As included within its listing, the lighthouse recognised for its association with the ongoing development of aids to navigation during the mid-20th century post-war period. The lighthouse is also notable for its aesthetic value sitting atop the headland with no modern intrusions.

Situated on Cape Baily within the Kamay Botany National Park, the lighthouse stands approximately 17.5km south of Sydney. As a working marine aid to navigation (AtoN), the lighthouse tower is operated and managed by the Australian Maritime Safety Authority (AMSA).

The lighthouse is believed to house a Chance Brothers & Co. 375mm focal radius fixed (non-rotating) lens which is still in service today. The light runs on an automated mechanism as part of AMSA’s network of AtoN. The equipment is serviced by AMSA’s maintenance contractor who visits as least once per year. AMSA officers visit on an ad hoc basis for auditing, project and community liaison purposes.

AMSA lease the site from the NSW National Parks and Wildlife Authority (NSW NPWS).  

This heritage management plan is concerned mainly with the lighthouse, however it also addresses the management of the surrounding land. The plan is intended to guide AMSA’s decisions and actions. AMSA has prepared this plan to integrate the heritage values of the lighthouse in accordance with the Environment Protection and Biodiversity Conservation Act 1999 (Cth), and the Environment Protection and Biodiversity Conservation Regulations 2000 (Cth).

Being well built and generally well maintained, the lighthouse is in relatively good, stable condition. The policies and management guidelines set out in this heritage management plan strive to ensure that the Commonwealth heritage values of Cape Baily Lighthouse are recognised, maintained, and preserved for future generations.

1.1 Background and purpose

The Australian Maritime Safety Authority (AMSA) is the Commonwealth agency responsible for coastal aids to navigation. AMSA’s network includes Cape Baily Lighthouse, built and first lit in 1950.

Section 341S of the Environment Protection and Biodiversity Conservation Act 1999 (Cth) (EPBC Act) requires AMSA to prepare a management plan for Cape Baily Lighthouse that addresses the matters prescribed in Schedules 7A and 7B of the Environment Protection and Biodiversity Conservation Regulations 2000 (Cth) (EPBC Regulations). The principal features of this management plan are:

• a description of the place, its heritage values, their condition and the method used to assess its significance
• an administrative management framework
• a description of any proposals for change
• an array of conservation policies that protect and manage the place
• an implementation plan
• ways the policies will be monitored and how the management plan will be reviewed.

AMSA has prepared this heritage management plan to guide the future conservation of the place. This plan provides the framework and basis for the conservation and best practice management of Cape Baily Lighthouse in recognition of its heritage values. The policies in this plan indicate the objectives for identification, protection, conservation and presentation of the commonwealth heritage values of the place. Figure 2 shows the basic planning process applied.

1.2 Heritage management plan objectives

The objectives of this heritage management plan are to:

• protect, conserve and manage the Commonwealth heritage values of Cape Baily Lighthouse.
• interpret and promote the Commonwealth heritage values of Cape Baily Lighthouse.
• manage use of the lighthouse
• use best practice standards, including ongoing technical and community input, and apply best available knowledge and expertise when considering actions likely to have a substantial impact on Commonwealth heritage values.

In undertaking these objectives, this plan aims to:

• provide for the protection and conservation of the heritage values of the place while minimising any impacts on the environment by applying the relevant environmental management requirements in a manner consistent with Commonwealth heritage management principles.
• take into account the significance of the region as a cultural landscape occupied by Aboriginal people over many thousands of years.
• recognise that the site has been occupied by lease holders since the early 20th century.
• encourage site use that is compatible with the historical fabric, infrastructure and general environment.
• record and document maintenance works, and changes to the fabric in Cape Baily Lighthouse fabric register.

The organisational planning cycle and associated budgeting process is used to confirm requirements, allocate funding and manage delivery of maintenance activities. Detailed planning for the AtoN network is managed through our internal planning processes.

An interactive map showing many of AMSA’s heritage sites, including Cape Baily Lighthouse, can be found at AMSA Heritage Lighthouses Interactive Map¹.

1.3 Methodology

The methodology used in the preparation of this plan is consistent with the recommendations of The Burra Charter and with the requirements of Chapter 5, Part 15 Division 1A of the EPBC Act. In particular, the plan:

• provides a history of the site based on information sourced from archival research, expert knowledge, and documentary resources.
• provides a description of the site based on information sourced from site inspection reports and fabric registers.
• details the Commonwealth heritage criteria satisfied by Cape Baily Lighthouse as set out by the EPBC Regulations. 

The criterion set out at Schedule 7A (h) (i-xiii) informed the development of the required policies for the management of the Cape Baily Lighthouse, in conjunction with input from the Department of Climate Change, Energy, the Environment and Water on best practice management.

Consultation

The draft management plan is required to be advertised in accordance with the EPBC Act and the EPBC Regulations and any comments received are to be incorporated into the final document.

In the process of preparing the plan, AMSA sought engagement with New South Wales National Parks and Wildlife Service (NSW NPWS). NSW NPWS provided information on the management of the surrounding environment including AMSA’s leased area, and site access information.

AMSA also sought engagement with the La Perouse Local Aboriginal Land Council in September 2021 under direction from NSW NPWS. AMSA is yet to receive a response and future versions of this plan will provide an update on this consultation process.

A developed draft will be submitted to the Minister through the Department of Climate Change, Energy, the Environment and Water and in that process the Minister’s delegate will seek advice from the Australian Heritage Council.

No updates or amendments have been made in this version of the plan. Future updates and amendments will be listed here.

1.4 Status

This plan has been adopted by AMSA in accordance with Schedule 7A (Management plans for Commonwealth Heritage places) and Schedule 7B (Commonwealth Heritage management principles) of the EPBC Regulations to guide the management of the place and for inclusion in the Federal Register of Legislative Instruments.

1.5 Authorship

This plan has been prepared by AMSA. At the initial time of publication, the Australian Maritime Systems Group (AMSG) is the contract maintenance provider for the Commonwealth Government’s AtoN network including Cape Baily Lighthouse.

1.6 Acknowledgements

AMSA acknowledges the professional assistance of NSW NPWS on this heritage management plan.

1.7 Language

For clarity and consistency, some words in this plan such as restoration, reconstruction and preservation, are used with the meanings defined in the Burra Charter2. (See Appendix 1 Glossary of heritage conservation terms). Also see ‘Appendix 2 Glossary of lighthouse terminology relevant to Cape Baily which sets out the technical terminology used in this plan.

1.8 Previous reports

• A Supplementary Information report on Cape Baily by Graham Brooks & Associates was produced for NSWNPWS in November 2001.3
• Peter Marquis-Kyle prepared a Heritage Lighthouse Report for AMSA in 2007.4
• A Heritage Asset Condition Report (3rd Revision) was generated by AMSG in 2019 for AMSA.5

 1.9 Sources of information and images

This plan has used a number of sources of information. This includes the National Archives of Australia (NAA), the National Library of Australia (NLA) and AMSA’s heritage collection.

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Footnotes

^{1 “AMSA Interactive heritage lighthouse map,” Australian Maritime Safety Authority, accessed October 2020, https://www.operations.amsa.gov.au/lighthouses/?_ga=2.236400321.1108408984.1535497123-1996646104.1535497123}     

^{2 Australia ICOMOS, The Burra Charter: The Australia ICOMOS Charter for Places of Cultural Significance (Australia ICOMOS, 2013).}

^{3 Graham Brooks & Associates, Supplementary Information Cape Baily Lighthouse: NPWS Lighthouses Conservation Management and Cultural Tourism Plan, (NSW National Parks and Wildlife Service, 2001).}

^{4 Peter Marquis-Kyle, Heritage Lighthouse Report: Cape Baily (Australian Maritime Systems Group, 2006).}

^{5 Australian Maritime Systems Group, Cape Baily Lighthouse: Heritage Asset Condition Report, 3rd Revision (Australia Maritime Safety Authority, 2020).}

2.1 Location

Cape Baily Lighthouse is located approximately 17.5 kilometres south of the Sydney Central Business District. The lighthouse is situated within Kamay Botany Bay National Park’s Kurnell area. Lighthouse coordinates: 34º 2.2000'S, 151º 13.3000'E

2.2 Setting and landscape

Cape Baily Lighthouse is located on Kurnell Peninsula. The peninsula is dominated by heavy industrial plants including oil refineries and a large sewerage treatment plant. The coastline to the north and south is dominated by coastal cliffs.

