Appendix 6 Amendment C107 Mobil Altona Refinery Proposed

Hobsons Bay City Council 12 April 2016

Ordinary Council Meeting Agenda

Appendix 6

Amendment C107 – Mobil Altona Refinery – Proposed Removal of Heritage Overlay

Amendment C107 Altona Refinery

351-381 Millers Road, Altona

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Hobsons Bay Planning Scheme Amendment C107

THE ALTONA REFINERY Millers Road, Altona



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Executive Summary The Amendment applies to land recognised as the Mobil Refinery in Altona (the site) at 351-381 Millers Road in Altona North. The amendment applies only to part of the land situated north of Kororoit Creek Road, bounded by Millers Road to the west, Kororoit Creek Road to the south and the rail line to the north and east (the site).

The site is currently zoned Special Use 2 (SUZ2) and is affected by Heritage Overlay 202 (HO202), the Industrial Heritage Places Policy and the Industry Policy in the Hobsons Bay Planning Scheme.

The heritage overlay currently triggers the requirement for a planning permit for all buildings and works, including demolition, new buildings and routine maintenance and repairs. When the heritage overlay was first applied to the site in 2003, the intent was to prepare an ‘incorporated document’ to identify the circumstances that did not require a permit. To date, the incorporated has not been prepared.

Mobil have raised ongoing concerns about the effect that the heritage overlay has on triggering permit applications for works that would not require a permit under the Special Use 2 Zone. Mobil have requested Amendment C107 to the Hobsons Bay Planning Scheme to remove the Heritage Overlay from the Altona Refinery

Mobil have submitted the Altona Refinery Conservation Management Plan (CMP) in support of their application. The CMP concludes that it is the ongoing use of the refinery that is the most important conservation objective, rather than the retention of individual elements of heritage fabric. It highlights that the removal of elements of heritage fabric is appropriate and necessary to support the ongoing use of the refinery.

It is recommended that the conclusion of the CMP be supported, however it should be supported through the removal of the heritage overlay rather than an incorporated plan. Indeed, Council’s own Industrial Heritage Places Policy is based on the same ‘conservation by use’ principle and the assessment of planning permit applications using the current planning framework has repeatedly shown that the removal of heritage fabric in the Altona Refinery is considered necessary and appropriate to facilitate the historical use of the site, ensure its future viability and to achieve a balance between economic and conservation objectives.

The Amendment also corrects a minor error to the Schedule to the Special Use Zone.

The proposal has been assessed against the strategic assessment guidelines outlined in Ministerial Direction 11. The heritage overlay and an incorporated plan are no longer required to achieve conservation objectives at the Altona Refinery. In conclusion, it is recommended that Hobsons Bay City Council seek authorisation from the Minister to prepare and exhibit Planning Scheme Amendment C107 to the Hobsons Bay Planning Scheme to remove the Heritage Overlay form the land.



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Contents Executive Summary ................................................................................... 2

Contents ..................................................................................................... 3

The Subject Site and Surrounds ............................................................... 4

EXISTING LAND USE .................................................................................................................................. 4

Map 1 – Locality Plan ............................................................................................................................ 5

Existing Planning Controls ....................................................................... 6

ZONING ..................................................................................................................................................... 6

Map 2 – Zoning Map ............................................................................................................................. 7

PARTICULAR PROVISIONS ......................................................................................................................... 9

OVERLAYS .................................................................................................................................................. 9

Map 3 – Heritage Overlay (HO202) ..................................................................................................... 11

LOCAL POLICY .......................................................................................................................................... 12

Industry Policy ‐ Clause 22.02 of the Hobsons Bay Planning Scheme ................................................ 12

Industrial Heritage Places Policy ‐ Clause 22.01‐11 of the Hobsons Bay Planning Scheme ............... 12

REFERENCE DOCUMENTS ....................................................................................................................... 14

Hobsons Bay Heritage Study Amended 2014 ..................................................................................... 14

Industrial Land Management Strategy June 2008 (ILMS) ................................................................... 16

The Industrial Development Design Guidelines 2008 ......................................................................... 16

Background .............................................................................................. 17

INTRODUCTION OF HERITAGE CONTROLS ON THE ALTONA REFINERY .................................................. 17

PLANNING PERMITS ................................................................................................................................ 18

Photo 1 – Canteen and Auditorium – demolished 2015..................................................................... 20

Photo 2 – Thermofor Catalytic Cracker – to be demolished 2016 ...................................................... 20

Photo 3 – Administration Building – demolished 2014 ...................................................................... 20

CONSERVATION MANAGEMENT PLAN ................................................................................................... 21

Photo 4 – Administrative Building Millers Road ‐ front ...................................................................... 22

Photo 5 – Administrative Building Millers Road ‐ rear ....................................................................... 22

Analysis .................................................................................................... 23

Conclusion................................................................................................ 24



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The Subject Site and Surrounds 1. Amendment C107 applies to land recognised as the Mobil Refinery in Altona. The

amendment applies only to part of the land situated north of Kororoit Creek Road,bounded by Millers Road to the west, Kororoit Creek Road to the south and the rail line tothe north and east.

2. The site address is 351-381 Millers Road, Altona. The land is legally described as Lot 5TP850733, Lot 1 TP534082 and the eastern portion of Lot 9 TP850733.

3. The site has an approximate width of 413m and depth of 462m, with an approximate areaof 19ha. The site has a relatively flat topography.

4. The site fronts two main arterial roads, Millers Road and Kororoit Road.

5. The Refinery’s main operations are focused on the site. Mobil has broader land holdingsin the area, directly adjacent to the site. The adjacent properties to the east and to thenortheast comprise of a fuel storage tank farm, industrial and fuel processing buildingsand ancillary piping/transmission lines. The property to the north is a service station, astaff car park and vacant land with vehicle access achieved from both Kororoit CreekRoad and Millers Road.

6. The location and boundaries of the site are shown on Map 1 on page 5.

EXISTING LAND USE

7. The site was originally used for the production of lubricants and bitumen from 1949 andthen became one of the key petroleum fuel plant (refinery) in Australia in 1954.

8. The site is owned and operated by the Mobil Refining Australia Pty Ltd, a subsidiary ofExxonMobil who is the largest publicly traded international oil and gas company.

9. The refinery is an industry of State significance located in a core industrial precinct ofHobsons Bay. The Refinery supplies half of Victoria's fuel needs, playing a very importantrole in Victoria’s fuel supply chain and transport system. It produces around 12 millionlitres of refined products per day (enough to fuel 300,000 cars).

10. The refinery operates 24 hours a day, 365 days a year processing crude oil into the fullrange of petroleum products, including unleaded petrol (60 per cent), diesel (30 per cent)and jet fuel (per cent).



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Map 1 – Locality Plan



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11. The refining process involves imported crude oil arriving via tanker at Gellibrand wharf inWilliamstown and then being transported to the refinery via pipeline or tanker or Victoriancrude oil being transported by pipeline from the Gippsland/Bass Strait oil and gas fields.At the refinery, the crude oil goes through various processes and then the refinedproducts are pumped into storage tanks to await distribution. There are almost 100storage tanks at the Altona Refinery.

12. Around 90 per cent of products are then transported by pipeline from the refinery to MobilYarraville terminal and other oil company terminals for distribution by road throughoutVictoria and into parts of South Australia and New South Wales. Jet fuel is transporteddirectly from the refinery to Somerton, where it is then provided to Melbourne Airport. Therefinery supplies LPG as feedstock to the nearby Altona chemical complex, which in turnsupplies feedstocks to other petrochemical manufacturing plants at Altona. These plantsproduce the raw materials from which a multitude of consumer products are madeincluding adhesives, plastics, film, wire insulation, car batteries and tyres.

13. The refinery has invested $300 million in maintenance/improvements since 2008 and isplanning to invest another $90 million in the facilities in the next three years.

14. The Altona refinery current employs more than 350 people, with around forty per centliving in nearby suburbs.

15. Mobil provides funding support to local schools, hospitals, environmental projects andcommunity organisations.

16. The Altona Refinery Community Liaison Committee, including representatives of HobsonsBay City Council, local residents and refinery management, meets four times a year andmeetings are open to all interested people in the local area. A newsletter is distributed toover 20,000 households to coincide with the meetings. At the meetings, Mobil reports onthe refinery’s operations and environmental and safety performance and provides updateson progress achieved to meet targets and initiatives.

Existing Planning Controls ZONING

17. The site is zoned Special Use Zone Schedule 2 Petroleum Refining Area (SUZ2) in the Hobsons Bay Planning Scheme, as shown in Map 2 on page 7.



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Map 2 – Zoning Map

18. The provisions for the Special Use 2 Zone are contained in Clause 37.01-2 of theHobsons Bay Planning Scheme.

19. The purpose of the Special Use 2 Zone is:

to provide for the operation and modernisation of the petroleum refining industry in amanner that does not affect the safety and amenity of nearby residential areas

to provide for the orderly and proper development of the area and for adequatelandscaping to reduce the visual impact of the refinery

20. The only permitted major land uses on this land are a petroleum refinery, car park andservice station. All other land uses are prohibited.

21. For the purposes of the Special Use 2 Zone, a petroleum refinery is defined as an industryusing plant, equipment and facilities for the conversion of crude oil and other feed stocksinto finished or intermediate petroleum products and by-products. This includes facilitiesfor the receipt of crude oil and other feed stocks, facilities for the storage of crude oils,intermediate and finished products and by-products, pumping, pipeline and distributionfacilities, units for the removal and control of impurities and by-products, waste treatmentfacilities, utilities including steam raising and electrical generating equipment, control



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rooms, laboratories, research facilities, administration, warehousing, maintenance, training and amenity buildings and facilities and other associated works.

22. The use of the land for a petroleum refinery is exempt from the standard and reducedparking requirements of Clause 52.06 of the Hobsons Bay Planning Scheme if parking isprovided on the site to the satisfaction of the responsible authority.

23. A permit is required to construct a building or construct or carry out works. This does notapply to a building or works which:

provide or alter plumbing and electrical services involve the minor rearrangement of car parking areas and landscaping provided that

these areas are not diminished rearrange, alter or renew plant if the areas of plant external to existing buildings is not

increased are a temporary shed or structure, not exceeding 100 square metres in floor area,

which is outside driveway, car parking, loading or landscaping areas any works carried out by a public authority or a municipal council in association with

the development of new plant or buildings comply with a direction or licence under the Dangerous Goods Act 1985 or a Waste

Discharge Licence, Works Approval or Pollution Abatement Notice under theEnvironment Protection Act 1970

24. Before deciding on an application to construct a building or construct or carry out works,the responsible authority must consider a range of matters including:

the State Planning Policy Framework and the Local Planning Policy Framework,including the Municipal Strategic Statement and local planning policies

views of the Environment Protection Authority, the Department of Natural Resources andEnvironment, the Minister administering the Dangerous Goods Act 1985 and the relevantwaterway management authority (about any works proposed in the flood plain of KororoitCreek)

drainage of land adequacy of information supplied availability of services the layout of the site and design of buildings including methods of minimising the visual

impact of the refinery on nearby residential areas, Kororoit Creek Road, Millers Road,Kororoit Creek, Altona Coastal Park and Cherry Lake

the layout of the site and design of buildings including the relationship of the buildingsand works to the street and adjoining properties and the set backs from Millers Road andKororoit Creek Road



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PARTICULAR PROVISIONS

25. Other permit exemptions, potentially relevant to the Altona Refinery are listed in Clause62.02 of the Hobsons Bay Planning Scheme and include:

buildings or works, which provide for fire protection under relevant legislation gardening buildings or works which are a modification necessary to comply with a direction

under the Dangerous Goods Act 1985 or the Occupational Health and Safety Act2004 or a Waste Discharge Licence, Works Approval or Pollution Abatement Noticeunder the Environment Protection Act 1970

buildings and works associated with a telecommunications facility if the requirementsof Clause 52.19 are met

a temporary shed or temporary structure for construction purposes, or a temporaryportable land sales office located on the land for sale

oil pipelines repairs and routine maintenance to an existing building or works removal, destruction or lopping of trees and the removal of vegetation demolition or removal of a building or works unless a permit is specifically required for

demolition or removal

26. Advertising signs within the Special Use 2 Zone are Category 2. Advertising signprovisions are at clause 52.05 of the Hobsons Bay Planning Scheme. Category 2provides for adequate identification signs and signs that are appropriate to office andindustrial areas, with a limited level of advertising control. A planning permit is notrequired for a business identification sign or pole sign provided that the totaladvertisement area of all signs to each premises does not exceed 8 square metres (sqm)(excluding a direction sign). A permit is also not required for a direction sign and aninternally illuminated sign, provided the advertisement area must does not exceed 1.5 sqmand the sign is more than 30 metres from a residential zone or pedestrian or traffic lights.All other signs require a planning permit. No signs are prohibited.

OVERLAYS

27. The purpose of the Heritage Overlay is:

to conserve and enhance heritage places of natural or cultural significance to conserve and enhance those elements which contribute to the significance of

heritage places to ensure that development does not adversely affect the significance of heritage

places

28. The Heritage Overlay overrides any exemptions in the Special Use 2 Zone and triggersthe requirement for a planning permit to undertake most development activities, including:



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subdivide land demolish or remove a building construct a building or construct or carry out works, including a fence, externally

altering a building by structural work, rendering, sandblasting or in any other way,constructing or displaying a sign, externally painting an unpainted surface, externallypaint a building if the painting constitutes an advertisement, carry out works, repairsand routine maintenance which change the appearance of a heritage place or whichare not undertaken to the same details, specifications and materials

29. Before deciding upon an application in the Heritage Overlay, Council must consider:

the State Planning Policy Framework and the Local Planning Policy Framework,including the Municipal Strategic Statement and local planning policies.

the significance of the heritage place and whether the proposal will adversely affectthe natural or cultural significance of the place

any applicable statement of significance, heritage study and any applicableconservation policy

whether the location, bulk, form or appearance of the proposed building willadversely affect the significance of the heritage place

whether the location, bulk, form and appearance of the proposed building is inkeeping with the character and appearance of adjacent buildings and the heritageplace

whether the demolition, removal or external alteration will adversely affect thesignificance of the heritage place

whether the proposed works will adversely affect the significance, character orappearance of the heritage place

whether the proposed subdivision will adversely affect the significance of theheritage place

whether the proposed subdivision may result in development, which will adverselyaffect the significance, character or appearance of the heritage place

whether the proposed sign will adversely affect the significance, character orappearance of the heritage place

whether the lopping or development will adversely affect the health, appearance orsignificance of the tree

30. The site is covered by a Heritage Overlay as shown on the Planning Scheme Map No.9 asHO202. The extent of the Heritage Overlay is shown on map 3 on page 13. Theprovisions for the Heritage Overlay are contained in Clause 43.01 of the Hobsons BayPlanning Scheme and the relevant schedule. The Altona Refinery is listed in the scheduleto the Heritage Overlay as the Standard Vacuum Refining Company Complex (former).The schedule to the overlay provides further provisions for the overlay which may beapplied to individual overlays. This overlay states:



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external paint controls internal alteration controls tree controls do not apply buildings or fences are not exempt under clause 43.01.3 prohibited uses may not be permitted the refinery is not included on the Victorian Heritage Register as being of state

significance or recorded as an Aboriginal heritage place there are currently no incorporated plans under Clause 43.01-2

Map 3 – Heritage Overlay (HO202)



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LOCAL POLICY

Industry Policy - Clause 22.02 of the Hobsons Bay Planning Scheme

31. This policy applies to all land in the Industrial 1 Zone, Industrial 3 Zone, Mixed Use Zoneand Special Use Zone Schedules 2, 3, 4 and 5, including the subject site.

32. The policy basis notes that the extensive areas of industrial land in Hobsons Bay is of vitaleconomic importance to the municipality and the State of Victoria and that Council has aresponsibility to the State and the region to help ensure the continuing viability of majorindustries within its borders. Major industries are substantial employers and are vitalelements in Victoria’s economic prosperity.

33. The policy notes that the use and development of this industrial land is also of greatimportance in determining the physical and environmental character of the municipalityand that it is particularly important that large industries play a major role in ensuring thattheir locality is visually attractive.

34. It is policy to:

have regard to the Hobsons Bay Industrial Land Management Strategy June 2008and the Hobsons Bay Industrial Development Design Guidelines June 2008 whenconsidering any applications for subdivision, use and/or development in any of thezones to which this policy applies

require applications to be accompanied by an of the use of the site, including thelikely type and frequency of heavy vehicles, the proposed routes to access the siteand the anticipated level of car parking that will be generated by the use of the site

ensure that the orientation of the site, landscaping and layout of new development isdesigned to enhance the amenity of the area, reduce energy use and optimisesnatural ventilation, daylight and solar access

ensure landscaping is provided within frontage and side setbacks to the street, tooutdoor car parking areas and where appropriate, along rear and side boundaries tothe satisfaction of the responsible authority

encourage quality architectural design within new industrial developments toenhance the character and visual amenity of Hobsons Bay

Industrial Heritage Places Policy - Clause 22.01-11 of the Hobsons Bay Planning Scheme

35. This policy applies to land zoned Industrial 1, Industrial 3 or Special Use that is includedwithin the Heritage Overlay, including the subject site.

36. The policy notes that a dominant theme in the development of Hobsons Bay has been thegrowth of industry with some of Victoria’s most significant industrial heritage now found



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within the city. Industries associated with engineering and fuels including coal, gas, electricity and petroleum have been dominant in Hobsons Bay over a long period of time.

