6. 1 Implications arising from significance
The Commonwealth statement of significance (section 5.1 above) outlines that Cape Sorell Lighthouse is a place of considerable heritage value due to its associations with the development of navigational aids along the west coast of Tasmania.
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:
- architectural quality of the building
- interior spaces and features, which are notable for their design, details and original lighthouse function. These include:
- lantern room and fixtures
- intermediate floors
- ground floor
- spiral staircase
- external spaces and features, which are notable for their design, details, and original lighthouse function. These include:
- lantern roof
- external catwalk and balcony
- tower walls
- windows and doors
- outbuilding remnants.
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 the following actions require the approval of the Minister:
- Actions on Commonwealth land which are likely to have a significant impact on the environment
- Actions outside Commonwealth land which are likely to have a significant impact on the environment on Commonwealth land
- Actions by the Australian Government or its agencies which are likely to have a significant impact on the environment anywhere.
The definition of ‘environment’ in the EPBC Act and EPBC 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 the 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 is available online.25
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 heritage significance and natural values
Cape Sorell as a whole is notable for its Aboriginal heritage significance 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 Sorell 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,
- 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 including TAS PWS and Aboriginal Heritage Tasmania,
- Implementing an appropriate discovery plan in the instance Aboriginal cultural heritage is suspected and/or found.
6.2 Framework: sensitivity to change
Owing to the site’s rarity, configuration and aesthetic qualities, Cape Sorell 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 Sorell 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 on a High-Moderate-Low spectrum depending on the action’s possible threat to the site’s heritage values.
High sensitivity
High sensitivity to change includes instances where 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 where 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 where a change would pose little or no threat to the heritage value of a specific fabric, or to the heritage significance in another part of the building.
| Component | Level of sensitivity | Nature of change impacting heritage values |
| Cape Sorell Lighthouse structure including helipad | High |
|
| Low |
| |
| Ground floor | High |
|
| Moderate |
| |
| Low |
| |
| Stairs | High |
|
| Low |
| |
| Walls | High |
|
| Low |
| |
| Intermediate floors | High |
|
| Low |
| |
| Windows and doors | High |
|
| Low |
| |
| Balcony | High |
|
| Low |
| |
| Internal and external catwalk | High |
|
| Low |
| |
| Lantern room | High |
|
| Low |
| |
| Lens and pedestal | Low |
|
| Outbuilding remnants | Moderate |
|
6.3 Statutory and legislative requirements
The following table lists the Acts and codes relevant to the management of Cape Sorell Lighthouse.
| Act or code | Description |
| Environment Protection and Biodiversity Conservation Act 1999 (Cth) | The Environment Protection & Biodiversity Conservation Act 1999 (Cth) requires agencies to prepare management plans that satisfy the obligations included in Schedule 7A and 7B of the EPBC Regulations. |
Environment Protection and Biodiversity Conservation Regulations 2000 (Cth) Schedule 7B | The Commonwealth Department of Agriculture, Water and the Environment determined these principles as essential for guidance in managing heritage properties.