Fauna and flora

The lighthouse is located in a fragile ecosystem within the Kamay Botany National Park. At the time this plan was written, the Park contained seven threatened plants specimens and eighteen threatened animals. The landscape is dominated by heath vegetation and sand dunes. The Eastern Suburbs Banksia Scrub Endangered Ecological Community is also recorded within the Park.

In 2020, the ‘Kamay Botany Bay National Park Plan of Management’ was released by the New South Wales State Government and can be accessed online: 

In 2020, the ‘Kamay Botany Bay National Park Plan of Management’ was released by the New South Wales State Government and can be accessed online: http://www.environment.nsw.gov.au/resources/planmanagement/final/botany-bay-national-park-plan-management-1600376.pdf

2.3 Lease

AMSA lease the Cape Baily Lighthouse and land from the NSW National Parks and Wildlife Service, the state body responsible for Kamay Botany Bay National Park.

The AMSA lease consists of a 930m2 parcel of land, which sits wholly within the Kamay Botany Bay National Park.

The current lease was signed on 1st July 1997 with the option to extend for a further 25 years. The lease provides a framework within which access rights are subject to negotiations between AMSA and NSW NPWS due to the fragility and erodibility of the site. AMSA must comply with the Kamay Botany Bay National Park Plan of Management.⁶

2.4 Access

A vehicle access track exists from the Cronulla View carpark at Doughboy Head, it is approximately 1.4km each way. The access track is often overgrown with vegetation and is difficult to traverse in places.

The track is only accessible to service vehicles. All public access is by walking trails only. The last few hundred meters are required to be walked by all visitors.

The site is visited by AMSA maintenance contractors twice per year. Dependent upon works to be undertaken and track conditions a decision is made to either drive or walk.

2.5 Listings

Cape Baily Lighthouse is listed on the following heritage registers:

The Kurnell Peninsula Headland, on which the Cape Baily lighthouse is located, is listed on the National Heritage List as Place ID 105812⁹

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Footnotes

3.1 General history of lighthouses in Australia

The first lighthouse to be constructed on Australian soil was Macquarie Lighthouse, located at the entrance to Port Jackson, NSW. First lit in 1818, the cost of the lighthouse was recovered through the introduction of a levy on shipping. This was instigated by Governor Lachlan Macquarie, who ordered and named the light.

The following century oversaw the construction of hundreds of lighthouses around the country. Constructing and maintaining a lighthouse were costly ventures that often required the financial support of multiple colonies. However, they were deemed necessary aids in assisting the safety of mariners at sea. Lighthouses were firstly managed by the colony they lay within, with each colony developing their own style of lighthouse and operational system. Following Federation in 1901, which saw the various colonies unite under one Commonwealth government, lighthouse management was transferred from state hands to the Commonwealth Lighthouse Service.  

Lamps and optics: an overview

Lighthouse technology has altered drastically over the centuries. Eighteenth century lighthouses were lit using parabolic mirrors and oil lamps. Documentation of early examples of parabolic mirrors in the United Kingdom, circa 1760, were documented as consisting of wood and lined with pieces of looking glass or plates of tin. As described by Searle, “When light hits a shiny surface, it is reflected at an angle equal to that at which it hit. With a light source is placed in the focal point of a parabolic reflector, the light rays are reflected parallel to one another, producing a concentrated beam”.¹⁰

In 1822, Augustin Fresnel invented the dioptric glass lens. By crafting concentric annular rings with a convex lens, Fresnel had discovered a method of reducing the amount of light absorbed by a lens. The Dioptric System was adopted quickly with Cordouran Lighthouse (France), which was fitted with the first dioptric lens in 1823. The majority of heritage-listed lighthouses in Australia house dioptric lenses made by others such as Chance Brothers (United Kingdom), Henry-LePaute (France), Barbier, Bernard & Turenne (BBT, France) and Svenska Aktiebolaget Gasaccumulator (AGA of Sweden). These lenses were made in a range of standard sizes, called orders—see ‘Appendix 2. Glossary of lighthouse Terms relevant to Cape Baily Lighthouse’.

Early Australian lighthouses were originally fuelled by whale oil and burned in Argand lamps, and multiple wicks were required in order to create a large flame that could be observed from sea. By the 1850s, whale oil had been replaced by colza oil, which was in turn replaced by kerosene, a mineral oil.

In 1900, incandescent burners were introduced. This saw the burning of fuel inside an incandescent mantle which produced a brighter light with less fuel within a smaller volume. Light keepers were required to maintain pressure to the burner by manually pumping a handle as can be seen in Figure 9.

In 1912, Swedish engineer Gustaf Dalén, was awarded the Nobel Prize in physics for a series of inventions relating to acetylene-powered navigation lights. Dalén’s system included the sun valve, the mixer, the flasher, and the cylinder containing compressed acetylene. Due to their efficiency and reliability, Dalén’s inventions led to the gradual destaffing of lighthouses. Acetylene was quickly adopted by the Commonwealth Lighthouse Service from 1915 onwards.

Large dioptric lenses, such as that shown in Figure 11, gradually decreased in popularity due to cost and the move towards unmanned automatic lighthouses. By the early 1900s, Australia had stopped ordering these lenses with the last installed at Eclipse Island in Western Australia in 1927. Smaller Fresnel lenses continued to be produced and installed until the 1970s when plastic lanterns, still utilising Fresnel’s technology, were favoured instead. Acetylene remained in use until it was finally phased out in the 1990s.

In the current day, Australian lighthouses are lit and extinguished automatically using mains power, diesel generators, and solar-voltaic systems.

3.2 The Commonwealth Lighthouse Service

When the Australian colonies federated in 1901, they decided that the new Commonwealth government would be responsible for coastal lighthouses—that is, major lights used by vessels travelling from port to port—but not the minor lights used for navigation within harbours and rivers. There was a delay before this new arrangement came into effect. Existing lights continued to be operated by the states.

Since 1915, various Commonwealth departments have managed lighthouses. AMSA, established under the Australian Maritime Safety Authority Act 1990 (Cth), is now responsible for operating Commonwealth lighthouses and other aids to navigation, along with its other functions.

3.3 Cape Baily: a history

Aboriginal history

The Kamay Botany Bay National Park has a rich history that stretches back many thousands of years. Significant Aboriginal sites have been recorded within the National Park, some of which include middens and engravings. The Kurnell area is also considered one of the first points of contact Aboriginal people had with the crew of the Endeavour when British Captain James Cook landed there in 1770.

Further information collated from consultations with knowledge holders will be included in future versions of the plan.

Early European history

The Kurnell region has a long history of association with early European exploration. On 29 April 1770, British Captain James Cook entered Botany Bay aboard the Endeavour alongside Naturalist Joseph Banks who collected various native plant specimens for study from the region.¹¹

It is believed the headland remained relatively free of European settlement until the first land grant occurred in 1815. Captain James Birnie was awarded the grant and went on to established ‘Alpha Farm’.¹² The land was sold to John Connell in 1828, and then to Thomas Holt in 1860. Holt later donated 250 acres of the land to the Crown which was transformed into a reserve, known today as Kamay Botany Bay National Park.¹³

3.4 Why Cape Baily?

Discussions on a light at the entrance to Botany Bay started in the early 1930s. On 30 January 1930, site inspections were carried out at the two most likely locations for a lighthouse, Cape Banks on the northern side and Cape Baily on the southern.

The Acting Deputy Director of NSW and the State’s Lighthouse Inspector visited both sites and reported the following:

The isthmus which connects the low peninsula of Cape Banks to the land is very rough. The cost of transport of construction materiel and cylinders to the Cape by this route would be prohibitive.

The Deputy Director, NSW, suggested water transport as the alternative. Water transport would present no difficulty in Queensland, where we have lighthouse vessels with crews experienced in handling boats and landing materials on rocky shores but in NSW we would have to depend on hired boat attendance, the proposal is not attractive.