37. The policy notes that the conservation of industrial heritage places presents specificmanagement issues, as it is often the use of the site that is of primary historicalsignificance. While fabric such as buildings or plant contributes to the significance ofindustrial heritage places by illustrating development over time, the on-going replacementand upgrading of this fabric is often an integral part of the operation of the use. The policyhighlights that ‘Conservation by use’ is an important heritage principle and on this basis,there may be circumstances where it may be appropriate to permit the removal oralteration of fabric if it will facilitate the historic use of a site and ensure its future viability.

38. The objectives of the Industrial Heritage Places Policy are:

to ensure the continued viability of industrial heritage places for the uses andprocesses historically carried out on the site as an essential part of their significanceand conservation

to increase awareness about the importance of industrial heritage in the municipality. to ensure that heritage issues are given appropriate consideration at an early stage

when making decisions about the future use and development of industrial sites to retain the distinctive cultural heritage significance of industrial heritage places

which is derived from:o the traditional and on-going use of industrial heritage places over a long periodo the important influence of the industrial heritage places on the economic and

social development of the cityo the sheer size and extent of nineteenth century industries in Newport and

Spotswood, which demonstrates not only their local economic importance, butalso their importance to the economy of Victoria

o the probable national significance of the Newport, Spotswood and North Altonaregion as one of the most historically important centres in relation to thedevelopment of the petroleum and petrochemical industries in Australia

o the surviving examples of early industrial building types, plant and equipmento the associated infrastructure such as railways, pipe-lines, roads and wharves that

are essential in understanding the complex historical interrelationships thatoccurred in the development of industries (particularly the petroleum andpetrochemical industries) in the area

39. The Industrial Heritage Places Policy requires applications for development to have regardto:

the continued viability of the historic use of the site the balance between achievement of conservation objectives and economic viability, and

occupational health and safety



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the conservation of fabric of primary significance unless the fabric has been maderedundant and is to be replaced by new buildings, plant or equipment

the retention of fabric of primary significance that is longer used in-situ if there is not animmediate need to remove or relocate it

keeping an appropriate record of any significant fabric that is removed or demolishedand is made to the satisfaction of the Responsible Authority

40. It is policy that before deciding on an application the Responsible Authority consider, asappropriate:

whether the proposed buildings, works or demolition will support the viability of thehistoric industrial use carried out on the site

whether there is an opportunity for redundant equipment to remain in-situ as historicevidence or for interpretation

whether the proposed interpretation will provide adequate information about the historicuse and development of the site.

REFERENCE DOCUMENTS

41. The following documents are referred to in the Municipal Strategy Statement, IndustryPolicy and the Industrial Heritage Places Policy and their content is required to beconsidered in any application to develop land at the Altona Refinery:

Hobsons Bay Heritage Study Amended 2014

42. The Heritage Study documents the themes that have shaped the municipality over the last165 years and identifies 33 precincts and 275 places of heritage significance in HobsonsBay and provides the strategic basis for the application of statutory controls via theHeritage Overlay, heritage policies and guidelines to protect, conserve and managementthe municipality’s heritage assets.

43. The Heritage Study contains a citation for the Altona Refinery (described as the formerVaccuum Oil Company Complex). The Study identifies the Altona Refinery, comprisingbuildings and plant generally constructed between 1949 – 1960 at 351-381 Millers Roadin Altona North, as having local historical, social, technical and aesthetic significance tothe City of Hobsons Bay.

44. Historically, it is significant for its strong associations with the development of the oilindustry in Australia as one of the oldest continuously operating oil refineries in thecountry. It is also significant as a major refinery and office complex that illustrates theimmense industrial expansion of the City and Victoria in the post World War 2 period. Thesize of the complex had a significant impact on the economy of the State of Victoria andled to the establishment of a petro-chemical complex within this area with a number of



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associated firms such as Australian Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex have associations with the important architectural firm of Stephenson & Turner.

45. Socially, it is significant for its strong associations with the local community as one of thefirst major industries in the Altona area and one of the largest employers over a longperiod. It is also significant for its associations with the development of the labourmovement in Australia through the introduction of the concept of collective bargainingtechniques, which were first used at this site.

46. Technically, it is significant for early plant and equipment such as the Thermofor CatalyticCracking Plant, which is unique in the State.

47. Aesthetically, although altered, the c.1955 office block is significant as a good example ofmodernist design that illustrates the progressive nature of the Standard-Vacuum companyand investment made in the establishment of the complex at the time.

48. The citation describes the complex as including the following buildings:

the refinery itself comprising various equipment, pipes, tanks and stacks, all set out on arectilinear grid between the railway, Millers Road and Kororoit Creek Road. It includesthe 248 feet high Thermofor Catalytic Cracking Plant (now decommissioned), which isthought to be the last vertical catalytic cracker in Australia

the auditorium, canteen and locker building, located at the north-east corner of KororoitCreek Road and Millers Road, which has a flat roof, is clad with cream bricks and hasaluminium framed windows with green glass panels. This is one of the buildingsdesigned by Stephenson & Turner

the former office/laboratory building (now the medical centre), which is a concrete blockwith a hip roof building facing Millers Road

the former Administration buildings, designed by Stephenson & Turner, on the southwest corner of the Millers-Kororoit Creek Roads intersection. This building was picturedin the guide to architecture in Victoria, which was produced by the RVIA for the 1956Olympics. This building has since been changed by a general renovation in recent times

a tank farm on the south side of Kororoit Creek Road. The number of tanks has beengreatly expanded since the 1940s

49. The Study found that the integrity of the plant is high to its 1940s-50s development stagesand thus it is perhaps the most complete complex of its kind in the region from this keyera.



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Industrial Land Management Strategy June 2008 (ILMS)

50. The ILMS is referred to in the Municipal Strategic Statement and the Industry Policy atClause 22.02 of the Hobsons Bay Planning Scheme and are used to assess anapplication to development land at the Altona Refinery in the Special Use 2 Zone.

51. The ILMS classifies the Altona Refinery as a ‘core industrial area’. Core industrial areasare defined as major concentrations of industry, which are relatively unconstrained byresidential or other sensitive uses. These areas will be protected and provide opportunitiesfor new growth, including the expansion of existing industries. Non-industrial protrusionsinto these areas are not supported and rezoning of land to non-industrial zones will not bepermitted.

52. The Altona Refinery is identified as precinct 10 in the ILMS. The strategic objectives forprecinct 10 are to:

support the ongoing operation of the Core Petroleum Refining Industry in Altona. improve the quality of the precincts appearance, with good levels of peripheral

landscaping. maintain the open, natural habitat nature of the land at the southwest corner. improve the appearance of the gateway location. minimise the visual impact of the structures within the refinery reduce impacts on residential amenity and the environment encourage incremental improvements to the visual and natural environment in the

vicinity of the refinery. improve the landscaped buffer around the perimeter of the refinery maintain monochromatic painting of storage tanks

53. The desired outcome is described as a Core Industrial area housing Petroleum Refiningactivities, with improved interfaces to all abuttal’s, and reduced amenity and environmentalimpacts’.

The Industrial Development Design Guidelines 2008

54. The Industrial Development Design Guidelines (IDDG) are referred to in the IndustryPolicy at Clause 22.02 of the Hobsons Bay Planning Scheme and would be required to beused to assess an application for development of land at the Altona Refinery in theSpecial Use 2 Zone.

55. The objectives of the IDDG’s are:

to ensure that the strategies and objectives for industry in Hobsons Bay, expressed inthe Guidelines, the Strategy, Municipal Strategic Statement and the local policies, are



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given effect in the determination of applications for industrial land uses and developments

to ensure that the objectives for each industrial precinct in the Strategy are giveneffect in the determination of applications for land uses and developments

to achieve high quality urban design and architecture that accords with Clause 19.03,(Design and Built Form) of the Hobsons Bay Planning Scheme

to improve the appearance and amenity of industrial areas to enhance the liveability, amenity and safety of the City to promote environmentally sustainable design

56. The IDDG’s provide guidance on the following matters:

site layout and built form traffic and car parking site access loading and services areas road network landscaping storage container storage waste lighting fencing water sensitive urban design energy Efficient urban design sustainable building materials.

57. In relation to the Altona Refinery (Industrial Precinct 10), the guidelines recommend abuilding setback of 20m from Kororoit Creek Road and 9m from other roads and alandscaping setback of 30m from the railway line, 50m from adjoining industrial zones and9m from all roads.

Background INTRODUCTION OF HERITAGE CONTROLS ON THE ALTONA REFINERY

58. The Altona Refinery was first identified as being of local heritage significance in 2001 inStage 1 of the Hobsons Bay Heritage Study (referred to as the Altona, Laverton, &Newport Districts Heritage Study).



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59. The Study recommended that the Refinery’s heritage assets be given statutory protectionthrough the application of the heritage overlay in the Hobsons Bay Planning Scheme.

60. The Heritage overlay was first applied to the Altona Refinery site in 2003, throughAmendment C17 to the Hobsons Bay Planning Scheme. The heritage overlay applied in2003 was known as HO149. The heritage overlay was renumbered to HO202, as part ofAmendment C34 in 2006.

61. Mobil objected to the application of heritage controls through Amendment C17 during theexhibition period in 2002, raising concerns about the potential impact of the application ofthe heritage overlay on the on-going viability of the refinery.

62. An Independent Planning Panel considered Mobil’s objection to Amendment C17 in 2002.The Panel recommended that:

the extent of exhibited HO149 is supported the amendment be modified to include an Incorporated Document to limit the extent

of the discretionary powers created by clause 43.01 to the fabric of those buildingsand those works whose local heritage fabric has been established by rigorousresearch. The Incorporated Document should be drawn narrowly in the first instanceto ensure that the discretion is not applied to buildings and works that do not have aclearly established local heritage

the Statement of Significance should be amended to exclude reference to the officeblock across the intersection (not in the heritage overlay) and to emphasis the valueof the ongoing operation of the refinery in support of the site’s heritage values

63. Council adopted Amendment C17 on March 2003 and resolved to prepare anIncorporated Document for the Altona Refinery, as recommended by the Panel at a laterstage.

PLANNING PERMITS

64. Between 2003 and 2014, Mobil have obtained a planning permit from Council to demolishthe following heritage fabric that was identified in the Hobsons Bay Heritage Study:

the auditorium and canteen (demolition completed) the thermofor catalytic cracker (demolition planned for 2016) administration building (demolition completed)

65. The heritage fabric that has been permitted to be removed to date has all been largehighly visible buildings or plant. Although they contribute to the heritage value of theRefinery, the removal of these structures will ensure the ongoing viability of the historicuse of the property, thereby preserving the heritage significance of the entire site.



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66. Photographs of the heritage fabric permitted to be removed since the introduction of theheritage overlay in 2003 are provided in page 22. A condition of all permits was therequirement to prepare a photographic archival record of the removed heritage fabric.

67. Mobil has raised ongoing concerns about the need to obtain permits to do essentialworks, due to the heritage overlay.



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Photographs of heritage fabric permitted to be removed since the introduction of heritage controls in 2003

Photo 1 – Canteen and Auditorium – demolished 2015

Photo 2 – Thermofor Catalytic Cracker – to be demolished 2016

Photo 3 – Administration Building – demolished 2014



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CONSERVATION MANAGEMENT PLAN

68. In 2015, Mobil engaged Biosis Pty Ltd to prepare the Altona Refinery Conservation Management Plan (CMP). A copy of the CMP is provided in Appendix 1.

69. The CMP provides an assessment of the cultural heritage values on the Altona Refineryand recommendations for future management. It contains conservation policy to providedirection and guidelines for conservation and adaptation or redevelopment of the site andits component parts, in a manner that addresses the significant elements. This is in thecontext of an operating facility, which requires on-going modification and change to thephysical fabric.

70. The CMP identifies the following 11 elements as being of primary significance:

administrative building switch and compressor house storage tanks distillery and bitumen plant lubricating oil warehouse drum filling building thermofor catalytic cracker (TCC) amenities (canteen and auditorium) no.3 changeroom warehouse / fire station cooling towers

71. The CMP identified the following six individual elements as being of contributorysignificance:

solulizer laboratory boiler house mechanical workshop horton spheres fluidised catalytic cracker

72. The location of individual significant elements are shown in the map within the CMP.

73. The CMP outlines how each of the significant elements are currently being used, theircondition and planned use. In summary, much of the historical fabric is considered to beredundant, needs to be upgraded or removed, doesn’t have any prospects for adaptive re-use, has asbestos, not fit for use, or is taking up space that could be used for new plant.



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74. At this stage, Mobil has indicated that future demolition of the following elements ofprimary significance is considered likely:

distillery and bitumen plan no.1 and no.2 cooling towers some of the storage tanks administration building on Millers Road (refer to Photo 1 )

Photo 4 – Administrative Building Millers Road - front

Photo 5 – Administrative Building Millers Road - rear

75. The CMP sets the following conservation policies for the Altona Refinery:

setting and curtilage views, vistas and visual relationships new buildings and works landscaping



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archival recording and documentation interpretation

76. The CMP states that the requirements for the preparation of archival records have beenpartly achieved through the preparation of the CMP. Mobil has advised that they willprovide a photographic recording of all structures to the satisfaction of Council prior to theAmendment being submitted to the Minister for approval.

77. A draft incorporated plan for the Altona Refinery was prepared by Mobil for discussion withCouncil officers in 2015. The proposed Incorporated Plan would have allowed thealteration and removal of all heritage fabric, without a planning permit so long as Mobilprepared and submitted photographic records of the fabric that was to be removed. Theproposed incorporated plan was effectively a back door demolition permit. This is not anappropriate way to use an Incorporated Plan and is contrary to the objective of theHeritage overlay. Council must ensure that the Victorian Planning Provisions are usedappropriately.

Analysis 78. Even with the heritage overlay, Council’s Industrial Heritage Places and Economic

Development policies in the Hobsons Bay Planning Scheme provide a framework thatsupports the demolish of heritage fabric at the Altona Refinery if considered under futureplanning permit applications.

79. It is policy to support the Altona Refinery as an industry of state significance in a coreindustrial area in Hobsons Bay. Council’s Industry Heritage Policy has a ‘conservation byuse’ basis, as recommended in the CMP that recognises the need to achieve a balancebetween conservation objectives and economic viability and occupational health andsafety.

80. Clarifying the policy that heritage fabric at the Refinery can be removed, means thatstatutory protection under the heritage overlay or through an Incorporated Plan are nolonger required. The heritage overlay tool is used to limit change and removal of heritagefabric.

81. Exxon Mobil operates in a fast paced global economic market, competing with other largerrefineries in the Asia-Pacific region. Its key strategy to staying competitive is throughcontinuous improvements/upgrades to facilities and plant. Exxon Mobil have plans forimprovements worth $80 million in the next three years.

82. Exxon Mobil have advised that the heritage overlay, triggering a permit for all buildingsand works, in the context of their budgeting cycles, can reduce Mobil’s ability to competefor funding for these works, particularly in terms of being ‘project ready’.

83. The underlying Special Use 2 Zone still requires Mobil to obtain a permit to construct abuilding and carry out works, with some exceptions including:



24

alterations to plumbing or electrical services minor rearrangement of car parking areas and landscaping rearrange, alter or renew plan if the areas of plant external to existing buildings is not

increased a temporary shed or structure not over 100sqm pipelines and works to comply with a direction or licence under certain OH&S

legislation

84. This still allows Council as the Responsible Authority to control the visual amenity of theRefinery to ensure it is consistent with the purpose of the Special Use 2 Zone, particularlyin relation to the protection of the visual amenity of the area.

85. The CMP contains a thorough analysis of the history of the Altona refinery and additionalphotographs of heritage fabric.

86. Mobil have agreed to photograph all of the fabric within the refinery that has beenidentified as having heritage values before the completion of the Amendment process.

87. In addition, the changes to the buildings and works exemptions under Clause 4.0 inSchedule 2 to the Special Use Zone should by supported. This clause incorrectlyreferences ‘other exemptions are listed in Clause 62.01’. This clause relates to uses notrequiring a permit rather than buildings and works not requiring a permit. Reference to thisclause has been deleted from the schedule as clause 62.01 applied irrespectively.

Conclusion 88. The conservation of the refinery can be achieved without the need for statutory protection

by way of the heritage overlay or an incorporated plan. Council’s Industry Heritage Policyhas a ‘conservation by use’ basis, as recommended in the CMP that recognises the needto achieve a balance between conservation objectives and economic viability andoccupational health and safety. Although the CMP recommends an Incorporated Plan asthe mechanism to implement the CMP, a more appropriate method of conservation by useis to remove the heritage overlay from the site to allow the Refinery to operate free fromheritage requirements. An appropriate archival photographic record of the heritage fabricwill be completed prior to the amendment being sent to the Minister for Planning forapproval.

© Biosis 2012 – Leaders in Ecology and Heritage Consulting www.biosis.com.au

Altona Refinery Conservation Management Plan

Prepared for Exxon Mobil

2015

Appendix 1

http://www.biosis.com.au/

© Biosis 2012 – Leaders in Ecology and Heritage Consulting www.biosis.com.au

Biosis Pty Ltd

This document is and shall remain the property of Biosis Pty Ltd. The document may only be used

for the purposes for which it was commissioned and in accordance with the Terms of the

Engagement for the commission. Unauthorised use of this document in any form whatsoever is

prohibited.