|
| AMSA Heritage strategy 2018 | As the custodian of many iconic sites, AMSA has long recognised the importance of preserving their cultural heritage. This Heritage strategy is in response to section 341ZA of the EPBC Act which obliges AMSA to prepare and maintain a heritage strategy, and to:
The strategy derives from the AMSA Corporate Plan and achievements are reported through the AMSA Annual Report. The 2020-2021 AMSA Annual Report can be found online.26 |
| Navigation Act 2012 (Cth) | Part 5 of the Act outlines AMSA’s power to establish, maintain and inspect marine aids to navigation (such as Cape Sorell Lighthouse). (1) AMSA may:
(2) AMSA, or person authorised in writing by AMSA may, at any reasonable time of the day or night:
|
| Australian Heritage Council Act 2003 (Cth) | This Act establishes the Australian Heritage Council, whose functions are:
|
| TAS Historic Cultural Heritage Act 1995 (Tas) | This Act establishes the Tasmanian Heritage Council. Seven general functions and powers of the Heritage Council (1) The functions of the Heritage council are:
(2) The Heritage Council may do anything necessary or convenient to perform its functions. |
| National Parks and State Reserve Management 2002 (Tas) | Schedule 1, Section 8: Historic site The following objectives:
|
| Building Code of Australia/National Construction Code | The Code is the definitive regulatory resource for building construction, providing a nationally accepted and uniform approach to technical requirements for the building industry. It specifies matters relating to building work in order to achieve a range of health and safety objectives, including fire safety. As far as possible, Commonwealth agencies aim to achieve compliance with the Code, although this may not be entirely possible because of the nature of, and constraints provided by existing circumstances, such as an existing building. |
| Work Health and Safety Act 2011 (Cth) | The objectives of this Act include: (1) The main object of this Act is to provide for a balanced and nationally consistent framework to secure the health and safety of workers and workplaces by:
(2) In furthering subsection (1)(a), regard must be had to the principle that workers and other persons should be given the highest level of protection against harm to their health, safety and welfare from hazards and risks arising from work as is reasonably practicable. [Quoted from Division 2 of Act] This has implications for Cape Sorell Lighthouse of Australia as it is related to AMSA staff, contractors and visitors. |
6.4 Operational requirements and occupier needs
As a working AtoN, the operational needs of Cape Sorell Lighthouse are primarily concerned with navigational requirements. Below are the operational details and requirements of Cape Sorell Lighthouse as outlined by AMSA.
Navigation requirement for AMSA’s AtoN site
| 1 | Objective/rationale
| An AtoN is required at Cape Sorell to mark the cape itself and to provide a landfall mark for vessels entering Macquarie Harbour and Strahan. The AtoN is also required as a mark for coastal navigation for ships transiting the west coast of Tasmania. The AtoN further helps marking a number of unsurveyed areas both to its north-east and to its south. |
| 2 | Required type(s) of AtoN
| A fixed structure is required to act as a day mark. A distinctive light is required for use at night. |
| 3 | Priority/significance | An AtoN at this site is useful for the navigation of commercial ships. |
| 4 | Required measure of performance | The service performance of the AtoN must comply with the IALA Availability Target Category 3 (97.0%). |
5
| Primary and secondary means (if any) of identification | The day mark must be conspicuous. The existing 37-metre white masonry tower and lantern at an elevation of 51 metres meets this requirement. The light must comply with the requirements of rhythmic characters of light as per the IALA NAVGUIDE. The light must have distinct characteristics that are easy to recognise and identify. The present group flashing (2) white light every 15 seconds meets this requirement. |
| 6 | Visual range
| During daytime, the AtoN structure should be visible from at least five nautical miles. At night, the white light must have a nominal range of at least 17 nautical miles. |
| 7 | Radar conspicuousness | As the Cape itself provides a good radar echo, no additional radar enhancement is required for this site. |
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 500 marine AtoN includes traditional lighthouses such as Cape Sorell Lighthouse, 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 Sorell 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 Sorell’s light is designated as an IALA Availability Category 3 AtoN (within a scale of Category 1 to Category 3, Category 1 aids are most critical). Category 3 aids have an availability target of 97 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 condition so that equipment that fails in service is tended to quickly. 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.
| Maintenance | Estimated date of work |
| Light lantern change | 2023 |
| Lantern room paint | 2024 |
| Structure paint | 2026 |
6.6 Potential pressures
A significant pressure that harnesses the potential to effect the Commonwealth’s heritage values of the place would be the obligation to remove or replace original fabric materials from the lighthouse due to unavoidable and irreversible deterioration. At the time this plan was written, no current plans have been made to remove or replace any original fabric materials from Cape Sorell Lighthouse. In the event plans are made to modify or remove original 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 Sorell Lighthouse.
| Incident | Procedure |
| Major project/maintenance works proposed |
|
| Damage to lighthouse’s fabric (heritage significance) |
|
| Damage to lighthouse’s fabric (no heritage significance) |
|
| Light upgrade |
|
| Modification to lighthouse, such as adding of attachment |
|
| Unforeseen discovery of Indigenous artefacts on-site |
|
| Divestment of lighthouse from AMSA |
|
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