Were the tower and apparatus that it is proposed to install at Cape Baily installed at Cape Banks, the elevation of the light would be 90' and range 15 miles. At Cape Baily, the light would be visible a distance of 5.5 miles further south than would be Cape Banks. Smoke from the industrial establishments on the north shore of Botany Bay (the Bunnerong Power House is quite close) will reduce the visibility of a light at Cape Banks.

A light can be constructed at Cape Baily at less cost than can one at Cape Banks.

As the cliffs to the northward of Cape Baily rise gradually, a small tower is desirable in order to secure the maximum arc of visibility to the northward.¹⁴

As discerned from the report, Cape Baily was considered a more favourable position, primarily due to the amount of pollution from the Bunnerong power station near Cape Banks.

3.5 Building a lighthouse

Planned, but not built

With a site inspected and chosen, initial designs were drafted and the lens and pedestal components were ordered from Chance Brothers & Co. and paid for in 1931.¹⁵ However, the construction of Cape Baily Lighthouse suffered significant delays, and it would be a further 19 years before a lighthouse was constructed. Firstly, delays were attributed to the loss of the vessel SS Minmi which saw the loss of two lives.¹⁶ Additionally, the onset of the Second World War reduced funds significantly. Attention was turned to Cape Banks which became the location of a shore defence battery to control the entrance to Botany Bay during this time.

As a result of these delays, the Chance Bros. equipment ordered in 1931 was placed in storage upon delivery until 1934, whereupon the items were installed in other navigational aids sites.¹⁷ The proposed lighthouse at Cape Baily did not gain momentum until 1948. Design specifications were tabled by the Department of Shipping & Fuel and in 1949, the final design was decided upon.¹⁸

Design

With funds secured, the design of the Cape Baily Lighthouse was reviewed, and a memo dated 1948 titled ‘Brief Specification’ stated, ‘Appearance. In view of the proximity of the site to Cronulla the tower should be of a simple but pleasing architectural appearance’.¹⁹ This guided the proposed designs that were considered during this time. By 1949, the design was narrowed down to five possibilities, the design pictured eventually being chosen (see Figure 12).

Construction

Tenders for the construction of Cape Baily lighthouse were called on 8 March 1950. The successful contractors were K.A. Golding and C.F.W. Kewley, and the contract was signed 24 July 1950. Acceptance of the tender was listed in the Commonwealth Gazette of 3 August 1950.²⁰

The desired date of completion of the lighthouse is shown as 16th October 1950 however a Notice of Mariners issued in December of 1950 detail that the light was not fully operational until 21 December 1950.²¹

Written reports of the construction period are limited, however it is known that site access was exceedingly, difficult as evident in a memo from the works supervisor dated 28 November 1950 which stated:

‘Access to this light is very rough and boggy in several places over the last two or three miles and only vehicles with 4WD are suitable for transport, it is suggested that some provision should be made for improving this track through the swamp area.’²²

The main structure, including balcony floor, was constructed entirely of concrete. The tower was constructed using a slip form concreting technique (see Figure 13, 14 & 15). This building method allowed for the form work (the timbers) to move up the tower vertically extruding a concrete section as it moved.

Equipment when built

Upon completion, the tower stood as a cast concrete structure atop a 200mm thick concrete slab measuring 9250mm x 9250mm.

The tower was fitted with a Robison Brothers & Company Limited of Melbourne lantern house, which appeared to copy earlier Chance Brother lantern rooms²⁶. It is the only known example of this company manufacturing lighthouse equipment.

The Cape Baily light was first lit on the night of 21 December 1950.

An AGA Dalen acetylene flasher unit was fitted within the Chance Brothers lens and served as the tower’s initial light source. Eight large acetylene gas bottles were held in the tower base with gas lines feeding acetylene to the flasher mounted within the lens. Dishes cast into the ground level floor are still evident today although the acetylene bottles were long removed. The sunvalve controlled the flow of acetylene. It opened at dusk and closed at dawn ensuring acetylene was used only during the hours of darkness.

The site is now powered by an array of six solar panels with a low voltage light source.

It is presumed that the lens is of Chance Brothers manufacture due to its resemblance to other lenses from this company.            

Due to the light’s automatic capabilities, no lightkeeper was stationed at the lighthouse.

3.7 Chronology of major events

The following table details the major events to have occurred at Cape Baily Lighthouse.

3.7 Changes and conservation over time

The following section details the changes and conservation efforts to have been carried out at Cape Baily Lighthouse since its construction.

Alteration to the light

The following table details the changes to the Cape Baily light since its exhibition in 1950.

For information on current light details, see ‘Appendix 4 Cape Baily Lighthouse current light details’.

Recent conservation works

The following table details the recent conservation works to have occurred at Cape Baily Lighthouse.

3.8 Summary of current and former uses

From its construction in 1950, Cape Baily Lighthouse has been used as a marine AtoN for mariners at sea. Its AtoN capability remains its primary use.

3.9 Summary of past and present community associations

Aboriginal associations

The lighthouse resides within a National Park renowned for its rich Aboriginal cultural heritage and history. The local community maintains strong associations with the land on which the lighthouse was built and continues to operate on today. Further information on past and present associations from appropriate knowledge-holders will be included in future versions of the plan.

Local, national and international associations

Cape Baily Lighthouse is considered a significant site of New South Wales and Australian history. The surrounding Kamay Botany Bay National Park is also notable for its associations to national and international conservation efforts.

3.10 Unresolved questions or historical conflicts

It has often been reported that Cape Baily houses a late 19th century lantern. This is incorrect as the builder’s plate on the lantern detail that lantern was constructed by Robinson Bros. in 1950.

3.11 Recommendations for further research

Further investigation on the construction process, and the lighthouse’s early operation management would be beneficial.

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Footnotes

4.1 Fabric register

The cultural significance of the lighthouse resides in its fabric, and also in its intangible aspects, such as the meanings people ascribe to it, and the connections to other places and things. The survival of its cultural value depends on a well-informed understanding of what is significant, and on clear thinking about the consequences of change. The Burra Charter sets out good practice for conserving cultural significance.

Below, each part of the lighthouse is listed and the description, condition and significance of each part is discussed. Criterion listed under ‘Heritage Significance’ refer to the criterion satisfied within the specific Commonwealth heritage listing (see ‘Section 5.1’).

Lighthouse feature: Lantern roof

Description and condition

1950 conical roof of copper sheets lapped and riveted. Built with single skin (no internal lining). Supported on circular ring of cast iron segments bolted together. There is no gutter – the roof sheets have a stiffener along the eaves of half-round gutter is formed around the edge of the roof, with holes to allow water to escape – no provision for down pipes. Central drum shaped vent, with circular internal drip tray. Vent has been fully or partly sealed off above the roof. No provision for weather vane.

• Inner skin – none
• Ventilator – drum type
• Lightning conductor – forked lightning conductor on top of vent
• Gutter – none
• Drip tray – circular copper dish suspended under ventilator

Heritage significance: Moderate

The lantern roof is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The lantern roof is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The lantern roof contributes to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Lantern glazing

Description and condition

1950 Robison Bros & Co, cylindrical in form. All glazing is clear – no blank panes.

• Panes – curved trapezoidal panes of glass, single tier.
• Astragals – astragals of rectangular section galvanized steel bolted to roof support ring at the top, and to lantern base below.

Heritage significance: Moderate

The lantern glazing is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The lantern glazing is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The lantern glazing contributes to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Lantern base

Description and condition

1950 Robison Bros & Co, cylindrical in form. Curved segments of cast iron bolted together with flanged joints.

• Internal lining – none
• Vents – vents have external cast iron cowls with openings downward; air enters through multiple holes drilled through the lantern base – cast non-ferrous metal regulator disks have been removed for maintenance, and are in the spares cupboard on ground floor. Metal hand-holds are fixed to the internal lantern base above the access hatch in the lantern floor.
• Door – balcony access door is of curved steel plate with fittings screwed and bolted to it, fitted with non- ferrous hinges, internal handle, internal finger screws, external maker’s plate.

Heritage significance: Moderate

The lantern base is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The lantern base is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The lantern base contributes to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Lantern floor

Description and condition

1950 reinforced concrete, with circular concrete upstand to support the lantern base. Hatch cover of aluminium checker-plate hinged to floor.

Heritage significance: Low

Of low significance.