Disclaimer:

Biosis Pty Ltd has completed this assessment in accordance with the relevant federal, state and

local legislation and current industry best practice. The company accepts no liability for any

damages or loss incurred as a result of reliance placed upon the report content or for any purpose

other than that for which it was intended.

Biosis offices

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Phone: (02) 6241 2333

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Email: [email protected]

NEW SOUTH WALES

Sydney

Unit 14, 119 McEvoy Street

Alexandria NSW 2015

Phone: (02) 9690 2777

Fax: (02) 9690 2577


Wollongong

8 Tate Street

Wollongong NSW 2500

Phone: (02) 4229 5222

Fax: (02) 4229 5500


QUEENSLAND

Brisbane

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Phone: (03) 5331 7000

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Melbourne (Head Office)

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Port Melbourne VIC 3207

Phone: (03) 9646 9499

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Wangaratta

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Phone: (03) 5721 9453

Fax: (03) 5721 9454


Document information

Report to: Exxon Mobil

Prepared by: Gary Vines

Biosis project no.: 18706

File name: 18706.AltonaRefineryCMPv5.docx

Citation: Vines, G., 2015, Altona Refinery Conservation Management Plan,

for Exxon Mobil

Document Control

Version Internal reviewer Date issued

Draft version 01 GV 12/9/2014

Version 01 MT 7/1/2015

Version 02 GV 16/2/2015

Version 03 GV 28/8/2015

Final GV 9/8/2015

Acknowledgements

Tara Horsnell - Altona Refinery

Debbie Dodd – Exxon Mobil archives

Sonazi Sallay – Exxon Mobil archives

Katie Murphy - Tract Consultants Pty Ltd

Kendal Houghton – Biosis Pty Ltd

Liza McColl – Hobsons Bay City

http://www.biosis.com.au/

mailto:[email protected]







© Biosis 2012 – Leaders in Ecology and Heritage Consulting i

Summary

This report documents an assessment of the cultural heritage values of the Altona Petroleum Refinery, which

was established by Standard Vacuum Oil Company in the years immediately after World War II. Initially

constructed as part of a move to make Australia more self-sufficient in petroleum production, the refinery

went on to play a major role in the expansion of motoring and oil production. The first plant was primarily for

bitumen and lubricating oil, but in the 1950s petroleum production was greatly expanded with the

construction of the Thermofor Catalytic Cracker (TCC). Subsequent expansions have seen adaptation to

different crude sources such as Gippsland Crude, a wider variety of product such as LPG, and supply of

product to the Altona Petrochemical Complex. The refinery underwent a major expansion in the 1990s with

the replacement of the TCC with the Fluidised Catalytic Cracker (FCC).

The purpose of the present study is therefore to document the history of the site, provide a physical

description and statement of significance, and make recommendations for future management.

The conservation policy has been developed on the basis of the assessment of the cultural heritage

significance of the Altona Refinery. The purpose of the conservation policy is to provide direction and

guidelines for conservation and adaptation or redevelopment of the site and its component parts, in a

manner that addresses the significant elements. This is in the context of an operating facility which requires

on-going modification and change to the physical fabric. Accordingly, the directions and guidelines included

here should be considered in determining future strategies and outcomes for the Altona Refinery.

© Biosis 2012 – Leaders in Ecology and Heritage Consulting ii

Table of Contents

Summary .................................................................................................................................................................. i

Table of Contents ................................................................................................................................................... ii

1 Introduction ................................................................................................................................................. 1

1.1 Background .................................................................................................................................................................... 1

1.2 Study Area ...................................................................................................................................................................... 1

1.3 Heritage Listing and Legislative Obligations ........................................................................................................... 4

1.4 Consultation .................................................................................................................................................................. 6

1.5 Methodology ................................................................................................................................................................. 6

1.6 Limitations of the Study .............................................................................................................................................. 6

2 Historic Background ................................................................................................................................... 7

2.1 Origins of oil refining ................................................................................................................................................... 7

2.2 Oil and Petrol in Australia ........................................................................................................................................... 8

2.3 Vacuum Oil Company ............................................................................................................................................... 10

2.4 Vacuum Oil in Yarraville ........................................................................................................................................... 11

2.5 Establishment of Altona Refinery (1946-49) ........................................................................................................ 15

2.6 Expansion and renewal (1950s) ............................................................................................................................. 19

2.7 Expansion (1960s-90s) .............................................................................................................................................. 29

2.8 Recent Developments .............................................................................................................................................. 31

2.9 Chronology.................................................................................................................................................................. 33

3 Description of the Study Area ................................................................................................................. 35

3.1 Landscape context .................................................................................................................................................... 35

3.2 Buildings and Plant 1946-9 ...................................................................................................................................... 35

3.2.1 Administrative Building later Health Centre. ........................................................................................... 35

3.2.2 Switch House .................................................................................................................................................. 37

3.2.3 Distillery and Bitumen Plant ........................................................................................................................ 38

3.2.4 Lubricating oil warehouse ........................................................................................................................... 41

3.2.5 Drum filling building ...................................................................................................................................... 42

3.2.6 Demolished structures ................................................................................................................................. 43

3.3 Buildings and Plant 1950-56 ................................................................................................................................... 44

3.3.1 Amenities buildings ....................................................................................................................................... 44

3.3.2 Boiler house .................................................................................................................................................... 45

3.3.3 Thermofor Catalytic Cracker ....................................................................................................................... 45

3.3.4 Mechanical workshop ................................................................................................................................... 46

3.3.5 Warehouse – fire station .............................................................................................................................. 47

3.3.6 Laboratory ....................................................................................................................................................... 47

3.3.7 Solutizer ........................................................................................................................................................... 48

3.3.8 Cooling Towers ............................................................................................................................................... 48

3.3.9 Horton Spheres .............................................................................................................................................. 49

© Biosis 2012 – Leaders in Ecology and Heritage Consulting iii

3.3.10 Other building and plant .............................................................................................................................. 51

3.4 1960s and later additions ........................................................................................................................................ 51

3.4.1 Fluidised Catalytic Cracker ........................................................................................................................... 52

4 Comparative Assessment ........................................................................................................................ 53

5 Significance ................................................................................................................................................. 60

5.1 Existing statements of significance ........................................................................................................................ 60

5.2 Assessment against criteria .................................................................................................................................... 61

5.3 Significant Elements .................................................................................................................................................. 63

6 Conservation Policies Guidelines and Actions ..................................................................................... 66

6.1 Purpose of the conservation policy ....................................................................................................................... 66

6.2 Terminology and Methods ...................................................................................................................................... 66

6.3 Statutory Requirements ........................................................................................................................................... 67

6.4 Opportunities and Constraints resulting from Significance ............................................................................ 67

6.4.1 Need for the works ........................................................................................................................................ 67

6.4.2 Management .................................................................................................................................................. 68

6.4.3 Community and Public Stakeholders ........................................................................................................ 70

6.4.4 Future operation of the refinery ................................................................................................................ 70

6.5 Conservation Policies ................................................................................................................................................ 71

6.5.1 Conservation Works ...................................................................................................................................... 72

6.5.2 Repairs & Maintenance ................................................................................................................................ 72

6.5.3 Exteriors ........................................................................................................................................................... 72

6.5.4 Interiors ............................................................................................................................................................ 73

6.5.5 Setting & Curtilage ......................................................................................................................................... 73

6.5.6 Views, Vistas and Visual relationships ....................................................................................................... 73

6.5.7 New Buildings & Works ................................................................................................................................ 73

6.5.8 Landscaping .................................................................................................................................................... 73

6.5.9 Archival recording and documentation .................................................................................................... 73

6.5.10 Interpretation ................................................................................................................................................. 74

6.5.11 Archaeological investigation........................................................................................................................ 75

6.5.12 Updating Heritage Listings .......................................................................................................................... 75

6.5.13 Implementation and Review of the Conservation Policy ...................................................................... 75

7 Bibliography ............................................................................................................................................... 76

Appendices ............................................................................................................................................................ 78

Appendix A Hobsons Bay Council Letter from Council 15.07.14 Alternative mechanisms to permits .............. 78

Appendix B Draft Letter from Council 10 August 2014 Planning scheme Amendment ........................................ 1

Appendix C: Burra Charter .................................................................................................................................................. 10

© Biosis 2012 – Leaders in Ecology and Heritage Consulting iv

Figures

Figure 1: Location of study area (in red). ................................................................................................................................................... 2

Figure 2: Site plan, Altona Refinery Source: Courtesy Mobil.................................................................................................................. 3

Figure 3: Plan of extent of existing Heritage Overlay control ................................................................................................................ 5

Figure 4: Drivers, Vacuum Oil Company Depot, Yarraville .................................................................................................................. 10

Figure 5: Model of New Works for Vacuum Oil Company, The Argus 8 Jul 1925 ........................................................................... 13

Figure 6: Construction of Vacuum Company Oil depot, Yarraville, Victoria ca. 1929. This later view is probably for an

additional storage tank. .............................................................................................................................................................................. 13

Figure 7: Various logos used by Standard Vacuum and its successors ........................................................................................... 15

Figure 8: Model of the completed Refinery in 1950. ............................................................................................................................ 16

Figure 9: Aerial view of refinery 1952 ...................................................................................................................................................... 17

Figure 10: Tank Farm, store and lube oil building under construction. ........................................................................................... 17

Figure 11: Distillation tower from the slop tanks nearing completion. ............................................................................................ 17

Figure 12: Left to right – boiler house, transformer and switch house, amenities in front, office behind, and stores buildings

(COR refinery in distance) 17 Feb 1949. .................................................................................................................................................. 18

Figure 13: Operational flow diagram for original plant processes .................................................................................................... 18

Figure 14: Construction of the TCC 1954, photo Sievers, Wolfgang National Library, nla.pic-vn3419110 ............................... 20

Figure 15: Process diagram with new TCC and final products ........................................................................................................... 21

Figure 16: Model of proposed Altona Refinery expansion (Exxon Mobil Archives) ....................................................................... 22

Figure 17: Aerial View of Altona Refinery Feb 1953, showing preparations for construction of TCC and new tanks ............ 23

Figure 18: Plan of newly expanded refinery showing original and new structures. ..................................................................... 23

Figure 19: Standard Vacuum Oil Refining Company Ltd, Refinery, Altona, Victoria. Aerial View of General Development,

1952 ................................................................................................................................................................................................................ 24

Figure 20: Brief article on new office building by Stephenson & Turner. ........................................................................................ 25

Figure 21: Plaque unveiled 4 April 1955 opening ceremony, and the dignitaries touring the plant ......................................... 25

Figure 22: Altona Refinery 1955, by Charles William Bud (1919-1989) ............................................................................................ 26

Figure 23: Construction of cooling tower 1954, Sievers, Wolfgang, National Library of Australia, nla.pic-an24882807 ....... 27

Figure 24: View of Mobil Altona Refinery showing Horton Spheres and TCC, 1956 Sievers, Wolfgang, National Library of

Australia, nla.pic-an24876126 ................................................................................................................................................................... 27

Figure 25: Refinery by night 1956 1954, Photo Sievers, Wolfgang, National Library of Australianla.pic-an24883930 ......... 28

Figure 26: Staff of the Altona refinery, Victoria in 1954. Photo Sievers, Wolfgang, National Library .nla.pic-an24876601 ... 28

Figure 27: Refinery from the Air in the 1950s – TCC operating and first of the cooling towers in place .................................. 29

Figure 28: Altona Refinery in the 1960s (Wolfgang Sievers photo State Library Victoria) ............................................................ 30

Figure 29: Automated control room in the 1960s (Wolfgang Sievers Photo, State Library Victoria) ......................................... 31

Figure 30: Fluid Catalytic Cracker being transported through the Western Suburbs to the refinery site ................................ 32

Figure 31: Gatehouse (demolished) with former Administration building behind 6 Dec 1949 (Exxon Mobil Archives) ....... 36

Figure 32: Administrative Building under construction 9 Dec. 1948. (Exxon Mobil Archives Photo Album 35/23) ................ 36

Figure 33: Administration building from the south east. .................................................................................................................... 37

Figure 34: Administration building from Millers Road ......................................................................................................................... 37

Figure 35: Switch and compressor house with (demolished) boiler house behind 18/1/1948 (Exxon Mobil Archives album

39/44) .............................................................................................................................................................................................................. 38

Figure 36: Compressor and Switch gear building, 2015 ...................................................................................................................... 38

Figure 37: Pipe Still 27/7/1949 (Exxon Mobil Archives Albums 46/6) ................................................................................................ 39

Figure 38: Vacuum distillation tower under construction 27/7/1949 (Exxon Mobil Archives Albums 46/26) ......................... 39

Figure 39: Location of No 1 Crude unit reused for later plant, 2014 ................................................................................................ 40

Figure 40: Storage Tanks and pipe gantry from original Bitumen plant, 2014 ............................................................................... 40

Figure 41: Bitumen tanks and rail loading gantries from the north, 2015 ...................................................................................... 41

Figure 42: Lube. Oil building under construction 27/7/1949 (Exxon Mobil Archives Albums 46[28) ........................................ 41

© Biosis 2012 – Leaders in Ecology and Heritage Consulting v

Figure 43: Lube Oil Warehouse from the Millers Road bridge, 2014................................................................................................ 42

Figure 44: Bitumen Drum filling building with rail loading at top, 2014 .......................................................................................... 42

Figure 45: Lube oil packing building, 2014 ............................................................................................................................................. 43

Figure 46: Wagon Loading/Tanker filling station (demolished) 15 Dec 1949 (Exxon Mobil Archives, album No22) .............. 43

Figure 47: Amenities building – auditorium and canteen from the south west, 2015 ................................................................. 44

Figure 48: Canteen interior looking east, 2014 ...................................................................................................................................... 44

Figure 49: Auditorium interior facing south east, 2014 ....................................................................................................................... 45

Figure 50: 1950s Boilerhouse and water tank on left, 1948 Switch house centre, 1950s laboratory on right. ....................... 45

Figure 51: TCC in the 1960s (Exxon Mobil Archives) ............................................................................................................................. 46

Figure 52: Mechanical Workshop in 2014 showing recladding.......................................................................................................... 46

Figure 53: Prefabricated warehouse building........................................................................................................................................ 47

Figure 54: Laboratory building from the north east, 2015.................................................................................................................. 47

Figure 55: Remaining Solutizer plant looking west, 2014 .................................................................................................................... 48

Figure 56: Amenities building (Area 3 change room) adjacent to solutizer, 2015 ......................................................................... 48

Figure 57: Cooling Tower No 2. ................................................................................................................................................................. 49

Figure 58: Three Horton Spheres for storage of LPG, 2014................................................................................................................ 50

Figure 59: Group of air force personnel 8 December 1955 in front of Horton Spheres - identified as Standard-Vacuum

Refining Company Pty Ltd, Essendon, but probably Altona (Museum Victoria Reg. No: MM 51251) ....................................... 50

Figure 60: Fluidised Catalytic Cracker ...................................................................................................................................................... 52

Figure 61: Yarraville Terminal (Bing bird's eye images), 2012 ............................................................................................................ 54

Figure 62: Lubricant blending tower and offices at BP Newport terminal, 2012 ........................................................................... 55

Figure 63: Storage and works sheds at Shell Newport Terminal, 2012 ........................................................................................... 55

Figure 64: Pump house at BP Newport terminal, 2010 ....................................................................................................................... 56

Figure 65: Brick stores building Esso oil depot, Simcock Ave Spotswood, 2010 (demolished c2014) ....................................... 56

Figure 66: Concrete building Caltex Newport Terminal, 2010 ........................................................................................................... 56

Figure 67: Shell terminal Newport (photo Sievers, SLV H2004.49/83) (demolished) c1980 ........................................................ 57

Figure 68: Former commonwealth Oil Refinery office building Altona North, 2008 ..................................................................... 57

Figure 69: Altona Petrochemical Complex, (Technology in Australia 1977-1988).......................................................................... 58

Figure 70: Longford Gas Plant ................................................................................................................................................................... 58

Figure 71: Catalytic Cracker at Shell Refinery Geelong during construction (State Library Victoria) ......................................... 59

Figure 72: Locations of significant elements and management actions ......................................................................................... 65

Figure 73: Altona Refinery view from Kororoit Creek Road, Jessie Deane, 2013. .......................................................................... 70

Figure 74: Example of industrial land reuse - Landschaftspark Duisburg-Nord. ........................................................................... 71

Tables

Table 1: Refineries in Australia .................................................................................................................................................................. 53

Table 2: individual significant elements .................................................................................................................................................. 63

Table 3: Management of primary significant buildings and structures ........................................................................................... 68

© Biosis 2012 – Leaders in Ecology and Heritage Consulting 1

1 Introduction

1.1 Background

Exxon Mobil has commissioned Biosis Pty Ltd to undertake a heritage assessment and prepare a

Conservation Management Plan for the Altona Refinery, with the objective of assisting management of

statutory approvals for future works which may impact heritage values of the site.

The Conservation Management Plan describes the heritage values and physical condition of the place, and

sets out a conservation policy for managing impacts and change.

1.2 Study Area

The Study Area encompasses the Mobil Altona Refinery to the extent of the land covered by Heritage Overlay

(HO202). This large site, located within the Special Use Zone – Schedule 2 (SUZ2), extends north east from the

intersection of Millers and Kororoit Creek Roads in Altona and was developed in a number of stages,

commencing in 1946 in the western part of the current site. The refinery proper is bounded by Millers Road to

the west, Kororoit Creek Road to the south, the Werribee railway line to the north and Altona railway line to

the east.