Lighthouse feature: Lens assembly

Description and condition

1950 Chance Bros 375mm focal radius fixed (non-rotating) lens assembly of glass and gunmetal. Metal access door in one of the landward sectors.

Heritage significance: Moderate

The lens assembly is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The lens assembly is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

Lighthouse feature: Light source

Description and condition

12V 35W C8 Halogen lamp in CR Control S-2086BLR lamp changer.

Heritage significance: Low

Of low significance.

Lighthouse feature: Pedestal

Description and condition

1950 cast ferrous metal pedestal and top.

Heritage significance: Moderate

The pedestal is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The pedestal is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

Lighthouse feature: Balcony floor

Description and condition

1950 reinforced concrete slab continuous with lantern floor, square in plan, with cantilever projection over the supporting walls. Rainwater drains freely over all outer edges. Drip groove cast into edge soffit.

Heritage significance: Moderate

The balcony floor is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The balcony floor is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The balcony floor contributes to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Balcony balustrade

Description and condition

1950 non-ferrous metal solid rectangular bar rails and stanchions, riveted together. Handrail of shaped section. Stanchions fixed to bolts cast into balcony floor.

Heritage significance: Moderate

The balcony balustrade is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The balcony balustrade is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The balcony balustrade contributes to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Walls

Description and condition

1950 reinforced concrete tower, square in plan.

Heritage significance: Moderate

The walls are an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The walls are an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

The walls are an unique design which contributes to the rarity of the lighthouse (criterion b).

The walls contribute to the aesthetic value of the lighthouse (criterion e).

Lighthouse feature: Windows

Description and condition

One window in each wall at the upper level; three of these have fixed sheeting over painted glass louvres, the other has a fixed pane of glass. 2018, asbestos fibrous cement sheeting removed and replaced with new fibrous cement sheeting. Broken louvres have been removed from site.

Heritage significance: Low

Of low significance.

Lighthouse feature: Door

Description and condition

Pair of 1950 timber framed and sheeted doors in timber frame. Faced with steel plate on the outside. Steel locking bar pivoted to one of the doors.

Heritage significance: Moderate

The door is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The door is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

Lighthouse feature: Mezzanine floor

Description and condition

Post 1970 plywood floor supported on aluminium beams and brackets bolted to concrete walls.

Heritage significance: Low

Of low significance.

Lighthouse feature: Access ladders

Description and condition

Post 1970 fixed ladders – one from ground floor to mezzanine, and another from mezzanine to lantern. Ladders have aluminium styles and rungs. Non- slip sheeting attached to the rungs.

Heritage significance: Low

Of low significance.

Lighthouse feature: Ground floor

Description and condition

1950 reinforced concrete slab on ground. Depressions to accommodate the bases of acetylene bottles are visible.

Heritage significance: Moderate

The ground floor is an original feature of a lighthouse associated with the ongoing development of navigational aids during the 20th century (criterion a).

The ground floor is an original feature of a lighthouse associated with the post-war development of Botany Bay as a major port for Sydney (criterion a).

Lighthouse feature: Apron slab

Description and condition

1950 reinforced concrete slab laid on ground, bare concrete finish. The original security fence has been removed, leaving galvanised steel pipe posts in concrete footings flush with the ground.

Heritage significance: Low

Of low significance.

4.2 Related object and associated AMSA artefacts

There are currently no AMSA artefacts located at Cape Baily Lighthouse.

4.3 Comparative analysis

Cape Baily lighthouse is closest in design to two other AMSA-operated lighthouses, Stokes Point and Cape Liptrap.

Cape Liptrap is located in north-east Victoria and was built one year after Cape Baily in 1951 to replace an earlier 1913 lighthouse. Stokes Point is located on the southern end of King Island, Tasmania. Built in 1952, the lantern room was removed at a later date. Similarly to Cape Baily, Cape Liptrap and Stokes Point are simple square lighthouses

Both Stokes Point and Cape Liptrap vary markedly in design from Cape Baily as can be seen in Figures 17 & 18 below.

5.1 Commonwealth heritage listing –Cape Baily Lighthouse

The following information is taken directly from the Commonwealth Heritage listing for Cape Baily Lighthouse (Place ID: 105571).

Commonwealth statement of significance

The following statement of significance is taken directly from Cape Baily Lighthouse’s Commonwealth heritage listing:

Cape Baily Lighthouse, constructed during 1950-51, is significant for reflecting the ongoing development of navigational aids along the Australian coast during the twentieth century, and for its association with the post-war development of Botany Bay as a major port for Sydney. (Criterion A.4) (Themes: 3.8.1 Shipping to and from Australian ports, 3.16.1 Dealing with hazards and disasters)

The lighthouse is unusual in that it is comprised of a 1950s concrete tower and a late nineteenth century lantern. (Criterion B.2)

The tower, located on a rise behind dramatic cliffs, and rising above coastal vegetation and wetlands, is a landmark feature of the local area. (Criterion E.1)

Commonwealth heritage criteria

There are nine criteria for inclusion in the Commonwealth Heritage List, meeting any one of these is sufficient for listing a place. These criteria are similar to those used in other Commonwealth, state and local heritage legislation, although thresholds differ. In the following sections, Cape Baily Lighthouse is discussed in relation to each of the criteria as based on the site’s current Commonwealth Heritage Listing (Place ID: 105571)

These heritage values, identified and explained in the Commonwealth Heritage List, will form the basis of the management of Cape Baily Lighthouse. In the event of necessary works, all criteria will be consulted to inform best practice management of the values associated with the lighthouse. (See ‘Section 7. Conservation management policies’ for further information on strategies to conserve heritage values of Cape Baily Lighthouse)

5.2 Condition and integrity of Commonwealth heritage values

A heritage monitoring program was implemented in 2016. Each site is visited and reviewed every two years where the heritage fabric and values of the site are evaluated. Assessment of the condition and integrity of lighthouse's Commonwealth heritage values are derived from the latest available Heritage Asset Condition Report produced by AMSA’s maintenance contractor. 

‘Condition’ is measured from good to poor and incorporates the current condition of the specific value. Integrity is measured from high to low and incorporates the value’s intactness. Cape Baily Lighthouse’s Commonwealth heritage values and its associated attributes maintain good condition and high integrity.

The Commonwealth heritage values for Cape Baily Lighthouse exhibit good condition and high-medium integrity due to the incorrect information included in its listing.

5.3 Gain or loss of Commonwealth heritage values

Criterion B (Rarity) of the Commonwealth Heritage listing is incorrect. The lantern housed in Cape Baily was constructed in 1950 by Australian company Robison Brothers of Melbourne. However, the design of the Cape Baily Lighthouse is the only known example of its kind. It can be argued that there remains compliance with this criterion.  

Evidence for the potential gain or loss of heritage values will be documented within this section in future versions of the plan.

6.1 Implications arising from significance

The Commonwealth statement of significance (section 5.1 above) demonstrates Cape Baily Lighthouse is a place of considerable heritage value due to its association with aid to navigation efforts in the post-war period, its rarity and for its aesthetic qualities.

The implication arising from this assessment is that key aspects of the place should be conserved to retain this significance. The key features requiring conservation include:

• continued use of the lighthouse as an AtoN
• architectural quality of the building
• interior spaces and features, which are notable for their design, details and/or their original lighthouse function. These include:
  • lantern room
  • original lens assembly and pedestal
  • ground floor
• external spaces and features, which are notable for their design, details, and/or their original lighthouse function. These include:
  • lantern roof and glazing
  • lantern base
  • balcony and balustrades
  • walls
  • doors.

Referral and approvals of action

The EPBC Act requires approval from the Minister for the Environment for all actions likely to have a significant impact on matters of National Environmental Significance (NES).

The Act provides that actions taken:

• on Commonwealth land which are likely to have a significant impact on the environment will require approval of the Minister.
• outside Commonwealth land which are likely to have a significant impact on the environment on Commonwealth land will require approval of the Minister.
• by the Australian Government or its agencies which are likely to have a significant impact on the environment anywhere will require approval of the Minister.

The definition of ‘environment’ in the EPBC Act and Regulations includes the cultural heritage values of places.