The location of the study area is shown in Figure 1.

!

AltonaNorth

HOBSONSHOBSONSBAY CITYBAY CITY

Blomb

erg Rd

Brunel St

Chifley Av

Waterfront Pl

Sussex St

Mapl e

Dr

Ross Rd

Marsh

St

LakesDr

Box Ct

Albemarle St

Duke St

Margaret St

Amber Ct

QueenSt

Railway Pde

Station St

Borra

ck Sq

Oak C

t

Blenh

eim Rd

Rosshire Rd

Noordenne Av

Railway St South

Esplan

ade

Gadsden St

Cambridge St

Grah

am StMcarthurs Rd

Prismall St

Seaview Pde

Oran

ge St

Luly StAraratSt

Cham

bers

Rd

Prentice St

Abbeygate St

Madd

ox Rd

Knap

p St

Charl

otte S

t

Churc

hill S

t

Gordo

n St

Bentl

ey St

Fink S

t

The Broadway

Lee St

Fresn

o St

Griev

es St

Harris St

Mcintosh Rd

Stirling Av

Bunting Ct

Cresser St

Gilligan Rd

Douglas St

May St

Dolman Lane

Hearn St

Macd

onald

Av

Kyle

Rd

R O W Y

WindsorCr

Leslie

St

Cleghorn Av

Langsh

aw St

Rymi

ll Ct

Joiner

Lane

Surf St

Duosa RdGlade Av

Ronald Av

Glouc

ester

Ct

Moresby St

Woods St

Macaulay St

Craig C

t

Port

St

Dean

Ct

Martin C

t

Barnes Rd

Hill St

Bruce St

Drake Bvd

Jeffrey Av

Wat so

nCt

Cain C

t

Fisher

Ct

Pollard

Ct

Park St

Jurga

Ct

Coop

er Av

Monteith St

Savige StEst

elle C

t

Netta St

Lawrence CtNeal Ct

Willsmore St

Parks

ide Cr

Angu

s Av

Miste

n Av

Seah

olme A

v

Byron

St

Wattle

Gr

New

St

BryanAv

Beuron Rd

Saltle

y St

Irwin

Av

Truma

n St

The Gateway

Southe

y St

Gray Reserve Rd

Mille

rs Rd

James

Av

Monmouth StSevern St

Warat

ah St

Maxwell Av

Bluegum Dr

Ganto

n Ct

Verno

n St

Paxto

n St

Bayvi

ew St

Moun

t St

Bent

StDa

vies S

t

Seve

s St

Sargo

od St

Mcba

in St

Akuna Dr

Darby

shire

StPo

nting

St

Binns StCarthy St

Basil

St

Clematis Av

Maho

n Av

Huxta

ble Av

Delph

in Av

Amara

nth Av

Bego

nia Av

Valer

ian Av

Thorp

e St

Carm

en St

Clyde

St

Lauri

e St

Dohertys Rd

Alton

a Rd

Mills

St

Racec

ourse

Rd

Fifth

Av

Allan

St

Waters Dr

Collin

sAv

Toll D

r

Edward Av

Sixth

Av

Ki mpto

n Way

Fourt

h Av

Sutto

n Av

Blair Ct

First

AvSe

cond

Av

Seve

nth Av

Walker Cl

Joel A

v

Simmons Dr

John St

Ginife

r Av

Techno Park

Dr

Marigold Av

nade

Jubilee St

Mille

rs Rd

Pier S

t

Madd

ox Rd

Blyth St

Kororoit Creek Rd

Mason St

Blackshaws Rd

Beach

St

Civic Pde

Hans

en St

Mills

St

West Gate Fwy

Cherry Creek

Kororoit Creek

C h e r r yL a k e

Acknowledgement:VicMap Data Copyright © The State of Victoria, Department of Environment and Primary Industries 2014

Matter: 18706,Date: 08 January 2015,Checked by: GV, Drawn by: SKM, Last edited by: smitchellLocation:P:\18700s\18706\Mapping\18706_F1_Locality.mxd

LegendStudy Area

Scale 1:20,000 @ A4, GDA 1994 MGA Zone 55

0 200 400 600 800

Metres ±Biosis Pty LtdBallarat, Brisbane, Canberra, Melbourne, Sydney, Wangaratta & Wollongong

Figure 1: Location of the Study Area -Mobil Altona Refinery, Altona North, Victoria

!

!

!

!

!

!

!

!

!

Sunbury

Melbourne

Werribee

Dandenong

Melton

Whittlesea

RingwoodLilydale

2

gvines

Polygonal Line

gvines

Polygonal Line


Figure 2: Site plan, Altona Refinery Source: Courtesy Mobil


1.3 Heritage Listing and Legislative Obligations

The Altona Refinery complex was first recognised as a site with heritage significance (under the then name of

Petroleum Refineries Australia (PRA) Altona) along with a number of other early twentieth century sites

relating to the oil industry in Melbourne’s inner western suburbs, in the Western Region Industrial Heritage

Study undertaken in 1988-9.1 The refinery was not assessed in detail in this study but was included in

Appendix E, Locational Index to Sites, in which it was given a Level D significance ranking, which was

considered in this study to be of local significance.

The refinery was listed in Stage 1 of the Altona, Laverton & Newport Districts Heritage Study (2001) which

provided a review for the newly amalgamated Hobsons Bay council area.2 It was further investigated as part

of Stage 2 of the study. As a result of this investigation, the following statement of significance was prepared:

Mobil Refining Australia offices and refinery complex, former Standard Vacuum petroleum is significant to the

Western Region:

as a major refinery and office complex within the industrial history of the City and part of the State’s

post WW2 industrial expansion (criterion A4);

for the recognition of the office block as a good example of design in the 1956 architecture guide

(criterion E1); and

for significant plant such as the Thermofor Cracking Plant which is unique in the State (criterion F1).

On the basis of this assessment, the refinery was recommended for heritage overlay protection pursuant to

the Hobsons Bay Planning Scheme (initially as HO149). Interim heritage controls were implemented and the

proposed amendment was then considered by a Ministerial panel and advisory committee.

In 2002, a submission was made on behalf of the owners to the panel and advisory committee in reference to

the Hobsons Bay Planning Scheme Amendment C17, on the proposed inclusion of Mobil’s Yarraville Terminal

& Altona Refinery in the schedule to the heritage overlay.3

The submission proposed a statement of significance as follows:

The former Standard-Vacuum Refining Company's (now Mobil) refinery at Altona as a whole is of historical, social

and technological/scientific significance, in the context of the twentieth century history and development of

Altona and Melbourne's western suburbs generally, and the growth and evolution of oil refining in Victoria.

From the time it was brought on stream in 1955, the Altona refinery has had an enormous impact on the

economic and physical development of Altona and surrounding suburbs. The refinery has additionally been a

major employer in the area and continues to be so. As one of two operating oil refineries in Victoria, the Altona

site has also made a major contribution to the oil industry in the State.

1 Gary Vines and Andrew Ward Western Region Industrial Heritage Study, Melbourne's Living Museum of the West,

1989 2 Hobsons Bay heritage study, Graeme Butler and Associates, David Helms Heritage Planning and Management (Firm)

Hobsons Bay (Vic.), 2003-2004. Infralib: 720.99451 WIL 3 Allom Lovell & Associates Conservation Architects, 2002, Hobsons Bay Planning Scheme Amendment C17,

Submission To The Panel And Advisory Committee on The Proposed Inclusion of Mobil’s Yarraville Terminal & Altona

Refinery in The Schedule to the Heritage Overlay, prepared for URS Australia, on Behalf of Mobil Refining Australia


The refinery is also a site where the significance predominantly derives from the process as a whole, and not

from the individual elements, although some of these, such as the TCC (which was the only catalytic cracking

plant of this specific type to be commissioned in Australia), are also of great interest.”

The panel report for Amendment C17 supported the extent of the exhibited HO149 (which encompassed the

entire refinery site on the north east of the Miller Road and Kororoit Creek Intersection), and further

recommended that:

The amendment should be modified to include an Incorporated Document that excludes all of the areas of the

site from any requirement for a planning permit for buildings and works pursuant to Clause 43.01.

The Statement of Significance should be amended to exclude reference to the office block across the intersection

(not in the Heritage Overlay) and to emphasis the value of the ongoing operation of the refinery in support of the

site’s heritage values.

The Panel's report is not binding on the Council or the Minister but it must be taken into consideration before

the Council of the Minister makes a decision. If the Council does not adopt a recommendation of the Panel it

must give reasons why not. A permanent heritage overlay was implemented under Amendment C17, but the

council did not accept all of the recommendation of the Panel in relation to the Mobil Site. The Minister

approved the amendment on this basis.

The extent of the heritage overlay control is shown on Figure 3, and is further described in the explanatory

note contained in the schedule to the overlay, which is as follows:

Whole site with emphasis on fabric from the 1949-53 era, specifically the offices complex facing Millers Road and

the Thermofor Catalytic Cracking Plant plus land within nominally 10m of the former offices and plant.

Figure 3: Plan of extent of existing Heritage Overlay control


1.4 Consultation

Consultation during the assessment was undertaken with the client, Mobil Australia, and Council planning

department representatives. The latter endeavoured to establish council expectations in respect of the form

of a potential incorporated document and permit exemptions. During this consultation the council supported

the development of an incorporated document to manage the process of upgrade and change to the plant.

Council resolved to prepare an Incorporated Document as part of C17; however, because of a lack of Council

resources, Mobil was advised to prepare the document. During preparation of the document, Council advised

that an incorporated document is not the appropriate regulatory mechanism to have in place to manage the

heritage value of the Refinery and this report has instead been prepared to document the significance of the

Refinery and to support a planning scheme amendment to remove the heritage overlay.

Altona Refinery is owned and operated by Mobil Refining Australia Pty Ltd, an affiliate of Exxon Mobil

Corporation. The terms Corporation, Company, affiliate, ExxonMobil, Mobil, Esso, our, we and its as used in

this material may refer to Exxon Mobil Corporation, to one of its affiliates or to any one or more of the

foregoing. The shorter terms are used merely for convenience and simplicity.

1.5 Methodology

The historic heritage assessments are based on the following general methodology:

Review of statutory and non-statutory heritage lists and registers, to identify the location and

significance of heritage items, places, and archaeological sites in the vicinity of the Study Area:

– National Heritage List (NHL);

– Commonwealth Heritage List (CHL);

– Victorian Heritage Register (VHR);

– Victorian Heritage Inventory (VHI);

– Hobsons Bay Planning Policy and heritage overlay

– National Trust of Australia (Vic) Register;

Register of the National Estate (RNE).

Desktop assessment of the environmental context and previous land use history of the Study Area

including a review of the Hobsons Bay Heritage Study and other assessment documents;

Preparation of a thematic history of the Study Area, based on a review of relevant primary and

secondary historical documentation, maps and photographs, including examination and copying of

items from the Exxon Mobil archives;

Site inspection of the refinery, photography and analysis, to confirm the location and condition of

known and potential heritage items;

Review of cultural heritage values (or heritage significance);

Assessment of the impacts of the proposed development on the cultural heritage values of items;

The assessments are consistent with the principles and guidelines of the Burra Charter (The Australia ICOMOS

charter for the conservation of places of cultural significance).

1.6 Limitations of the Study

Access was provided to the refinery by Exxon Mobil for this study, including internal access to most buildings

and plant. However, safety requirements precluded closer inspection of some parts of the site – this was not

considered to have impacted on the results. No other limitations were present in undertaking the study.


2 Historic Background

2.1 Origins of oil refining

The origins of the modern oil industry can be traced to the development of distillation of Kerosene (a

proprietary brand of paraffin) from crude oil in the mid nineteenth century. Oil fields were established in

Azerbaijan, Poland, Romania the USA and Canada by the mid nineteenth century. Kerosene quickly replaced

other oils used for lighting, including whale oil and coal tar. Crude oil was heated in a vertical chamber and

the resulting compounds or 'fractions' were condensed at various points in the column. Fractional Distillation

allowed separation of tar, lubricating oils, petroleum and diesel products. Initially the Kerosene component

was seen as the main saleable product, but with the popularity of the automobile, the lighter petroleum

product became more important, and so new techniques were developed to produce a greater proportion of

this from the crude and other fractions.

Catalytic cracking (a process of breaking a long-chain of hydrocarbons into short ones) was developed in the

early twentieth century to extract higher proportions of the more valuable fractions from oil. The first

commercial process was developed in 1915 by Almer M. McAfee for the Gulf Refining Company with a batch

process using aluminum chloride. However this was too costly to be adopted widely. In 1922, Houdry and

Prudhomme first developed a catalytic process for converting lignite coal to gasoline. Houdry applied Fuller's

earth, (a clay mineral containing aluminosilicates) as a catalyst in converting oil derived from lignite to gasoline

and then applied the process to the catalysis of petroleum oils converting vaporized petroleum oil to gasoline.

In 1930 Houdry moved his laboratory to Paulsboro, New Jersey at the invitation of the Vacuum Oil Company.4

In 1931, the Vacuum Oil Company merged with Standard Oil of New York (Socony) to form the Socony-

Vacuum Oil Company. In 1933, a small Houdry unit processed 200 barrels per day of petroleum oil. The

Houdry process was subsequently adopted in the 1930s by Socony-Vacuum and the Sun Oil Company to

achieve 50 percent of the cracked product converted to gasoline compared with about 25 percent from the

thermal cracking processes.

Initially only semi-batch processing was undertaken but Socony-Vacuum then achieved continuous operation

with a moving-bed process known as Thermofor Catalytic Cracking (TCC), which used a bucket conveyor-

elevator to move the catalyst from the regeneration kiln to the separate reactor section. A demonstration TCC

unit was operating successfully at Socony-Vacuum's Paulsboro refinery in 1941 producing 500 barrels per

day, and a full-scale commercial TCC unit processing 10,000 barrels per day came on stream in 1943 at the

Beaumont, Texas refinery of Magnolia Oil Company, an affiliate of Socony-Vacuum. By the end of World War II

in 1945, TCC units were producing 300,000 barrels per day.5

The Houdry TCC units have been claimed as a major factor in the winning of World War II by producing high-

octane gasoline, which was critical for the more efficient higher compression ratio engines of the Spitfire and

the Mustang used by the British and US air forces.6

The fluid catalytic cracking process was initially investigated in the 1920s by Standard Oil of New Jersey, but

research was abandoned due to the economic depression years 1929 to 1939. In 1938, a consortium called

4 Eger Murphree and the Four Horsemen: FCC, Fluid Catalytic Cracking, http://nacatsoc.org/history/eger-murphree-and-

the-four-horsemen-fcc-fluid-catalytic-cracking/ 5 "Houdry Process for Catalytic Cracking". American Chemical Society.

http://www.acs.org/content/acs/en/education/whatischemistry/landmarks/houdry.html Retrieved 18 December, 2014. 6 Tim Palucka (Winter 2005). "The Wizard of Octane: Eugene Houdry". Invention & Technology 20 (3).


Catalytic Research Associates (CRA) comprising five oil companies (Standard Oil of New Jersey, Standard Oil of

Indiana, Anglo-Iranian Oil, Texas Oil and Dutch Shell), two engineering-construction companies (M.W. Kellogg

and Universal Oil Products) and a German chemical company (I.G. Farben) resumed the project. The

Standard Oil of New Jersey (now Exxon-Mobil Company) developed the first fluidized catalytic cracking unit

with pilot plant in the Baton Rouge, Louisiana Refinery commencing in 1940. This process employed a low

velocity gas flowing through a powder to "lift" it enough to cause it to flow in a manner similar to a liquid. The

first commercial fluid catalytic cracking plant (known as the Model I FCC) began processing 13,000 barrels per

day of petroleum oil in the Baton Rouge Refinery in May 1942.7

2.2 Oil and Petrol in Australia

Oil products were imported into Australia in relatively large quantities from the late nineteenth century,

initially to supply heating, lighting, motor fuels and lubricating oils, kerosene and other products. Product was

shipped, stored, distributed and sold in ubiquitous metal containers; the 4 gallon kerosene tin becoming a

standard.

By the 1890s, demand was such that several major British and American companies established centralised

import depots and a network of local agencies: Shell (c. 1900), Vacuum Oil (1895) and the Standard Oil Co.

(c.1900).8 The Vacuum-Colonial Company dominated the Australian oil import market for the first two

decades of the twentieth century.

The need for greater efficiencies led to the creation of new bulk handling facilities at Shell's Gore Bay facility in

Sydney and at an old wool store in Williamstown near Railway (Nelson) Pier, both in use in 1901. The Standard

Oil Company established its own facility in Williamstown. 9 While other firms established branches in

Australia, including Neptune in 1909 and the Texas Company (TEXACO) in 1918.10 Bulk shipments

commenced at Gore Bay in 1903. However, the first bulk cargo of motor spirit arrived in 1914.11

A number of petroleum companies set up import and distribution facilities in the Spotswood-Yarraville area in

the inter-war period including:

Vacuum Oil Co., which constructed a substantial terminal on the river at Yarraville in 1924-5 (now

Mobil’s Yarraville terminal)

Alba Petroleum (later Ampol), a wholly Australian owned company, which constructed its storage

compound on the west side of Douglas Parade (on both sides of the current Sun Avenue)

The Atlantic Oil Co. (later Esso), in Simcock Avenue, Spotswood

HC Sleigh, operating a series of tanks south of Sun Avenue in the late 1930s.12

7 Amos A. Avidan, Michael Edwards and Hartley Owen (Mobil Research and Development) (January 8, 1990).

"Innovative Improvements Highlight FCC's Past and Future". Oil & Gas Journal 88 (2). 8 Shell Company of Australia Limited. Eighty Years at Newport. p. 1; the Sands and McDougall Melbourne Directory for

1901 lists the Vacuum and Standard Oil Companies, both of which hailed from the United States. 9 L Strahan. At the Edge of the Centre. p. 362-3 10 Murray, 2001. Pp.28-9 11 R Wilkinson, A Thirst For Burning. p. 171 12 The firm was established in Melbourne in 1895 and set up as an importer and distributor of petroleum products in

1913. Something of an innovator in the industry, by the 1920s HC Sleigh had opened 20 service stations in Melbourne

with drive-in facilities later described as ‘35 years ahead of their time’. From the late 1940s it traded as Golden Fleece. R

Wilkinson. A Thirst For Burning. p. 175.