Heritage strategy

If an Australian Government agency owns or controls one or more places with Commonwealth heritage values, it must prepare a heritage strategy within two years from the first time they own or control a heritage place (section 341ZA).

A heritage strategy is a written document that integrates heritage conservation and management within an agency’s overall property planning and management framework. Its purpose is to help an agency manage and report on the steps it has taken to protect and conserve the commonwealth heritage values of the properties under its ownership or control. The heritage strategy for AMSA’s AtoN assets was completed and approved by the Commonwealth Minister for the Environment in 2018, and this document was reviewed and updated in 2022. The AMSA Heritage Strategy 2022-2025 is available online.³¹

Heritage asset condition report

A heritage asset condition report is a written document that details the heritage fabric of a site with an in-depth description of each architectural and structural element. The document includes: a brief history of the site, the Commonwealth Heritage statement of significance and value criteria, a heritage significance rating for each individual element, and a catalogue of artefacts on-site. The document is also accompanied by up-to-date photos of each structural element. This document operates as a tool for heritage monitoring, and is reviewed and updated biennially.

Aboriginal cultural heritage and natural values

Cape Baily and Kamay Botany National Park as a whole is notable for Aboriginal cultural heritage and natural values. Although these values lie outside of the Commonwealth heritage listing curtilage and AMSA’s lease, the potential remains for future works at the lighthouse to impact these values. At the time this plan was written, no plans have been made for future works at Cape Baily Lighthouse. In the event major works at the lighthouse are to be carried out, AMSA will seek to minimise impacts to the surrounding area by:

• Utilising specific access tracks to ensure no damage to surrounding vegetation,
• Consulting with NSW NPWS to ensure work does not impact sacred areas or areas of environmental concern,
• Ensuring project footprint is limited to the AMSA lease. In any instance that work is required outside of this footprint, approvals will be sought from the appropriate stakeholders.

6.2 Framework: sensitivity to change

Owing to the site’s association with 20th century aids to navigation activities, its rare components, and aesthetic qualities, Cape Baily Lighthouse is of high significance. Therefore, work actioned by AMSA on the lighthouse’s fabric harnesses the potential to reduce or eradicate the significance of the site’s heritage values.

Conservation works, including restoration and reconstruction, or adaption works of the absolute minimum so as to continue the lighthouse’s usefulness as an AtoN are the only works that should be actioned by AMSA on Cape Baily Lighthouse. Some exceptions are made for health and safety requirements, however any and all work carried out must be conducted in line with heritage considerations and requirements of the EPBC Act.  

The table below demonstrates the level of sensitivity attributed to the various elements of the fabric register in the face of change. These are measured from high to low depending on the action’s possible threat to the site’s heritage values.    

High sensitivity

High sensitivity to change includes instances wherein a change would pose a major threat to the heritage value of a specific fabric, or the lighthouse as a whole. A major threat is one that would lead to substantial or total loss of the heritage value.

Moderate sensitivity

Moderate sensitivity to change includes instances wherein a change would pose a moderate threat to the heritage value of a specific fabric, or to the heritage significance of a specific fabric in another part of the building. A moderate threat is one that would diminish the heritage value, or diminish the ability of an observer to appreciate the value.

Low sensitivity

Low sensitivity to change includes instances wherein a change would pose little to no threat to the heritage value of a specific fabric, or to the heritage significance in another part of the building.

6.3 Statutory and legislative requirements

The following table lists the Acts and codes relevant to the management of Cape Baily Lighthouse.

6.4 Operational requirements and occupier needs

As a working AtoN, the operational needs of Cape Baily Lighthouse are primarily concerned with navigational requirements. Below are the operational details and requirements of the Cape Baily light as outlined by AMSA.

Navigation requirement for AMSA’s AtoN site

The following table is taken from AMSA’s Asset Management Strategy for the Cape Baily light.

AMSA’s goals

AMSA is responsible, under the Navigation Act, for maintaining a network of marine AtoN around Australia’s coastline that assist mariners to make safe and efficient passages. AMSA’s present network of approximately 500 marine AtoN includes traditional lighthouses such as Cape Baily, beacons, buoys, racons, automatic identification system stations, metocean sensors including broadcasting tide gauges, current meter, directional wave rider buoys and a weather station.

Technological developments in the area of vessel traffic management have also contributed to increasing navigation safety and helped promote marine environment protection. AMSA aims to meet international standards for the reliability of lighthouses set by the International Association of Marine Aids to Navigation and Lighthouse Authorities (IALA).

At the time of preparing this management plan, the major goal for Cape Baily Lighthouse primarily encompassed continuing its utilisation as an AtoN (for as long as necessary), while upkeeping the appropriate maintenance to conserve and preserve the heritage values of the lighthouse.

Lighthouse performance standards

AMSA aims to meet international standards for the reliability of lighthouses set by IALA. Cape Baily light is designated as an IALA Availability Category 1 AtoN (within a scale of Category 1 to Category 3, Category 1 aids are most critical). Category 1 aids have an availability target of 99.8 per cent.

Access to the lighthouse

One practical effect of this performance standard is that the operational equipment and structure of the light need to be kept in good repair by regular maintenance. Routine maintenance and emergency repairs are carried out by AMSA’s maintenance contractor. The contractor needs reliable access to the site for this work, and AMSA officers need access for occasional inspections of the site including to audit the contractor’s performance.

6.5 Proposals for change

Preventative maintenance works are carried out on the lighthouse to maintain its status as a working marine AtoN, and to assist in the site’s conservation.

A list of scheduled preventative maintenance work is identified within the latest available site inspection report. The information provided below was taken from this report.

6.6 Potential pressures

A significant pressure that harnesses the potential to affect the Commonwealth heritage values of the place would be the obligation to remove or replace original fabric materials from the lighthouse owing to unavoidable and irreversible deterioration.

At the time this plan was written, no current plans exist to remove or replace any original fabric materials from Cape Baily Lighthouse. In the event plans are made to modify or remove heritage fabric, work will be conducted in line with the heritage considerations and requirements of the EPBC Act.

6.7 Processes for decision-making

Processes for decision-making are required in the event of an incident that impacts the heritage values of the site. The following incidents are included due to their likelihood of occurrence at Cape Baily Lighthouse.

Policies

Note: The management of sensitive information is not relevant to AMSA’s heritage strategy and therefore bears no relevance in this management plan.

Fabric and setting

Policy 1 – Protect and conserve the significant external and internal fabric of the lighthouse, including existing buildings, layout and setting.

AMSA’s main purpose is to facilitate the ongoing operation of the site as a marine AtoN while preserving the site’s heritage values. As part of a heritage monitoring program, Heritage Asset Condition Reports are produced for each site every two years to evaluate the condition of the heritage fabric and values. Routine servicing is also carried out by maintenance contractors. Regular written reports from these visits will be sent to AMSA Asset Management and Preparedness for review and any work requirements identified will be scheduled accordingly. Should for some unforeseen reason the site no longer be viable as a marine AtoN, ownership will be passed to an appropriate state or federal authority to ensure preservation of the heritage assets. 

Implementation strategy:

• AtoN Maintenance Contractor will continue scheduled periodic maintenance of the lighthouse and marine aids to navigation every 12 months to ensure condition is monitored for early warning of deterioration. Schedule must be approved by AMSA Asset Management and Preparedness.
• AMSA Asset Management and Preparedness to arrange for maintenance to be carried out on the lighthouse as required while continuing to operate as an AMSA marine AtoN.
• AtoN Maintenance Contractor to continue scheduled heritage monitoring visits to Cape Baily Lighthouse and review of the Heritage Asset Condition Reports every two years.
• AMSA Asset Management and Preparedness to arrange for the replacement and upgrading of marine equipment in the lighthouse as required to meet AMSA’s service commitment, in a manner that preserves the original fabric of the lighthouse.
• AMSA Asset Management and Preparedness to maintain information on the heritage fabric of the lighthouse including any and all actions, treatments and inspection outcomes within the heritage fabric register. See ‘Section 4.1 for Fabric register’.
• AMSA Asset Management and Preparedness to conserve all the fabric elements identified as significant in the Heritage Asset Condition Report.
• AMSA Asset Management and Preparedness to seek expert materials conservation advice when considering repair, restoration and reconstruction of historic fabric. The relevant local, state and Commonwealth heritage approvals must be sought prior to repair, restoration and reconstruction.
• AMSA AtoN Heritage Coordinator to conserve the distinctive character of the lighthouse by collecting photographic evidence and historical documentation of the original fabric.

Uses

Policy 2 – Install and operate equipment in the lighthouse, so it continues to function as an effective marine AtoN, in such a way as to impose the least possible harm to the significant fabric.

Cape Baily Lighthouse’s use as a working marine AtoN is of high priority. Carrying out maintenance, including upgrades to navigational equipment, is necessary to its function and continued marine safety along the NSW coast. In the event of the installation or upgrade to AtoN equipment, proper precaution will be taken to ensure the least possible harm is done to significant fabric.

Implementation strategy:

• AtoN Maintenance Contractor to monitor Cape Baily’s AtoN equipment every 12 months and propose maintenance in the instance of necessary installation or removal. Proposed maintenance is to be approved by AMSA Asset Management and Preparedness.
• AMSA Asset Management and Preparedness to outline all possible risks to significant fabric (external and internal) associated with the installation, removal and operation of navigational equipment.
• AMSA Asset Management and Preparedness to ensure works carried out are those that ensure the least possible harm to significant fabric.
• AMSA Asset Management and Preparedness to seek expert heritage conservation advice on best practice management of the site during installation, removal and operation of AtoN equipment.  

Policy 3 – Monitor possible impacts to the site resulting from tourism and control appropriate access to the lighthouse for contractors and visitors.

Cape Baily Lighthouse is not currently open as a tourist site and access inside the lighthouse is restricted to authorised personnel, such as contractors and AMSA employees. AMSA personnel and contractors require easy access inside the lighthouse tower for periodical site visits to carry out inspections and routine maintenance.

Implementation strategy:

• AtoN Maintenance Contractor to ensure control of access to all buildings within the AMSA lease area is maintained by periodically inspecting restricted access areas during maintenance visits every 12 months.
• AtoN Maintenance Contractor to inspect lighthouse for signs of wear and tear attributed to visitor intake during yearly maintenance visit, and note changes in Heritage Asset Condition Report.
• AMSA Asset Management and Preparedness to ensure access to the lighthouse complies with workplace health and safety measures.
• AMSA Asset Management and Preparedness to ensure contractors are made aware of the heritage values of the lighthouse.
• AMSA Asset Management and Preparedness to ensure access to site is available for Aboriginal people to maintain cultural traditions.

Interpretation

Policy 4 – Accurate and relevant interpretation of the history and significance of the place should be made available to site users/visitors and for offsite external research.

AMSA will continue to make information available through the maintenance of site interpretive signage and its website.

Implementation strategy:

• All relevant information concerning the history and significance of the place will be checked for accuracy and updated appropriately.
• Information will be primarily presented in the form of online resource files, accessible to both relevant personnel and the general public. On-site signage will be installed where possible.
• This information will be maintained and updated in accordance with changes to the history and significance of the place.

Management

Policy 5 – AMSA will continue to conserve the lighthouse in accordance with Commonwealth heritage listing requirements.

For works requiring heritage approval, AMSA will obtain permission from any relevant state or federal authorities. Continuous and as-needed conservation works will be undertaken as required.

Implementation strategy:

• AMSA Asset Management and Preparedness to liaise with the relevant Commonwealth and State heritage agencies when proposing work on the site.
• AMSA Asset Management and Preparedness to consult with NSW NPWS when proposing work on site.
• Approval in writing from the relevant Commonwealth and State heritage authorities must be granted for any proposals for development.

Policy 6 – The cultural significance of the lighthouse will be the basis for deciding how to manage it.

The heritage values or cultural significance of the place must be conserved. This heritage management plan includes relevant background information to support this policy (see ‘Section 3 History’).

Implementation strategy:

• Conserve the lighthouse to protect its heritage values (cultural significance).
• When possible, strive to maintain the original fabric of the lighthouse.
• Use the Burra Charter as the primary guide for treatment of fabric.
• Engage appropriately qualified heritage consultants when making decisions regarding impact on heritage values.
• Assess impacts on the heritage values of the place when considering proposed alterations or adaptations.

Policy 7 – Monitor, review and report the Commonwealth heritage values of the lighthouse every five years or sooner if major changes to the lighthouse occur.

The Commonwealth heritage values of the lighthouse are to be monitored and reported on a regular basis. A Heritage Asset Condition Report is updated for Cape Baily Lighthouse every two years. The report records historical information, condition, and maintenance requirements for fabric within the lighthouse to ensure the gain and/or loss of heritage value is identified.  

Implementation strategy:

• AMSA Asset Management and Preparedness to regularly monitor the lighthouse for possible impacts on the identified Commonwealth heritage values.
• AMSA Maintenance Contractor to update the Heritage Asset Condition Report every two years, and AMSA AtoN Heritage Coordinator to review the reports.
• AMSA Asset Management and Preparedness to review the current Commonwealth heritage values at least once every five years and assess any gain/loss of values.
• This review must be undertaken in the event of any major alterations to the lighthouse.
• AMSA Asset Management and Preparedness to report any changes to the Commonwealth heritage values of the lighthouse to the Department of Climate Change, Energy, the Environment and Water (Heritage Branch).
• AMSA Asset Management and Preparedness to update AMSA’s Heritage Strategy and this plan to reflect any changes identified.

Policy 8 – Maintain historical, management and maintenance records within AMSA and make available these records. 

As part of the proper process for managing change in significant places, the Burra Charter points out the importance of making records before any change, and advocates placing records in a permanent archive and making them available where this is appropriate. AMSA’s collection of records, which include documents pertaining to heritage intervention, management and maintenance, are subject to this process. Heritage Asset Condition Reports are routinely generated for each heritage lighthouse and stored in AMSA’s record-keeping system. AMSA will continue to practice such processes via their records management systems.

Implementation strategy:

• AMSA Asset Management and Preparedness to maintain, review and update records through existing AMSA record management system.
• AMSA Asset Management and Preparedness to ensure records are made available to the relevant personnel and parties.

Policy 9 – Develop and provide appropriate training and resources to all relevant AMSA staff, contractors and licensees.

In order to ensure best practice management of AMSA-operated lighthouses, all staff, contractors and licensees are required to have access to the appropriate training and resources in order to provide best practice conservation of the site.  

Implementation strategy:

• AMSA Asset Management and Preparedness to provide staff, contractors and licensees access to up-to-date versions of the AMSA heritage strategy, heritage management plans and fabric registers.
• When funds are made available, AMSA Asset Management and Preparedness staff and contractors will undertake a relevant training to ensure comprehension of the Commonwealth heritage and EPBC Act statutory requirements.
• AMSA representatives will attend Commonwealth-run heritage workshops, programs and conferences for up-to-date information on statutory requirements and best-practice management of sites of national and state heritage significance.
• All current and incoming tour guides operating within AMSA lighthouses will be required to take the lighthouse tour guide safety induction e-learning module once every two years to stay informed on heritage values, visitor safety and duty-of-care for the site’s heritage values.

Policy 10 – Use contractors and service providers with appropriate experience.

AMSA is to ensure parties carrying out work have appropriate knowledge and use effective methods to ensure conservation of the lighthouse.

Implementation strategy:

• AMSA Asset Management and Preparedness to provide staff, contractors and licensees access to up-to-date versions of the AMSA heritage strategy, heritage management plans and fabric registers.
• Develop and provide the appropriate training on heritage conservation matters for AMSA staff and other relevant parties who hold responsibility for heritage management.

Policy 11 – Seek heritage advice and apply best heritage practice.

AMSA will continue to use in-house heritage expertise, external consultancy, or a combination of both as required in order to successfully apply best heritage practice. Should in-house heritage expertise be limited in responding to a requirement, external heritage expertise will be engaged to address the issue. 

Implementation strategy:

• Apply in-house heritage expertise when required.
• Use tools such as the Burra Charter and Working Together: Managing Commonwealth Heritage Places³³ to measure the likely impact of proposals.
• Seek external heritage expertise in the event of limited in-house capability.

Policy 12 – Appropriate protocol in the event of unforeseen discoveries or disturbances of heritage within the AMSA site.