The British Imperial Oil Company Ltd (a subsidiary of Shell formed in 1905) bulk distribution terminal

with the assistance of the Melbourne Harbour Trust, on the Yarra River at Newport between 1913

and 1915, with large holding tanks, pumping equipment and bulk distribution facilities.13

Use of motor cars in Australia expanded exponentially in the 1920s. Numbers of registered motor cars, trucks

and bicycles In Victoria, doubled between 1917 and 1922 to 47,750 and was over 150,000 by 1928, with about

three-quarters of these vehicles being housed in or near Melbourne.14

The fuel demands of this growth in motoring resulted in a considerable expansion of the oil and petroleum

industry. In addition to bulk storage facilities and packing plants, two refineries were constructed in Australia.

The first was the Commonwealth Oil Refineries (COR) in 1922 on a site near Kororoit Creek, Laverton and the

second was built at Clyde, NSW, by John Fell & Co in 1926, which was purchased by Shell in 1927-28.

The Commonwealth Oil Refinery Co. was established as a joint venture between the Commonwealth

Government and the Anglo-Persian Oil Co. with crude oil unloaded at a dedicated wharf and bulk storage

tanks at Spotswood, then pumped through a pipeline to the refinery.

Between 1939 and 1948 the Australian Government took complete control of the oil industry, introducing

petrol rationing in October 1940, with drastic cuts made in April 1941.15 Rationing remained in force until

1950 with a pool system used to market all products under a single trade name, and each oil company being

given a prescribed quota. While rationing resulted in stagnation of the industry, two further refineries

focusing on bitumen distillation opened: BORAL Ltd, (from Bitumen and Oil Refining Australia) at Matraville

New South Wales in 1948, and the Vacuum Oil Co. in Altona in 1949.16

With the lifting of petrol rationing, the 1950s became a boom period for the oil industry. In 1953 the total

Australian market for refined petroleum products was around 43 million barrels, only 7 million barrels of

which were refined locally. By 1958 Australia used about 71 million barrels, with 63 million refined locally.17

The Anglo-Iranian Oil Company (previously Anglo-Persian Oil Company) became a more significant player

after it acquired the Commonwealth Government’s half share in Commonwealth Oil Refineries in 1954. Soon

after changing its name to BP, it closed the former COR refinery on Kororoit Creek Road and constructed a

new refinery at Kwinana near Perth. Other new refineries were constructed in Geelong by Shell and at Botany

Bay by Caltex.18 In the 1960s further refineries were built in Bulwer Island Queensland (BP), Lytton

Queensland (Caltex) and Port Stanvac South Australia (Standard Vacuum).19

Another major Victorian refinery was constructed by BP at Cribb Point, on Westernport Bay in 1966, while

Shell’s Geelong refinery was also greatly expanded in the late 1960s, partly to process Bass Strait crude, which

was lighter and contained less sulphur when compared with crude oil from the Middle East.20

13 Shell Company of Australia Limited. Eighty Years at Newport. p. 1; Melbourne Harbour Trust Jubilee History, pp.

297-298, Murray, R. Go Well: One Hundred Years of Shell in Australia, Hargreen Publishing Co, Melbourne 2001. 14 S Priestley, Making Their Mark. p. 140. 15 Australian Stats: Special Article, ‘Clothing, Food and Petrol rationing during World War 2’, Year Book Australia,

1945, www.pandora.nla.gov.au. 16 R Wilkinson. A Thirst For Burning. 2004. 17 R Wilkinson. A Thirst For Burning. p. 176. 18 Wilkinson 2004 p63 19 Vivida 2012. 20 R Wilkinson. A Thirst For Burning. p. 181.

http://www.pandora.nla.gov.au/


Recent trends have seen reduction in the number of Australian refineries due to competition from Asia. Crib

Point was closed from 1984 as it was uncompetitive and its focus on fuel oil was being undermined by natural

gas.21 Shell announced closure of Clyde in 2011 and Caltex is converting Botany Bay to an import terminal.

Shell in Geelong has also had plans to close, but was recently reprieved with the Swiss company Vitol

purchasing the site.22

2.3 Vacuum Oil Company

The Vacuum Oil Company was established in Rochester, New York, USA in 1866. The company took its name

from its oil refining process which heated crude oil in a partial vacuum as part of the distilling process.

Vacuum Oil had begun operating in Australia by 1895, establishing an agency to sell imported oil products.

Vacuum Oil dominated the Australian market thanks to strong marketing and sales. Its main competitor was

the Dutch Shell Company. In 1908 Vacuum Oil amalgamated with the Colonial Oil Co and began marketing its

kerosene and benzene. New products introduced in the 1910s and early 1920s included Plume Motor Spirit,

Laurel Kerosene, and Voco Power Kerosene.23

In 1931, Vacuum Oil merged with the Standard Oil Company of New York, forming the new company of

Socony-Vacuum but continued to trade in Australia as the Vacuum Oil Co. (this company eventually became

known as Socony Mobil, then the Mobil Corporation).

As early as 1931, Vacuum had discussions with the Australian Government about the possibility of

establishing a refinery in Melbourne, but discussions stalled over the issue of tariff protection, with World War

II further delaying progress.24 Despite Socony-Vacuum Oil's strong market position, the company had limited

access to oil fields in the area. However, the Standard Oil Company (of New Jersey) had extensive production

interests in Indonesia and so in 1933, they inevitably merged their interests in the Australasian region to form

the Standard-Vacuum Oil Company. This company continued trading under the earlier name of Vacuum Oil

Company for its marketing operations.25

Figure 4: Drivers, Vacuum Oil Company Depot, Yarraville26

The Standard Vacuum Oil Company of the USA was dissolved in 1962 and became known in Australia as

Mobil. At the same time another former Standard Oil subsidiary, the Atlantic Union Co. changed its name to

21 The Age, newspaper, 10 Feb. 1984, p.3. 22 Mark Hawthorne and Clay Lucas Geelong Shell refinery saved by new owner Vitol Sydney Morning Herald, February

21, 2014 23 A Pratt. National Handbook of Australia’s Industries. p. 295. 24 S Priestly. Altona - A Long View. pp. 213-214. 25 Standard-Vacuum Refining Company (Australia). Altona Story, unpaged. Undated. 26 Title taken from inscription on verso of mount in pencil: DRIVERS OF VACUUM OIL COMPANY AT

YARRAVILLE, 1929/PRESENTED BY MR B.T.KANE, 1929 State Library Victoria no(s) H81.38/1


Esso. As a result a new company known as Petroleum Refineries (Australia) Proprietary Limited (PRA), jointly

owned by Mobil (74%) and Esso (26%) ran the operations at the Altona refinery from 30 March 1962. At the

same time, the oil refinery partners also established a chemical feedstock company, the Altona Petrochemical

Company Ltd (APC), with plant located about 4 km to the west of the refinery.27

2.4 Vacuum Oil in Yarraville

Vacuum Oil was the first oil company in Australia, establishing a branch office in Queen Street, Melbourne, in

February 1895, less than 30 years after Vacuum began in the United States. Mineral oil and kerosene had

been imported prior to this, but was handled by local agents. The company records indicate that the first

salesman for the firm, David Clarke, sold the first barrel of lubricating oil to a gold mining operation at

Eaglehawk, near Bendigo.

Vacuum Oil was incorporated as a proprietary company in Victoria in March 1904. It produced a chart of

"Recommendations to Motorists" covering about 200 makes of car in 1906, demonstrating its focus on the

new form of transport. In 1908, Vacuum Oil merged with the Colonial Oil Co, which was marketing kerosene

and motor spirit, to add to its specialty lubricants and in 1916, it introduced "Plume" and "Laurel" brands of

motor oil.

Vacuum Oil expanded its distribution and retail facilities in Australia in the 1920s, as part of a wider push to

meet the dramatically increasing demand for motor spirits and oils as Australia took to the private

automobile and freight shifted from rail to road. Vacuum Oil purchased land on the Yarra River at Yarraville in

about 1920 and in cooperation with the Melbourne Harbour Trust constructed a wharf for bulk carrier ships.

Reclamation of low lying land near the Stony Creek Backwash was undertaken to provide space for the

terminal site. Construction was undertaken in 1925 and 1930. The new facilities were announced as:

VACUUM OIL COMPANY. The Vacuum Oil Company has its works at Victoria Dock at present. They will shortly be

moved to a site at the mouth of Stony Creek, on the Yarraville side. Sixteen acres of land have been secured for

their works, and the Harbor Trust will carry out some reclamation work there. It is reported that most of the

waterway between the Yarra and the Stony Creek bridge will be filled up to make more land available there.28

Bulk distribution of fuel and oil was seen as a critical requirement both to meet the rapidly increasing

demand from cars and trucks, and bring down the price. In 1917 Vacuum commenced a form of bulk

shipping with the first of a number of 100 gallon, horse-drawn, tank wagons. It may be assumed that Vacuum

was one of the first companies to instigate bulk handling, because of its dominant role in Australia, and

because other companies would soon make the change. This would be the most expensive development of

the oil industry in Australia to date.

CHEAPER PETROL PROMISED

DISTRIBUTION IN BULK.

Expenditure of £2,000,000.

Plans have been completed by the Vacuum Oil Company Proprietary Limited to distribute motor-spirit and

kerosene in bulk throughout Australia instead of in tins and cases as at present. Bulk distribution has been

27 ExxonMobil University – Altona Refinery History. 28 VACUUM OIL COMPANY. (1924, January 26). Williamstown Chronicle (Vic.: 1856 - 1954), p. 2. Retrieved

November 25, 2013, from http://nla.gov.au/nla.news-article69510612


proved successful in America, and it is promised that the change in method will reduce the price of motor-spirit

to the Australian motorist by from 3d. to 6d. a gallon.29

The Yarraville terminal was part of a larger national reconstruction of the industry:

Nearly £2,000,000 will be spent by the Vacuum Oil Company in buildings and equipment for motor spirits and

kerosene in all the large cities of Australia. On a 40-acre site at Yarraville, manufacturing and storage

warehouses, tin-making plant and bulk storage tanks will be erected. Arrangements have been completed for

wharfage costing £40.000.30

Vacuum Oil's construction department were given the go ahead to develop the Yarraville and South Australia

terminals. F G Cerexhe from the Sydney office was appointed Chief Construction Engineer, heading a number

of staff in the William Street office. Following a visit to New York in connection with construction activities of

the company, H. A. Kuehn, an engineer of Vacuum Oil Company in New York, provided advice and assistance

in construction matters.31

Architects were appointed and a model was prepared of the proposed Yarraville development, which appears

to have been followed closely by construction. The Argus described the new venture as follows:

Yarraville has been chosen by the Vacuum Oil Co. Pty. Ltd. as the site for a new bulk storage and distributing

depot, the erection of which will be commenced shortly. The company has purchased 40 acres of land, and

enormous tanks and large concrete buildings will be erected. A model of the buildings has been prepared by the

architects, Messrs' Sydney Smith, Ogg, and Serpell. This model, which is made exactly to scale, is a comparatively

new departure in Australian architecture, by studying it an excellent idea of the completed work may be

obtained. These new works are being built as a part of the scheme for bulk distribution of oil which has been

conceived by the directors of the Vacuum Oil Company.32

It appears that the main differences between the model of the proposed terminal and the final scheme

included the reduction of the large area between the works and dock (subsequently dredged for widening

and dock enlargement). A proposed loading bay building west of the lubricant stores, with a connecting pipe

bridge, was also not built. The western half of the site was devoted to storage tanks.

Most buildings appear to have been constructed on thick concrete slabs – probably because of the filled

nature of much of the site. The Queensland Cement & Lime Company was responsible for at least some of

the paving and foundations.

29 CHEAPER PETROL PROMISED. (1925, July 7). The Argus (Melbourne, Vic.: 1848 - 1957), p. 12. Retrieved

November 25, 2013, from http://nla.gov.au/nla.news-article2135723 30 VACUUM OIL STORES. (1925, July 4). The Mail (Adelaide, SA: 1912 - 1954), p. 3. Retrieved November 25, 2013,

from http://nla.gov.au/nla.news-article58199975 31 THE GARGOYLE-Bulletin-Vol. XIV. 'Our Construction department and its Work' 32 "MODEL OF NEW WORKS FOR VACUUM OIL COMPANY." The Argus (Melbourne, Vic.: 1848 - 1956) 8 Jul

1925: 17. Web. 8 Apr 2013 <http://nla.gov.au/nla.news-article2136604>. Note Sydney Smith, Ogg & Serpell were

prominent in commercial architecture in the 1920s, having designed The Strand Hotel 1920, Harley House 1923 and the

Port Authority Building 1929.

http://www.walkingmelbourne.com/search.html?architects=Sydney+Smith%2C+Ogg+%26+Serpell


Figure 5: Model of New Works for Vacuum Oil Company, The Argus 8 Jul 1925

Figure 6: Construction of Vacuum Company Oil depot, Yarraville, Victoria ca. 1929. This later view is probably

for an additional storage tank. 33

Because of the soft sediments on what had previously been swamp and mud flats, and which was filled with

soil brought into the site, deep piling was necessary. The architects called for tenders for this work in February

1926.

SYDNEY SMITH, OGG, and SERPELL, Architects,310 Collins Street (Cent. 999), Invite TENDERS- Until Noon, 15th

February, SUPPLYING and DRIVING TIMBER PILES for Extensive Buildings at YARRAVILLE For THE VACUUM OIL

COMPANY PTY. LTD.34

33 Queensland Cement & Lime Company.

http://bishop.slq.qld.gov.au/view/action/singleViewer.do?dvs=1367371364679~144&locale=en_AU&metadata_object_ra

tio=7&show_metadata=true&VIEWER_URL=/view/action/singleViewer.do?&DELIVERY_RULE_ID=10&frameId=1

&usePid1=true&usePid2=true 34 Classified Advertising. (1926, February 6). The Argus (Melbourne, Vic.: 1848 - 1957), p. 5. Retrieved November 25,

2013, from http://nla.gov.au/nla.news-article3733123


H. E. Asher, of Melbourne won the tender and undertook piling operations for building sites and the wharf

and loading yard for unloading oil drums. Asher was also reconstructing Gem Pier at the time.35

The 'Lubricating Building' as it was called, was built to a slightly different plan than the architect's model

suggested, with the roof gables aligned east west and a larger two storey section completed. It was described

in the Vacuum Oil house journal as:

"…nearly 400 feet long by 220 feet wide portion of it being two storied. The floor and frame of the building

are of concrete, the external walls are brick and interior walls hollow tile. In all probability the huge floor is

the largest of its kind in the Southern hemisphere. The roof framework is constructed of structural steel

covered with corrugated fibrolite sheeting. As the building is on reclaimed ground, it was necessary to

support it upon pile foundations and there are over 1000 piles varying in length from 35 feet to 50 feet. The

floor, most of which is wood blocked, is at cart level so that packages may be readily transferred from

vehicles to the store and vice versa.

The building is divided into the following principal sections: Cased Oil Storage; Barrel Storage; Barrel

Preparation; Ordinary Compounding; Speciality Compounding; Can Filling and Pump Room, all of which are

on the ground floor; while Empty Can and Case Storage is provided on the first floor.

Lubricating Oil is received from overseas in first quality barrels or drums as it is not yet an economical

proposition to import oil in bulk. The barrels are received at one or more of the five canopied doorways

along the side of the building and loaded on to a barrel conveyor which runs at floor level the full length of

the building.36

An innovation on the site was the use of the Wiggins floating tank roof, in which the tops of the million gallon

tanks were designed to float on the surface of the petrol, eliminating the potential for explosive vapours, and

in so doing, drastically reducing the amount of evaporation and fuel loss.

Floating Roofs on Petrol Tanks

Walking upon a circular steel raft floating upon 1 000 000 gallons of petrol is one of the novel experiences

which the Vacuum Oil Co Pty Ltd offers to visitors at its bulk storage depot at Yarraville. The huge tanks

containing the petrol have this curious type of floating roof to minimise wastage of petrol through

evaporation to give effect to its policy of establishing bulk storage depots throughout Australia in place of

case oil distribution, the company is spending £3,000,000 upon modern methods of storage and pipeline

installation. Refined petrol is pumped direct from the "tank" steamers into storage tanks, of which tanks

there are eight: - three of 1,000,000 gallon capacity, two of 500,000 gallons and three "working" tanks of

100,000 gallons. The entire tankage installation is surrounded by an earthern (sic) retaining wall, and with

each tank is a fire prevention system. Another remarkable feature of the depot is a huge concrete floor for

the lubricating oil building 370ft long by 223ft wide the illustration of the Vacuum Oil Co Pty Ltd 's plant at

Yarraville published yesterday was wrongly referred to as that of a refinery. The company does not refine

crude oil in Australia. Its Yarraville works are for the bulk storage of petroleum spirits and for the blending

and compounding of lubricating oils.37

The company also opened its first bulk petroleum terminal at Pulpit Point in Sydney in 1924 with the fist bulk

tanker from the United States being the 1.5 million gallon "HT Harper".