AMSA’s scope of work rarely involves excavation. Should such work need be undertaken, AMSA will implement a suitable discovery plan and seek advice from suitably qualified personnel as required. In the event of any unforeseen discovery or disturbance of heritage-related items on the AMSA site, notification to the appropriate organisation will occur in accordance with the conditions of the discovery plan. This plan will also be updated accordingly.    

Note: In most cases, AMSA’s leases are limited to the immediate vicinity of the lighthouse and therefore this scenario is not anticipated as a likely occurrence.

Implementation strategy:

• Consult NSW NPWS in the instance an unforeseen discovery is made/suspected.
• Seek appropriate heritage advice and apply best practice in the event of unforeseen discoveries/disturbances.

Policy 13 – Make this heritage management plan available to all persons involved in decision-making on the management of the lighthouse and its setting.  

The plan will be made available to all personnel intrinsic to management of the lighthouse and its setting, for example AMSA maintenance contractors, staff and other relevant parties.

Implementation strategy:

• Provide links to this plan via the AMSA publicly accessible website.
• Provide copies to all relevant personnel and parties.

Future developments

Policy 14 – Adaptation of the place using methods or processes that minimise impact on heritage values and significance in accordance with the Burra Charter principles.

It is likely that over time the lighthouse will house new equipment as technology changes and improves. The Burra Charter principles will be used as the basis for decision-making.

Implementation strategy:

• Assess the likely impacts of changes on the heritage values and significance of the place.
• Preserve the original fabric of the place and do only what is necessary for the continued use and care of the place.
• Engage expert heritage advice and use the Burra Charter in adapting the place. 

Policy 15 – When required, engage with adjacent landowners to maintain an appropriate setting for the lighthouse in its visual and natural context.

Any changes to the surrounding land, or AMSA leased area, requires careful consideration. AMSA will liaise with all adjacent landowners in the event of any proposed changes that may affect the setting and attempt to influence a positive outcome.

Implementation strategy:

• AMSA Asset Management and Preparedness to engage with NSW NPWS through consultation when changes are proposed regarding the wider visual and natural context.

Policy 16 – In the event of adaptive re-use or divestment (an instance(s) which would no longer place the lighthouse under AMSA control), AMSA will strive to ensure the site’s Commonwealth heritage values are recognised and preserved.

In the event Cape Baily Lighthouse is no longer identified as a working AtoN, AMSA will withdraw its standing as lessee and hand over all authority to the lessor. This process must be conducted in line with s 341ZE of the EPBC Act.

Implementation strategy:

• AMSA will negotiate with lessor to have site lease terminated.
• All available heritage information within AMSA’s collection, including this heritage management plan, will be shared with the relevant parties to ensure the Commonwealth heritage values of the site are recognised and preserved. 

Community Involvement

Policy 17 – Consult with Aboriginal stakeholders and the general community in the preparation of the management plan.

AMSA will give community and Aboriginal stakeholders, as well as the general public, an opportunity to review and comment on this management plan through a public consultation process.

Implementation strategy:

• Undertake community consultation when preparing the heritage management plan in accordance with EPBC Regulations.
• Seek advice from any relevant Indigenous communities and refer to ‘Engage Early—Guidance for proponents on best practice Indigenous engagement for environmental assessments under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act)’³⁴ to guide consultations. 

Review

Policy 18 – Review this plan within five years of its adoption or sooner if major changes are needed.

This plan will be reviewed every five years. This review should:

• assess the content of the plan.
• determine its effectiveness in protecting the identified heritage values.
• provide any necessary recommendations for updating or re-writing of the plan. If major changes occur at the site in the interim, this plan will be reviewed and updated earlier than the specified five years.

Implementation strategy:

• Review this heritage management plan at least five years after its adoption.
• Review and update this heritage management plan in the event of a major change to the lighthouse.
• Submit revised plan for approval.

________________________________________________________________________

Footnotes

8.1 Plan and schedule

8.2 Monitoring and reporting

As stipulated by Schedule 7A of the EPBC Regulations, the outlined implementation plan and associated policies listed above are required to be monitored and updated accordingly. The below review process timetable will be adhered to over the next five years:

Other key actions in monitoring and reporting include:

• ensuring the implementation plan and policies are readily available for all relevant personnel
• delegating AMSA staff to periodically check the implementation plan is up-to-date and being utilised appropriately by the relevant personnel
• ensuring the timeframes outlined within the plan are followed

delegating AMSA Response staff to review this plan and the associated policies at least every five years and determine whether its contents are relevant and effective in terms of continuing to conserve the place.

The Burra Charter, from its first version (1979) and its current version (2013), defined a set of terms that have since been widely adopted in Australian heritage conservation practice.

Where the following terms are used in this heritage management plan, the particular meanings defined in the charter are intended. The definitions are quoted from Article 1 of the Burra Charter.

Adaptation means modifying a place to suit the existing use or a proposed use.

Associations means the special connections that exist between people and a place.

Compatible use means a use which respects the cultural significance of a place. Such a use involves no, or minimal, impact on cultural significance.

Conservation means all the processes of looking after a place to retain its cultural significance.

Cultural significance means aesthetic, historic, scientific, social or spiritual value for past, present or future generations. Cultural significance is embodied in the place itself, its fabric, setting, use, associations, meanings, records, related places and related objects. Places may have a range of values for different individuals or groups.

Fabric means all the physical material of the place including components, fixtures, contents, and objects.

Interpretation means all the ways of presenting the cultural significance of a place.

Maintenance means the continuous protective care of a place and its setting. Maintenance is to be distinguished from repair which involves restoration or reconstruction.

Meanings denote what a place signifies, indicates, evokes or expresses to.

Place means a geographically defined area. It may include elements, objects, spaces and view. Place may have tangible and intangible dimensions.

Preservation means maintaining a place in its existing state and retarding deterioration.

Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the introduction of new material.

Related object means an object that contributes to the cultural significance of a place but is not at the place.

Related place means a place that contributes to the cultural significance of another place.

Restoration means returning a place to a known earlier state by removing accretions or by reassembling existing elements without the introduction of new material.

Setting means the immediate and extended environment of a place that is part of or contributes to its cultural significance and distinctive character.

Use means the functions of a place, including the activities and traditional and customary practices that may occur at the place or are dependant on the place.

A

Apron paving – the concrete paving surround the base of the lighthouse tower.

Astragal – the bars which support the glazing of a lantern. They may also support the roof. Simply a framing member between the glazing bars in the lantern glazing. In its true meaning an astragal is a moulding that has a rounded profile. In lanterns this is almost never the case.

B

Balcony – a walk way around the outside of the lantern, used for maintenance and (formerly, when lighthouses were manned) for observing ships. Principal parts are the balcony floor and the balcony balustrade. (Synonym: gallery deck).

Balcony floor – floor of the balcony. Cape Baily has a balcony floor of 1950 concrete slab.

Balcony balustrade – a handrail together with its supports. The supports are called balusters. Simply a railing or wall on the outer perimeter of the balcony, to prevent people from falling off the balcony. Generally made of metal stanchions and rails – Cape Baily has balcony balustrades of 1950 non-ferrous metal solid rectangular bars. 

Balcony door – door in the lantern base to give access to the balcony. In AMSA lanterns two doors are sometimes fitted but only one is operational. (Synonym: parapet hatch, service room door). Cape Baily has a curved steel plate balcony door.

C

Candelas – International unit of measurement for the luminous intensity of a light.

Cast iron – a mixture of iron and carbon with a relatively high carbon content and a low melting point, produced directly from a blast furnace.

Chance Bros – English manufacturer of optical apparatus, lanterns, cast iron stairs, cast iron towers, and other lighthouse components. The Chance family established a glass-making business in Smethwick, England in 1824 and is often described as ‘near Birmingham’. The business was absorbed into the Pilkington group of companies in 1951 and now ceases to exist.

Character – pattern of flashes of light emitted by a lighthouse, designed to identify that particular lighthouse.

Copper – a red malleable metal of low resistivity.

I

Intensity – the strength of a light measured by candelas.

Iron – there were two common types of iron used in lighthouse construction; wrought and cast. Older lights will almost certainly contain these iron types. Wrought iron has been worked by hand and is an iron alloy with a very low carbon content in contrast to steel, it also has fibrous inclusions. Cast iron is iron which has been heated until it liquefies, and is then poured into a mould to solidify.