35 RECONSTRUCTING GEMPIER. (1927, October 22). Williamstown Chronicle (Vic.: 1856 - 1954), p. 2. Retrieved

November 25, 2013, from http://nla.gov.au/nla.news-article69523592 36 THE GARGOYLE-Bulletin-Vol. XIV. 'Our Construction department and its Work' 37 "ITEMS OF INTEREST." The Argus (Melbourne, Vic.: 1848 - 1957) 26 Jan 1927: 26. Web. 3 Dec 2013

<http://nla.gov.au/nla.news-article3834300>.


In the 1930s Vacuum's US parent company, Vacuum Oil Inc, merged with the Standard Oil Company of New

York to become Socony-Vacuum. It was later renamed Socony-Mobil and ultimately became Mobil

Corporation.

Also in the 1930s, Vacuum introduced Australia's first Super grade motor spirit which it termed "Ethyl" along

with the Pegasus logo from its US parent, Socony-Mobil. Pegasus, the Flying Red Horse was introduced into

the US and then Australia in 1939 to become one of the most highly recognised corporate symbols.

Figure 7: Various logos used by Standard Vacuum and its successors

2.5 Establishment of Altona Refinery (1946-49)

In 1937, a company executive from the Vacuum Oil Company visited the United States to discuss plans to

establish a Refinery in Australia with technicians and refinery experts. However, economic conditions and the

advent of war resulted in the project being put on hold. After the war, a number of potential sites for a

refinery were inspected and in early 1946, Standard-Vacuum (operating as the Vacuum Oil Company),

announced its purchase of 200 acres at Altona, to be developed for a new refinery. Plans and specifications

for the basic refinery equipment were supplied from the American affiliated oil companies; with design work

and supervision performed by the companies own construction and chemical engineers in collaboration with

several United States specialists.38

Construction began in October 1946 with an inauguration ceremony on 24 March 1948, where a

commemoration plaque was unveiled by the Premier of Victoria, the Hon J.J. Holloway, and in December

1948, Vacuum Oil announced that it planned to have the refinery operating within 6 months, referring to the

plant as a "Dollar Saving" refinery as it saved over US$1,200,000 in foreign exchange.39

Due to material shortages at the time, much of the steel rod, plate and section, was obtained from Army

disposals sources in remote locations, including the Pacific Islands. Cement was imported from England for

concrete work and for manufacturing concrete blocks on site, as ordinary bricks were difficult to obtain. 40

Construction of the refinery was undertaken over a period of 33 months, with the official opening in June

194941 and production of lubricating oil and bitumen from imported crude commencing in the following

month. The plant initially had a total capacity of c 2,200 barrels of crude per day, 42 and while it only produced

a small amount of motor fuel, it was able to supply 50 per cent of Australia's requirements of lubricating oil,

when at the time, there was a world shortage of industrial lubricants.43 Much of the plant, including

distillation towers, strippers and furnaces, was constructed by local Victorian engineering firms, and field

38 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950. 39 "VACUUM OIL REFINERY." The Advertiser (Adelaide, SA : 1931 - 1954) 2 Dec 1948: 4. Web. 17 Dec 2014

<http://nla.gov.au/nla.news-article43793817>. 40 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950. 41 ExxonMobile. (2014). ExxonMobil Fuelling Victoria for 60 years. Retrieved 10 13, 2014, from ExxonMobile

Australia: http://www.exxonmobil.com.au/australia-english/pa/about_what_rs_anniversary_60.aspx 42 Marioli, F, 1993, How Mobile is Mobil: A case study of the modernization of Mobil's Altona refinery, Mobil's threat of

relocation and its effect on the State Government's decision making process, University of Melbourne 43 Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950.

http://oilandcareers.com/urgent-required-reliability-inspection-engineer-asset-integrity-engineer-2013/mobil-refining-australia-pty-ltd/


construction was undertaken predominantly by local contractors.44 Total cost of the plant to 1950 was

₤1,000,000, with more than 90% of this spent in Australia.

Figure 8: Model of the completed Refinery in 1950.

Imported crude oil was delivered to the site from the Commonwealth Oil Refinery in Laverton via pipeline (1)

to large storage tanks opposite Kororoit Creek Road (2). The main plant of the first stage comprised the

vacuum distillation towers and No. 1 Crude Unit (3) and its associated furnaces (4), control room (10),

chemical treatment plant (8) where the oil was washed with sulphuric acid, blending tanks (12), main boiler

house (18) transformers (19), and firefighting equipment (24, 25). There were a variety of storage tanks for

intermediate oils (7), finished products (5, 10), and special heated tanks for the bitumen (6, 14). A drum filling

plant (15), lubricating oil warehouse (13) and wagon filling stand were located on A Street. The main office

(22), amenities (20) and laboratory (17) buildings were located on the Millers Road frontage of the site, with all

the process plant and tanks arranged to the south and east within the area between the present- day B and C

Streets and east only to 5th

Street45 (see Figure 72).

Initially 1,300 barrels a day of Tia Juana (Venezuela) crude was processed to make petrol, diesel fuel oil,

bitumen and lubricating oils.46 Crude was received by tanker at the oil wharf at Williamstown and was

pumped to the refinery via a pipeline shared with the nearby COR refinery.47

44 Exxon Mobil University - Altona Refinery History. Exxon Mobil Archives. 45 Mobil. Altona Refinery – Utilities (MRAA-UTC-10159). Document provided by Mobil. 46 Standard-Vacuum Refining Company (Australia). Altona Story. Standard-Vacuum Refining Company Australia,

Refinery Operations Manual, Chapter III, Process Operations at the Altona Refinery of Standard-Vacuum Refining

Company Limited. p. 11. 47 Vacuum Oil Co Pty Ltd, A Refinery is Built, "Some Summarised Facts and Statistics", Vacuum Oil 1950.


Figure 9: Aerial view of refinery 1952

Figure 10: Tank Farm, store and lube oil building under construction.

Figure 11: Distillation tower from the slop tanks nearing completion.


Figure 12: Left to right – boiler house, transformer and switch house, amenities in front, office behind, and

stores buildings (COR refinery in distance) 17 Feb 1949.

Figure 13: Operational flow diagram for original plant processes

For its first few years of operation the plant produced mainly bitumen and lubricating oil. These were stored

in the tankage area within the main complex as shown in Figure 13 above. Bitumen – black, Diesel Fuel – light

brown, Furnace Oil – dark brown, Lubricating Oil – yellow, Petrol – white. The central part of this plant was

later replaced with two much larger tanks while the distillation towers, naphtha plant and acid treatment

were all replaced when the TCC was installed.


2.6 Expansion and renewal (1950s)

The Altona refinery was not well placed to benefit from the boom in private motoring and therefore increased

petrol sales, so a major expansion was undertaken in the 1950s. The company evidently had expansion plans

as early as 1947, when company representatives advised Altona Council that an additional 300 acres of

surrounding land might be needed and asked that proposals to rezone nearby land as residential should be

put on hold.48

In 1952, a new company was formed as 'the Standard-Vacuum Refinery Company (Australia) Pty Ltd', to

undertake the expansion of the refinery’s capacity 20,000 barrels per day of crude. 49 The plant would also

produce a higher proportion of petrol as well as a range of other fuel products, including jet fuels.50 The

Chairman and managing director of the company Harold Rabling claimed:

"The plant will be the most modern of its kind in the world," "Installation of a catalytic cracking unit of the very

latest design will provide Australia with the most efficient and economical refining methods ever introduced into

this country."51

Rabling also noted that the refinery would "…be of immense value to the economy of the country and to the

defence of Australia", while the new catalytic cracking plant would allow the massive increase in Australian

fuel production and go a long way to making Australia self-sustaining in petroleum and lubricating oil

production.52

The expansion was enabled by the installation of the 268 foot high Airlift Thermofor Catalytic Cracking unit

(TCC), a technology which was only about 10 years old at the time and represented a considerable advance

on petroleum manufacture in Australia. The cost of the expansion works was originally estimated at £7.5

million; this was subsequently increased to £20 million.53 Standing at 81 metres high, the TCC was almost

twice as tall as the tallest office buildings in Melbourne or Sydney in 1953.54

The TCC and associated plant enabled the production range and capacity of the plant to be substantially

enlarged. New plant included the gas plant, a second Crude Unit (No. 2), a Solutizer Unit, Hydrogen Sulphide

Removal Unit, Catalytic Reformer, Alkylation Unit, Kerosene Treating Unit, a Copper Chloride Treating Unit,

Cooling Towers, the LPG facilities and new flare facilities. Storage capacity in new tank farms was greatly

enlarged and the original Bitumen/Lube oil operation was also expanded. 55 The flare appears to be the first

installed at the site, and was accompanied by distribution of 25,000 booklets to explain the purpose and

alleviate concerns of local residents. 56 The LPG spheres were initially located the west of Cooling Tower No 1,

48 S Priestly. Altona – A Long View, p. 216. 49 Standard-Vacuum Refining Company (Australia)] Refinery Operations Manual, Chapter III, Process Operations at the

Altona Refinery of Standard-Vacuum Refining Company Limited, p. 11. 50 S Priestly. Altona – A Long View, p. 216. 51 "NEW 7½M. OIL FACTORY." Morning Bulletin (Rockhampton, Qld. : 1878 - 1954) 17 Aug 1951: 11. Web. 30 Dec

2014 <http://nla.gov.au/nla.news-article57117116>. 52 "NEW 7½M. OIL FACTORY." Morning Bulletin (Rockhampton, Qld. : 1878 - 1954) 17 Aug 1951: 11. Web. 30 Dec

2014 <http://nla.gov.au/nla.news-article57117116>. 53 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 54 ExxonMobil Australia, 2014, Fuelling Victoria for 60 yearshttp://www.exxonmobil.com.au/australia-

english/pa/about_what_rs_anniversary_60.aspx 55 Standard-Vacuum Refining Company (Australia) Refinery operations manual. Chapter III, Process operations at the

Altona refinery of standard-vacuum Refining Company Limited. s.n., Melbourne 56 "Don't be alarmed if you see refinery "on fire"." The Argus (Melbourne, Vic. : 1848 - 1957) 20 Dec 1954: 10. Web. 2

Jan 2015 <http://nla.gov.au/nla.news-article23461518>.


but sometime between 1964 and 1968 they were relocated to the east side to accommodate the No 2

Reformer.

Figure 14: Construction of the TCC 1954, photo Sievers, Wolfgang National Library, nla.pic-vn3419110


Figure 15: Process diagram with new TCC and final products


The completed complex was described as including a total of "…a million feet of pipe with 60,000 welded joints

… 300 miles of electrical wiring, six miles of paved roads, five acres of concrete paving and 19 buildings including a

work-shop more than one acre in area".57

Figure 16: Model of proposed Altona Refinery expansion (Exxon Mobil Archives)

The construction of the new refinery plant was contracted to the Californian engineering contractor, CF Braun

(also known as Braun Transworld Corporation), with construction on site beginning in November 195258 and

was completed in 22 months.59 This was in part made possible through negotiated agreements with twenty

unions and 1700 workers (described by Priestly as "American collective bargaining techniques"). The weekly

wage for project workers was negotiated at £1 higher than award rates, and workers were also paid a variety

of bonuses designed to minimise absenteeism and retain experienced workers. 60

The growing workforce was initially served by a small railway station at Paisley on the Werribee line, but a

dedicated railway station was opened in 1953 on the Altona line close to where the old Williamstown

Racecourse station had been (which was dismantled in 1951). Originally known as the Standard Oil Platform

and built initially for the use of employees of the new refinery, its name was soon changed to Mobiltown in

1954, reflecting the change in the company name, and it became available for use to public passengers in

1958.61

57 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 58 Standard-Vacuum Refining Company (Australia), Refinery Operations Manual, Chapter III, Process Operations at the

Altona Refinery of Standard-Vacuum Refining Company Limited, p. 11. 59 Standard-Vacuum Refining Company (Australia). Altona Story. Unpaged. 60 S Priestly. Altona - A Long View, p. 216 61 Hobsons Bay Heritage Study Amended 2014 - Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage

Places – 351-381 Millers Road, Altona North p.2 of 6


Figure 17: Aerial View of Altona Refinery Feb 1953, showing preparations for construction of TCC and new tanks

Figure 18: Plan of newly expanded refinery showing original and new structures.

A commemoration booklet for the opening of the plant identified the new and existing plant and buildings

(see Figure 18) as follows: 1- Mechanical workshop, 2 - No 1 Crude Unit, 3 - T.C.C Unit, 4 - Water Cooling


Tower, 5 - Treating Plant and Solutizer, 6 - No 2 Crude Unit, 7 - Lube Warehouse, 8 - Tankage Area, 9 -

Warehouse, 10 - Boiler House, 11 - Auditorium, 12 - Cafeteria.

A new two-storey Administration building was constructed diagonally opposite the main refinery complex, on

the south-west corner at the intersection of Kororoit Creek and Millers Roads. Architects for the

Administration building were Stephenson & Turner, who also designed the new laboratory, auditorium,

canteen, and locker buildings located along the east side of Millers Road.62 This building was pictured in the

guide to architecture in Victoria, which was produced by the RVIA for the 1956 Olympics. New workshops and

other utility buildings were also added to the complex and a series of cream brick control rooms were located

across the refinery site.

One unusual element is the mechanical store/warehouse, (see #9 in Figure 18 above), which would appear to

be a prefabricated WWII hangar – probably a Bellman Type.

Figure 19: Standard Vacuum Oil Refining Company Ltd, Refinery, Altona, Victoria. Aerial View of General

Development, 195263

The new administration block offices were described as "dream standards‟ of accommodation, with air-

conditioning and heating, natural light filtered by tinted glass, visor shades and outside aluminium louvers. As

local historian Susan Priestly described the building: "It was Collins Street comfort set in sweeping plains,

among the best mushrooming country near Melbourne".64 The surrounds were designed by noted landscape

62 "Modern Office Building For Oil Company's Staff." The Sydney Morning Herald (NSW : 1842 - 1954) 8 Dec 1953:

11. Web. 22 Dec 2014 <http://nla.gov.au/nla.news-article18400163>. 63 Stephenson & Turner. Graphite and India ink on detail paper. Keith Murdoch Gallery – Australian Modern Exhibition.

http://pandora.nla.gov.au/pan/44356/20040907-

0000/www.statelibrary.vic.gov.au/slv/exhibitions/murdochgallery/austmodern6b.html 64 Susan Priestly Altona – The Long View, 1988:217


gardener, John Stevens, who also had a hand in the Shell Oil Refinery in Geelong.65 The building, later known

as the Pegasus Building, was demolished in late 2014.

Figure 20: Brief article on new office building by Stephenson & Turner.66

The expanded refinery was opened on 4 April 1955 in "lavish style‟ at a ceremony attended by over 1200

guests and presided over by the Prime Minister, RG Menzies. Originally estimated at £7.5 million, the final cost

of the expansion was subsequently increased to a massive £20 million. In telling comparison, Menzies

pointed out that not long before the war that had been the total amount of the federal budget.67

Figure 21: Plaque unveiled 4 April 1955 opening ceremony, and the dignitaries touring the plant

As well as the usual commemorative plaques, publications and presentations, Standard Vacuum

commissioned the famous Australian artist Charles William Bud (1919-1989) to paint the plant which he

65 Hendry, 2000 66 Cross-Section, May 1954 (no. 19), University of Melbourne Department of Architecture 67 Priestly, S. Altona – A Long View, 1988:218


described as "A scientific edifice, a fine specimen of the 20th

century 'alumina-intestino' style and an inspiring

subject for a painter". He undertook a series of preparatory sketches of the work in progress which were

subsequently published in book form.68. The company also commissioned noted commercial photographer

Wolfgang Sievers to prepare a photographic record of the structures when they were in pristine shiny

condition.

Figure 22: Altona Refinery 1955, by Charles William Bud (1919-1989)

A further opening ceremony was held in May 1956, to commission the first aviation gasoline plant in Australia.