L

Lantern – the glazed enclosure, usually of cylindrical or polygonal shape, at the top of a lighthouse, which surrounds and protects the optical apparatus. It contains the optical apparatus, made up of the lantern roof, lantern glazing and lantern base sections.

Lantern floor – the level in a lighthouse at which the lantern is installed, and by which access may be gained to the optical system and to the inside and outside of the lantern glazing. The lantern floor is generally at or near the same level as the catwalk and cane be made from steel, concrete, or timber. Cape Baily has a lantern floor of 1950 reinforced concrete.

Lantern glazing – the middle section of the lantern, circular or polygonal in plan, between the lantern roof above and the lantern base below, made up of glass panes held in a framework of glazing bars. On the landward side there may be blank panels in place of glass, or other opaque construction. Types of lantern glazing include: flat & curved trapezoidal panes and curved diamond/triangular panes. Cape Baily has curved trapezoidal panes.

Lantern roof – the roof of the lantern. Usually made of copper sheeting over a framework of rafters.

Lens assembly – a transparent optically refracting element of glass. The surface is usually spherical in form.

Light source – electric bulbs now illuminate most lighthouses.

Lighthouse – the principal structure of a lightstation, generally made up of a lantern, balcony and tower.

Lightstation – a precinct containing a lighthouse structure and other related buildings, for example. Keepers’ cottages, store room, signal house. 

O

Order – a shorthand expression of the size of an optical apparatus or lantern. At the time the system of orders was established, when kerosene burners were used, longer range lights needed larger burners, and larger burners needed lens assemblies of longer focal length to ensure a sharply defined beam. Thus in turn the lantern rooms were required to be larger to house these lens assemblies. AMSA historic lantern rooms range from 1st to 4th order.

P

Pedestal – part of the optical apparatus, consisting of a metal column or base standing on the balcony floor inside the lantern and supporting the lens assembly and light source. Some later Chance documentation (such as their tariffs 1908) also refer to the lantern base as a pedestal.

R

Robinson Brothers & Co. – Established in 1854, Robison Bros. & Co. Pty Ltd were manufacturing engineers, brass founders and coppersmiths. The company manufactured machinery in Melbourne during the latter half of the nineteenth century. Throughout their long history Robison's played a significant role in the development of Victoria. Among many of their projects were the installation of security bars at Pentridge Goal, the Dight's Falls pumping station to supply water to Albert Park Lake via the botanical gardens, the first successful refrigeration plant to ship frozen meat to England, manufacture of brewing vats, bitumen tankers, diving helmets and gun carriages.

T

Tower – structure to support the lantern at a sufficient height above the ground. The most common types are the masonry tower, timber-framed tower, cast iron tower, and lattice tower. Cape Baily has walls consisting of 1950 concrete.

CAPE BAILY LIGHT - NSW

(Est 1950, Solar Conversion 3/2/87)

IALA AVAILABILITY

CATEGORY:                       1

PERFORMANCE

CRITERIA

(AVAILABILITY):                 99.8%

POSITION:                         Latitude:     34 02.2000' S

                                           Longitude: 151 13.3000' E

                                           Datum: WGS 84

BA LIST OF LIGHTS:          K 2622

DAYMARK:                         White square concrete tower and white lantern room, 9 metres high

HEIGHT OF DAYMARK:      9 metres

COLOUR OF LIGHT:           White

CHARACTER:                   Flashing (4) in                16.0 seconds

                                           Flash:                                1.0 seconds

                                           Short Eclipse:                  2.0 seconds

                                           Long Eclipse:                   6.0 seconds

LENS:                                 Chance Bros. 375mm focal radius

LANTERN:                          C.L.S. 7' 1" diameter

LIGHT SOURCE:                 Lamp: 12V 35W C8 Halogen LP PR30S

                                             Lampchanger: 6 position

ELEVATION:                       55 metres

RANGE:                              Nominal:                        13 nautical miles

                                           Geographical:                20 nautical miles

Australia ICOMOS. The Burra Charter: The Australia ICOMOS Charter for Places of Cultural Significance. Australia ICOMOS, 2013.

Australian Heritage Database, “Cape Baily Lighthouse, Sir Joseph Banks Dr, Kurnell, NSW, Australia.” Commonwealth Heritage List. Accessed November 2020.

Australian Heritage Database, “Cape Baily Lighthouse, Sir Joseph Banks Dr, Kurnell, NSW, Australia”. Accessed November 2020.

Australian Heritage Database, “Kurnell Peninsula, Cape Solander Dr, Kurnell, NSW , Australia”. National Heritage List. Accessed November 2020

Australian Maritime Safety Authority. AMSA Heritage Strategy 2022-2025. Australian Maritime Safety Authority, 2022

Australian Maritime Safety Authority. “AMSA Interactive heritage lighthouse map.” Accessed May 2020.

Australian Maritime Safety Authority. Annual Report 2020-21. Australian Maritime Safety Authority, 2021

Australian Maritime Systems Group. Cape Baily Lighthouse: Heritage Asset Condition Report, 3rd Revision. Australian Maritime Systems Group, 2020.  

Benson, Doug, and Georgina Eldershaw. “Backdrop to encounter: the 1770 landscape of Botany Bay, the plants collected by Banks and Solander and rehabilitation of natural vegetation at Kurnell.” Cunninghamia, (Jan 2007): 115-118.

Commonwealth of Australia. Engage Early—Guidance for proponents on best practice Indigenous engagement for environmental assessments under the Environment Protection and Biodiversity Conservation Act 1999 (EPBC Act). Commonwealth of Australia, 2016. 

Commonwealth of Australia. Working Together Managing Commonwealth Heritage Places: a guide for Commonwealth agencies. Commonwealth of Australia, 2019.

Commonwealth of Australia Gazette. “Department of works and housing: tenders accepted.” August 3, 1950.

Cromwall, R.E. Cape Baily, NSW – History of Apparatus purchase. NSW Marine Branch, 1938.

Daily Commercial News and Shipping List (Sydney). “Marine inquiry.” May 26, 1937.

Department of Fuel, Shipping and Transport. Notice to Mariners, No. 15. Commonwealth of Australia, 1950.

Department of Shipping and Fuel. Brief specification: New lighthouse tower, Cape Baily, New South Wales. NSW State Government, 1948.

Graham Brooks and Associates. Supplementary information Cape Baily Lighthouse: NPWS Lighthouses Conservation Management and Cultural Tourism Plan. NSW: NSW National Parks and Wildlife Service, 2001.

Lightstation Cape Baily NSW Tower, Lantern and Optical Apparatus. File 66/1173. Australian Maritime Safety Authority Archives.

Marine Branch. Cape Baily, NSW- Intended new light: Examination of sites, etc. NSW Marine Branch, 1930.

Marquis-Kyle, Peter. Heritage Lighthouse Report: Cape Baily. Australian Maritime Systems Group, 2006.

National Archives of Australia: Department of Finance; SP155/1, Specifications, 1881-1950; MISC21994L, Cape Baily Specification for erection and completion of lighthouse. 17 February 1950. [Box 201], 1950-1950.

NSW National Parks & Wildlife Service. “Captain Cook’s Landing Plan”. Accessed October 2020.

NSW National Parks & Wildlife Service. Kamay Botany Bay National Park Plan of Management. Parramatta, NSW NPWS, 2020.

Searle, Garry. First Order: Australia’s Highway of Lighthouses. SA: Seaside Lights, 2013.

Sutherland Shire Libraries. “Cape Baily Lighthouse.” Published June 2020.

Tomlinson, Charles. Cyclopaedia of Useful Arts, mechanical and chemical, manufactures, mining and engineering, Vol II. London & New York: ca. 1866.

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Acknowledgements

The Australian Maritime Safety Authority acknowledges Traditional Owners and other Aboriginal peoples of the region, their rich culture and spiritual connection to Country and Sea

Contact

Comments or questions regarding this document should be addressed to:

The Australian Maritime Safety Authority,
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PO Box 10790,
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Figure 1. Cover photo of Cape Baily Lighthouse (© AMSA, 2018)

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