In this case the Premier of Victoria Henry Bolte undertook the honours and was presented with an engraved

cigarette case.69

68 Charles Bush, An Artist Looks at Altona Refinery, produced for Standard-Vacuum Refining Company (Australia) Pty.

Limited by Atlas Associates, 1955 69 Cigarette Case Gold Museum Ballarat 90.0307, https://ehive.com/account/4819/object/258186#prettyPhoto, engraved

in centre of lid "presented to The Hon. H.E. Bolte M.L.A. by the chairman and directors Standard-Vacuum Refining

Company (Australia) Pty. Ltd. on the occasion of the opening of Australia's first aviation gasoline plant Altona refinery

may 1956."

https://ehive.com/account/4819/object/258186#prettyPhoto


Figure 23: Construction of cooling tower 1954, Sievers, Wolfgang, National Library of Australia, nla.pic-

an24882807

Figure 24: View of Mobil Altona Refinery showing Horton Spheres and TCC, 1956 Sievers, Wolfgang, National

Library of Australia, nla.pic-an24876126


Figure 25: Refinery by night 1956 1954, Photo Sievers, Wolfgang, National Library of Australianla.pic-

an24883930

Figure 26: Staff of the Altona refinery, Victoria in 1954. Photo Sievers, Wolfgang, National Library .nla.pic-

an24876601


Figure 27: Refinery from the Air in the 1950s – TCC operating and first of the cooling towers in place

2.7 Expansion (1960s-90s)

Australia was still heavily reliant on oil imports in the 1950s and recovering supply levels after years of

rationing. As a result, the federal government introduced generous tax concessions in 1957 for local

petroleum exploration. In the same year the Chief General Manager of BHP, Ian (later Sir Ian) McLennan

invited American Geologist, Lewis G Weeks, to Australia to assess the prospect of finding oil in the Sydney

Basin. Weeks had previously been employed as Chief Geologist of Standard Oil Company (New Jersey),

(Esso).70Weeks instead recommended the Gippsland coast as a more likely place for oil. A BHP / Esso joint

venture commenced exploration in Bass Strait and by 1967 had established the Kingfish and Halibut oilfields

with production of crude oil and natural gas commencing in 1969. This greatly reduced Australia’s

dependence on imported oil, however also required substantial reconfiguration of Australia's refining

processes to deal with the specific chemistry of the Gippsland Crude.71

Expansion and modification works at Altona were also necessary in the 1960s to cater for Middle Eastern

blended crude. The Saturates Gas Plant (SGP) and the No. 2 Reformer were built in this period. The No. 3

Crude unit, the No. 3 Pre-Treater Reformer and the Naptha Fractionation unit were all brought on-line in 1970

for processing Gippsland oil. The light waxy Gippsland crude was quite different to Middle Eastern oil,

requiring a de-waxing process. In 1976 the Altona Refinery was reconfigured or ‘debottle-necked to 108 TBD

crude throughout’, i.e. throughput of product could be run at 108 thousand barrels per day. 72

70 ‘Oil and Natural Gas’, in Technology in Australia 1788-1988. 71 Oxford Companion to Australian History, op.cit., p. 480. 72 ExxonMobil University – Altona Refinery History


New blow-down systems were also introduced, comprising the 150 ft. flare and the 200 ft. flare. In response

to local community pressure, the earlier ground flare was eventually demolished in 1978.

Figure 28: Altona Refinery in the 1960s (Wolfgang Sievers photo State Library Victoria)

The new plant allowed Standard-Vacuum to increase its product range to include motor vehicle fuels as well

as producing Australia's first locally made aviation fuel in 1956.73 It also provided a boom in local industry. In

1958, Mobil announced the construction of a major petrochemical plant next to the refinery, with the first

products available for sale in June 1961. It had a flow-on effect on the industrial development of Altona,

attracting several petrochemicals manufacturers. The first company to begin production at the complex was

BF Goodrich Chemical Ltd, in May 1961. Others including Australian Carbon-Black (now Cabot Australasia), the

Altona Petro-Chemical Co., producing ethylene and butadiene, materials used in the production of plastics,

and rubber Australasian Synthetic Rubber, BASF Australia, Union Carbide Australia Ltd, Commercial Polymers,

Dow Chemical, BF Goodrich Chemical and Hoescht Australia. This group of industries became known as the

Altona Petrochemical/Chemical Complex.74

The companies operated independently, but were able to take advantage of being located close to each other

by sharing raw materials and some services. The complex expanded over the next 20 years to meet increases

73 The Age Thursday 24 May 1956. 74 J Barnard, in Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study, Volume 2, p. 44 ff.


in local and export demand, becoming one of Australia's largest industrial centres and the biggest single

employer in the Western suburbs.

In 1973 Mobil Oil Australia announced its return to the production of lubricating oils in Australia and

commenced construction of a lubricating oil refinery alongside the existing Adelaide fuels product refinery.

The lubricating oil refinery, the most modern one in Australia, opened in 1976. In 1985, Mobil Oil Australia

negotiated a major asset swap with BP Australia in which Mobil vacated the Perth retail market in exchange

for acquiring a large portion of BP's South Australian, Victorian and New South Wales retail market. Two years

later, Mobil completed a major upgrade of its Yarraville bulk fuels terminal in Melbourne to create the most

efficient and technologically advanced petroleum products terminal in Australia.75

Figure 29: Automated control room in the 1960s (Wolfgang Sievers Photo, State Library Victoria)

2.8 Recent Developments

In 1990-91 Mobil Oil Australia bought out Esso Australia's refining and marketing operations, giving them 100

per cent ownership of Petroleum Refineries (Australia) Pty Ltd, and its refineries in Altona and Adelaide. This

acquisition resulted in Mobil becoming the second largest petroleum marketing and refining company in

Australia.

75 Exxon-Mobil, History, http://www.exxonmobil.com.au/australia-english/pa/about_who_history_mobil.aspx


In December 1995 Mobil further expanded its retail arm by purchasing the West Australian service station

network and wholesale business of Amgas. In December the company became Mobil Refining Australia Pty

Ltd (MRA). In the late 1990s, the refinery underwent a major modernization programme at a cost of $350

million, which was designed in part to achieve a higher level of feedstock flexibility. The program included the

replacement of the 1955 Thermofor Catalytic Cracker with a modern Resid Fluid Catalytic Cracker (FCC)

designed in association with the British engineering firm M. W. Kellogg Company (now Kellogg Brown Root

Ltd, or KBR).76

The FCC employs an alumina silicate-based catalyst, and has both improved efficiency and allowed a larger

range of crude to be processed. The Altona FCC unit is a side-by-side type, with the reactor and the catalyst

regenerator contained in separate vessels.

Thermal cracking has been almost completely replaced by catalytic cracking around the world because it

produces more gasoline with a higher octane rating and also produces more olefinic by-product gases that

are a more valuable product.

The converter for the FCC is 50 metres long and weighs 850 tonnes and required the power lines and street

signs between the Williamstown Dock and the Altona Refinery to be dismantled to allow the converter to be

transported. The upgrade also entailed new desulphurisation facilities, additional crude oil storage tanks, and

upgrades to safety and pollution control equipment.

Figure 30: Fluid Catalytic Cracker being transported through the Western Suburbs to the refinery site

76 Mobil Oil Australia Limited / Kinhill Engineers Pty Ltd. Altona Refinery Modernization Programme: Environmental

Management Plan, p. 21.


2.9 Chronology

Vacuum Oil Company – Altona Refinery 77

Early 1946 – 200 acres purchased by Vacuum Oil Co at Altona

October 1946 - construction of refinery commenced

June 1949 – official opening (lubricating oil and bitumen from imported crude), total capacity of

c2,200 barrels of crude per day

1950's - upgraded and increased capacity: installation of a second crude unit, Thermofor Catalytic

Cracker (TCC), reforming unit, desulphurization unit, additional storage tanks and new pipelines

1953 - expansion project began to increase production to c3.5million litres a day, installation of TCC –

project cost circa £20 million, employed 2,200 workers and took 22 months and involved the first

incidence of collective bargaining within the Australian labour movement

1955 - "multi-million dollar expansion program came on stream" to include motor vehicle fuels

May 1956 - production of the first locally produced aviation gasoline in Australia

1958 - announcement of intent to construct petrochemical plant adjacent to Altona refinery

1959 - upgrade to enable the production of transport fuels and the increased capacity to

c.41,000BPD: TCC modified to increase capacity, additional desulfurization unit, 6 additional storage

tanks and new pipelines

1961 - first petrochemicals produced

1960s - end of period of industry closures for oil refineries in Australia. Altona refinery upgraded:

effluent treatment pond and waste water treatment lagoon constructed

1962 - Vacuum Oil Company changed name to Petroleum Refineries Australia (PRA) jointly owned by

Mobil and Esso

1970 - additional refinery expansion completed allowing the local processing of local crude from Bass

Straight instead of processing imported crude

1970's - "International oil price shocks" caused significant restructuring of oil refinery operations

world wide

1971 - low sulphur crude discovered in Bass Straight and Westernport – Altona – Geelong pipeline

constructed to bring local crude to Altona refinery

1976 - upgrade to increase capacity to 108,000BPD: new crude unit installed, naphtha fractionation

unit installed, 3rd

reformer constructed

1980's - computer control equipment installed to replace obsolete instruments. "…processing of

imported crude for bitumen production ended"

1981 - price of crude oil peaked worldwide

1984 - Altona refinery producing 100,000 BPD of crude distillate barrels, Complexity Factor 5.75

(second only to Shell – Clyde in Australia)

1986 - TCC yield improvement project to increase performance

77 Sourced from ExxonMobil Australia, 2014, Fuelling Victoria for 60 yearshttp://www.exxonmobil.com.au/australia-

english/pa/about_what_rs_anniversary_60.aspx; Marioli, F, 1993, How Mobile is Mobil: A case study of the

modernization of Mobil's Altona refinery, University of Melbourne


1988 - abolition of Commonwealth Government Indigenous Crude Allocation Policy resulted in the

price of local crude no longer being guaranteed and Mobil looked at upgrading the Altona refinery to

enable the processing of a more competitively priced imported crude

1981-1989 - demand for crude oil dropped in Australia and many refineries closed down as a result of

economic slow-down and increasing environmental stringency

Late 1990s - Mobil brought all rights to Esso Australia – acquiring 100% ownership of Petroleum

Refineries (Australia) Pty Ltd which was responsible for the operations of the Altona (and Adelaide)

refinery

1991 - Mobil Oil brought out Esso Australia's 35% share in Altona Refinery. Mobil's share of the

Australian gasoline market from 14% to 21%

April 1991 and August 1992- Altona refinery threatened closure and relocation

July 1991 - Labor government provides formal support to Mobil's modernization project

December 1991 - Altona refinery responsible for 15% of Australia's refining capability and 60% of

Mobil's Australian refining capability

1992 - Mobil and Shell undertake joint project to house imported crude in a tank farm at the old Crib

Point refinery site

1992 - Altona Refinery Modernization Program Environmental Management Plan – Kinhill Engineers

and Mobil Oil Australia

1993 - Altona refinery supplied 50% of Victoria's petrol requirements and the feed stock to Altona

Petrochemical Complex.

1997 - modernization project undertaken: $250 million replacement of TCC with a Fluidised Catalytic

Cracker (FCC)

November 2005 - Benzene Reduction Unit installed at Altona Refinery and refurbishment of a

previously decommissioned hydrodesulphurisation (CHD) unit

Altona Refinery is registered as a Major Hazard Facility (storage, handling and processing of large

quantities of flammable products)

2009 - 60th

anniversary of refinery in Altona


3 Description of the Study Area

3.1 Landscape context

The Altona Refinery is situated on the Basalt Plains in Melbourne's Western Suburbs. The location was

evidently originally chosen for its proximity to railway lines, the existing Commonwealth Oil Refineries

installation nearby, and the Melbourne oil terminal facilities at Williamstown, Spotswood and Yarraville.

Segregation from other settled areas may also have been a factor, although housing was encroaching on its

north side as construction was underway. Kororoit Creek to the south and west of the refinery provides a

partial open space buffer, while there is light industrial zoned land to the east.

Due to the general open flat surrounds and lack of other tall structures, the refinery towers are visible from

many distant vantage points, in particular from the west approaching along Kororoit Creek Road and from

the railway overpass on Millers Road. Long views from the south and east are partly obscured by the

associated tank farms, but there are also unusual juxtapositions of natural and artificial wetlands and rare

open grasslands with the refinery as backdrop within the undeveloped buffer zones.

The following description is arranged according to the major construction phases of the site, identifying

surviving fabric and where evident, missing elements from each phase. Previous assessments of the Altona

refinery have emphasised the significance of the fabric associated with the 1949-53 era, specifically the offices

complex facing Millers Road and the Thermofor Catalytic Cracking (TCC) Plant. As noted above, however, the

whole of that part of the refinery located to the north-east of the intersection of Millers and Kororoit Creek

Roads in Altona, has been included in the area of the heritage overlay (HO202).

Refinery land extends beyond the present Heritage Overlay area, and includes the site of the former

administrative offices (Pegasus Building) on the south west corner of Millers Road and Kororoit Creek Road

(recently demolished) and tank farm on the south side of Kororoit Creek Road. However, these other areas

are not considered in the CMP.

3.2 Buildings and Plant 1946-9

The original refinery construction was based around a vacuum distillation plant primarily producing

lubricating oils and bitumen, with crude and product storage, workshops, amenities and administration. The

main processing area was south of C Street and west of 5th

Street, with the distillation towers where the No 1

Crude Unit was later installed.

3.2.1 Administrative Building later Health Centre.

This building located on Millers road adjacent to the original main site entrance, was constructed in 1948 and

comprised concrete block walls, with steel truss roof and steel–framed windows and corrugated asbestos

cement sheet roofing. It runs parallel to Millers Road and has a strong horizontal element formed by the

windows and hipped roof line. The administration office was the public face of the site until the new building

designed by Stephenson & Turner was erected to the south west in 1953.


Figure 31: Gatehouse (demolished) with former Administration building behind 6 Dec 1949 (Exxon Mobil

Archives)

Figure 32: Administrative Building under construction 9 Dec. 1948. (Exxon Mobil Archives Photo Album 35/23)


Figure 33: Administration building from the south east.

Figure 34: Administration building from Millers Road

3.2.2 Switch House

This small concrete block building with steel-framed windows and hipped roof was constructed adjacent to

the original boiler house to house compressors and switch gear. With the Millers Road administrative

building, it would appear to be one of the few concrete block structures surviving from the original plant

which reflect the stated material shortages under which the refinery was constructed. The adjacent

boilerhouse was demolished about 1964, when new high output boilers were installed.


Figure 35: Switch and compressor house with (demolished) boiler house behind 18/1/1948 (Exxon Mobil

Archives album 39/44)

Figure 36: Compressor and Switch gear building, 2015

3.2.3 Distillery and Bitumen Plant

The original plant, comprising vacuum distillation towers for bitumen and lubricating oil, was the main

production facility when the refinery first opened and comprised separate heating furnaces for the stills and

bitumen process, with specially insulated piping and tanks to prevent the bitumen hardening. As the original

distillation towers were replaced with the No 1 Crude Unit in the 1950s, the associated primary bitumen plant

was probably also replaced at this time. However, it is likely that some components were reused in the

modifications. Some of the remaining tanks including bitumen tanks 380-84, and oil blend tanks, date to the

original construction phase, as do steel and concrete support structures, overhead gantries, and other parts

of the plant. The diesel and petrol tanks were replaced. In terms of the steel structural work, pumps, piping

and other control equipment, it is difficult to isolate specific 1940s fabric from the later additions and

replacements, but is likely much of this plant has been replaced over time.


Figure 37: Pipe Still 27/7/1949 (Exxon Mobil Archives Albums 46/6)

Figure 38: Vacuum distillation tower under construction 27/7/1949 (Exxon Mobil Archives Albums 46/26)


Figure 39: Location of No 1 Crude unit reused for later plant, 2014

Figure 40: Storage Tanks and pipe gantry from original Bitumen plant, 2014


Figure 41: Bitumen tanks and rail loading gantries from the north, 2015

3.2.4 Lubricating oil warehouse

This large steel-framed building comprises three bays of pitched roofs. It originally had a skillion cantilever

extension on the south side covering the loading bays. As with the other early buildings this would have

originally been clad in corrugated asbestos cement sheeting, but has recently been re-clad in Zincalum, with

clear corrugated plastic skylights.

Figure 42: Lube. Oil building under construction 27/7/1949 (Exxon Mobil Archives Albums 46[28)


Figure 43: Lube Oil Warehouse from the Millers Road bridge, 2014

3.2.5 Drum filling building

The drum filling building is a small steel framed and corrugated iron clad structure near the railway siding. It

was erected around 1950, originally with a cantilevered verandah on the south side. The structure has a

bolted and welded steel frame and roof trusses, and corrugated steel cladding replacing the presumably

original corrugated asbestos cement. It is mostly open sided and is currently used as a construction workshop

and store.

Figure 44: Bitumen Drum filling building with rail loading at top, 2014


Figure 45: Lube oil packing building, 2014

3.2.6 Demolished structures

In addition to the original distillation towers, which had been demolished sometime between 1968 and 1970,

other structures from the original construction phase have been demolished over the years.

Major buildings from the early period that have been demolished include the following:

Workshop and store – between 1972 and 1974

Boiler house and 3 stacks – between 1960 and 1964

Amenities building – between 1960 and 1964

Gatehouse – between 1964 and 1968

Wagon loading building – between 1964 and 1968

Figure 46: Wagon Loading/Tanker filling station (demolished) 15 Dec 1949 (Exxon Mobil Archives, album No22)


3.3 Buildings and Plant 1950-56

3.3.1 Amenities buildings

New amenities were constructed as part of the 1950s expansion. In keeping with Standard Vacuum's US

practice, facilities were designed to improve working conditions and develop a strong bond between the

employees and the company. The fully catered canteen included separate executive dining room, and serving

counter. Designed by Stephenson and Turner in the International Style, they comprise almost flat roofs of

steel deck cladding on steel roof beams, supported on further framing and cream brick walls. The tall canteen

and auditorium sections are linked by lower sections for service areas and foyer,

Extensive aluminium-framed windows with interspersed green glass panels wrap around the canteen and

dining room exterior, while the auditorium has windows on the east side only, fitted with blackout curtains.

The ceilings are built of suspended acoustic tiles, while polished timber floors are in the auditorium and

executive dining rooms, the latter now carpeted. Polished Australian hardwood panelling and joinery has

been used extensively.

Figure 47: Amenities building – auditorium and canteen from the south west, 2015

Figure 48: Canteen interior looking east, 2014


Figure 49: Auditorium interior facing south east, 2014

3.3.2 Boiler house

The later boilerhouse, employing high pressure oil fired boilers and shorter chimney stacks stands

immediately south of the site of the original boiler house. This is a steel framed and corrugated steel clad

building.

Figure 50: 1950s Boilerhouse and water tank on left, 1948 Switch house centre, 1950s laboratory on right.

3.3.3 Thermofor Catalytic Cracker

The Thermofor Catalytic Cracker remains standing at 248 feet high and is thought to be the last catalytic

cracker of its type in Australia, although it has been decommissioned, disconnected from the refinery and

many of the ancillary items such as furnaces have been removed.


Figure 51: TCC in the 1960s (Exxon Mobil Archives)

Some structures associated with the TCC may currently exist in part, including the feed prep/TCC Gas Unit

(located to the east of the TCC, and the concrete pit from the TCC Reactor Blowdown (also known as the

ground flare).

3.3.4 Mechanical workshop

The mechanical workshop is a large steel framed structure located adjacent to Kororoit Creek Road. The

building has shallow pitched roof supported on steel trusses, corrugated steel cladding and a continuous strip

of glazing along the tops of the long elevations.

Figure 52: Mechanical Workshop in 2014 showing recladding.


3.3.5 Warehouse – fire station

An unusual building on the site dating to about 1953 was later referred to the 'Kellogs store' (sic), after the

engineering and construction contractor M. W. Kellogg Ltd. (now Kellogg Brown Root Ltd, or KBR), the firm

that designed the FCC unit). The building was evidently a prefabricated hangar probably surplus from WWII.

This has steel framed wall and sliding door panels, with segmental steel trusses and supports, clad in

corrugated steel.

Figure 53: Prefabricated warehouse building

3.3.6 Laboratory

A building on the site of the present laboratory and to a similar form was in place in about 1952 as shown on

one of the Wolfgang Sievers photos. However, the present structure appears to have been extended and

altered in subsequent years. As constructed this had a near flat roof, cream brick walls and aluminium

windows forming a continuous strip along the upper third of the walls.

Figure 54: Laboratory building from the north east, 2015


3.3.7 Solutizer

The Solutizer was installed in the 1950s expansion, and has been extensively modified in recent years. The

facility comprises concrete-encased steel frame portals supporting pipework and plant running in parallel

lines, with storages tanks on either side. Some evidently redundant reaction vessels, pumps, valves and other

plant are still in place.

A concrete framed and brick-walled amenities building adjacent to the plant is contemporary with the

solutizer, but not related functionally. This building has an unusual structural design, with three-pin arch

portal frame, formed from what would appear to be prefabricated 'L' shaped reinforced concrete beams,

joined with steel bearings at the crown and end bases.

Figure 55: Remaining Solutizer plant looking west, 2014

Figure 56: Amenities building (Area 3 change room) adjacent to solutizer, 2015

3.3.8 Cooling Towers

The first of the cooling towers, Cooling Tower No. 1 on corner of C Street and 3rd Street was built in the early

1950s, using over £30,000 of imported timber. This was one of four separate structures added as the plant

expanded, with a second unit (No 2) constructed by 1956, and two smaller units added subsequently.


Figure 57: Cooling Tower No 2.

3.3.9 Horton Spheres

The LPG (Liquefied Petroleum Gas) plant was developed in the late 1950s, including three Horton spheres,78

which were initially erected west of the No 1 Cooling Tower, but moved by 1968 to the east. Eleven bullets

were also constructed between1959-84. These distinctive forms have attracted photographers and artists.

LPG was initially used in the production of aviation fuel and in recent decades has been supplied to the

nearby Altona chemical complex. The spherical shape of the Horton Spheres offers uniform stress resistance,

allowing the vessels to economically contain internal pressures. They require less land area yet provide more

capacity than other pressure storage vessels, resulting in lower associated costs for piping, foundations,

accessories and painting.

78 Spherical pressure vessels first built by the Chicago Bridge & Iron Company in 1923 and named after the company

founder Horace Ebenezer Horton.


Figure 58: Three Horton Spheres for storage of LPG, 2014

Figure 59: Group of air force personnel 8 December 1955 in front of Horton Spheres - identified as Standard-

Vacuum Refining Company Pty Ltd, Essendon, but probably Altona (Museum Victoria Reg. No: MM 51251)


3.3.10 Other building and plant

Other buildings and plant from the 1950s, which are believed to still be in place at least in part include the

following:79

Locker Building (Millers Road)

No 2 Crude Unit (2 CDU) (expanded 1967, further changes mid-late 1990s)

Solutizer plant (for removing impurities such as sulphur using a caustic wash treatment).

Hydrogen Sulphide Recovery Unit (H2S)

Various cream brick control rooms located across the site, include no 2 CDU control room in SGP unit,

also control room north-east of the Solutizer.

No 1 Pretreater (1PTR) constructed 1954, converted to a hydrotreater (HDT) in 1991)

No. 1 Reformer (used for extraction of high octane petrol from naptha)

Sulphuric acid Alkylation Unit (used to produce a high quality gasoline component, using either

sulfuric acid as the catalyst) commissioned in 1955, revamped in 1966 replacing the reactor expanded

as part of debottleneck project in 1978-9 including extending the reactor from six to seven mixing

zones.80

Cooling Tower No. 2 also 1950s (expanded 1966) (this is the one to the south of No. 1)

3 B Tankage Area (located in the area bordered by 4th

Street, D Street, 3rd Street and Kororoit Creek

Road), contains storage tanks

3.4 1960s and later additions

Progressive improvements and modifications of plant at the refinery have been undertaken since the

completion of the TCC to accommodate different feed stocks (such as the introduction of Gippsland Crude)

increase output, or for producing different products. New plant included Bitumen Oxidiser Drums were

replaced with new units in1960, while the present Bitumen Oxidiser was commissioned in 1966. The

Saturates Gas Plant (SGP) was commissioned in the early 1960s, and expanded in 1977-8.

Other plant installed in the 1960s and 70s included:

No 2 Reformer,1966

No. 3 Cooling Tower - two units south of No 1 and No 2 Cooling towers1969-70

No. 3 Crude Unit, 1970

No. 3 Reformer

No. 3 Pretreater

79 Identified by Lovell Chen, 2002, Hobsons Bay Planning Scheme Amendment C17 80 Steven Ackerman and Paul W Kamienski, ExxonMobil Research and Engineering Company, USA

Kate D Hart and Derek R Styles, ExxonMobil Refining and Supply, Australia 'Sulphuric acid alkylation reactor upgrade'

http://www.digitalrefining.com/article/1000234,Sulphuric_acid_alkylation_reactor_upgrade.html#.VKYrRdIcS3U


Naptha Fractionating Unit, 1970)

Flares (150 ft. and 200 ft.)

In the 1980s the Cutback Bitumen Unit was installed and in 1991 the No. 1 Pretreater was converted to a

Hydrotreater. The Lo-Cat Unit - Sulphur Recovery Unit was installed in 1994.

3.4.1 Fluidised Catalytic Cracker

The major redevelopment of the refinery came in 1997-8 with the construction of the new Fluidised Catalytic

Cracker (FCC) replacing the TCC. This is the major processing unit for production of higher octane petroleum

fuels and is currently in operation. The main vessel also forms a structural unit, reinforced by a framework

supporting the adjacent stairs and elevator tower. The structure stands over 60m tall, although not as tall as

the TCC.

Figure 60: Fluidised Catalytic Cracker

http://www.hydrocarbons-technology.com/projects/altonarefinery/


4 Comparative Assessment

Comparisons for heritage purposes generally identify a population of places which fulfil similar historical

themes, are from a similar period, and/or have some physical resemblance. The relevant historical theme is

very broadly defined as 'industrial development in the twentieth century'. In terms of its regional setting, the

Altona Refinery also relates to the more specific chemical industries which were concentrated in Melbourne's

Western Suburbs from the mid nineteenth century onward, and generally migrated west as expansion of

existing industries and new industries developed.

On a broader geographic basis and more specific industrial type, the Altona Refinery relates to the

development of the petrochemical industry in Australia following World War I, and its great expansion in the

immediate Post World War II period.

Therefore the comparable places will be other petroleum refineries in Australia, other large petrochemical

related undertakings and oil industry related sites. The other past and present oil refineries and terminal sites 81of comparable size and scale are summarised in the following table:

Table 1: Refineries in Australia

Plant Operator Opened Closed Capacity

(tbpd)82

COR Laverton VIC Commonwealth Oil Refineries/Anglo-

Iranian Oil Company/BP

1922 1954

Clyde Sydney NSW John Fell & Co / Shell 1926 2012 50

Altona VIC Standard Vacuum/Mobil 1947 46

Matraville NSW Boral Ltd/Total 1948 1984 12

Kurnell Botany Bay NSW Caltex 1953 2014 85

Kwinana Perth WA BP 1955 83

Corio Geelong VIC Shell 1956 75

Port Stanvac SA Standard Vacuum 1960 2003 100

Bulwer Island QLD BP 1960 201583 59

Lytton QLD Caltex 1965 63

Cribb Point VIC BP 1966 1985 60

81 Report on Australia’s oil refinery industry, House of Representatives Standing Committee on Economics January 2013

Canberra 82 COGEN, Submission to Senate Select Committee on Fuel and Energy August 2010

http://www.aph.gov.au/~/media/wopapub/senate/committee/fuelenergy_ctte/submissions/Sub_138_pdf.ashx 83 BP Bulwer Island Refinery: processing to halt, Press Release: 2 April 2014,

http://www.bp.com/en_au/australia/media/media-releases/bulwer-island-refinery-processing-halt.html


Little remains of the COR Laverton and BP Cribb Point refineries, leaving only Shell in Geelong as the

comparable Victorian petroleum refinery. Matraville, Clyde and Kurnell in NSW have been substantially

decommissioned, or are about to, with the distinctive distillation and cracking towers removed, while Bulwer

Island may go the same way shortly, leaving Lytton in Queensland and Kwinana in Perth WA as the only other

fully operational Australian refineries.

The petroleum industry in Victoria was concentrated in Melbourne’s inner western suburbs in the first half of

the twentieth century. This continued a process of industrial development from the nineteenth century, which

included many dangerous and noxious trades.

Oil terminals were established on the Yarra and Maribyrnong River berths to take first packaged and then

bulk oil, kerosene and other petroleum products from overseas refineries. Some of these such as the

Williamstown and Yarraville Terminals became bulk crude import wharfs, while blending and distribution

facilities grew around them. Companies such as British Imperial Oil (Shell), Alba Petroleum (Ampol), the

Atlantic Oil Co. (Esso), HC Sleigh (Golden Fleece) and the Commonwealth Oil Refinery Co. (BP), all established

facilities in the area between Yarraville, Spotswood and Newport. With rationalising of the industry in the late

twentieth century a number of these installations have since been decommissioned.

As oil blending and storage facilities are common to some of the terminal and distribution sites, as well as the

Altona Refinery, some comparisons can be made. Generally the Yarraville/Newport sites are smaller and less

complex in their structures, but have earlier establishment dates.

The Shell facility at Newport and the Vacuum Oil/Mobil Yarraville terminal were established by the early 1920s

and retain several early storage tanks and until recently early packaging and warehouse buildings.

Figure 61: Yarraville Terminal (Bing bird's eye images), 2012

Other terminals such as Caltex, Ampol, Shell and BP at Newport and Esso at Spotswood, are more notable for

the size and range of their tank farms, including several early riveted steel tanks. The former Esso terminal

buildings and tanks at Spotswood were demolished in 2014.

Several buildings survive on these sites, of similar scale (and possibly function), to the east and west buildings

at Yarraville, but generally do not retain t in 3014-5. The brick and concrete building at the Esso terminal has a

similar structural form.


BP is a far more dominant site because of its mid-twentieth century glass curtain walled lubricant blending

tower; BP Australia Complex 431 Douglas Parade, Spotswood (HO89).

The Shell Oil Complex, 39-81 Burleigh Street and Drake Street, Newport (HO47) comprises early 1920s riveted

storage tanks, corrugated iron clad stores buildings, gatekeeper's house and rail sidings. Six Riveted Oil Tanks

are separately listed as (Part Shell Oil Complex) Burleigh Street, Spotswood (HO48).

The Commonwealth Oil Refinery Company Tank Farm comprises only early storage tanks, although some

ancillary buildings survive. Only the NP6 and NP7 storage tanks are included on the Heritage Overlay, 39-81

Burleigh Street, Spotswood (HO49).

Only the administrative building and timber bridge remains from the Commonwealth Oil Refinery Complex

(former) 32-54 Toll Drive, Altona North (HO303).

The complexity of structures and activities associated with the oil terminals - tank farm, substantial early

stores, workshops, blending and despatch buildings, etc. - however, is not demonstrated at these other sites,

which either were designed as part of larger more dispersed complexes of various facilities, or have

undergone more substantial changes.

Figure 62: Lubricant blending tower and offices at BP Newport terminal, 2012

Figure 63: Storage and works sheds at Shell Newport Terminal, 2012


Figure 64: Pump house at BP Newport terminal, 2010

Figure 65: Brick stores building Esso oil depot, Simcock Ave Spotswood, 2010 (demolished c2014)

Figure 66: Concrete building Caltex Newport Terminal, 2010


Figure 67: Shell terminal Newport (photo Sievers, SLV H2004.49/83) (demolished) c1980

Figure 68: Former commonwealth Oil Refinery office building Altona North, 2008

The Altona Petrochemical Complex also contains comparable plant, especially pressure vessels, processing

towers, storage tanks and the ubiquitous pipework of the petrochemical plant – the alumina-intestino style

described by artist Charles Budd.


Figure 69: Altona Petrochemical Complex, (Technology in Australia 1977-1988)

Similarly the Longford Gas Plant in Gippsland, constructed from 1965 to process and transfer natural gas

from off-shore wells to Melbourne, has also played an important role in the historical development of late

twentieth century industry in fuel supply in Victoria. It also features much of the same forms of aesthetic

value identified at Altona and other refineries, in the complex forms of pressure vessels and snaking silver

pipework.

Figure 70: Longford Gas Plant84

84 Barry Wood, Building Victoria’s first natural gas pipeline: Dutson to Dandenong 1968, The Australian Pipeliner,

October 2009


While all the surviving storage and distribution sites in the Western Suburbs are of interest in terms of the

history of the petroleum industry in Victoria, and have the potential to demonstrate aspects of this history,

the Altona Refinery is such an unusual element in the industry, we can conclude that it is only really

comparable with the other Victorian refinery at Shell's Geelong plant in Victoria The import and distribution

terminals represent the precursor historical phase in the development of imported product and provision of

fuel and lubricants for industry and motorised transport, but functionally they are very different places.

Figure 71: Catalytic Cracker at Shell Refinery Geelong during construction (State Library Victoria)

Associated plant of similar form, such as the Altona Petrochemical Complex, Longford gas plant and other

petrochemical works, historically reflect some of the consequent developments that have been influenced by

the refinery and oil industry, but are generally of more recent date and more specialist function, and so their

significance at present should be considered secondary to the main centres of oil import and processing.

Interstate refineries are also of interest in comparison, in particular as evidence that the present extent of

similar refining facilities is contracting, and the pioneering phase of the industry is slowly disappearing. Of the

earlier and contemporary refineries, the 1920s Clyde and Laverton refineries are all but gone, while the 1940s

and 50s sites at Matraville and Kurnell, have been closed and will soon lose much of any remaining early

fabric. The surviving Kwinana and Corio refineries will of course be under the same pressure for renewal and

replacement as is Altona, so that in the future, their heritage characteristics will also be diminished.


5 Significance

5.1 Existing statements of significance

The statement of significance in the Hobsons Bay Heritage Study85 state:

The Standard Vacuum Refining Co complex (former), now Mobil Oil Refinery, comprising the buildings and plant

generally constructed between 1949 and 1960, at 351-381 Millers Road, Altona North.

The Standard Vacuum Refining Co complex is of local historic, social, technical and aesthetic significance to the

City of Hobsons Bay.

Historically, it is significant for its strong associations with the development of the oil industry in Australia as one

of the oldest continuously operating oil refineries in the country. It is also significant as a major refinery and

office complex that illustrates the immense industrial expansion of the City and Victoria in the post World War 2

period. The size of the complex had a significant impact on the economy of the State of Victoria and led to the

establishment of a petro-chemical complex within this area with a number of associated firms such as Australian

Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who

have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex

have associations with the important architectural firm of Stephenson & Turner. (AHC criteria A4 and H1)

Socially, it significant for its strong associations with the local community as one of the first major industries in

the Altona area and one of the largest employers over a long period. It is also significant for its associations with

the development of the labour movement in Australia through the introduction of the concept of collective

bargaining techniques, which were first used at this site. (AHC criteria D2 and G1)

Technically, it is significant for early plant and equipment such as the Thermofor Catalytic Cracking Plant, which

is unique in the State. (AHC criterion F1)

Aesthetically, although altered, the c.1955 office block is significant as a good example of modernist design that

illustrates the progressive nature of the Standard-Vacuum company and investment made in the establishment

of the complex at the time. (AHC criterion E1)

The extent of this designation according the Hobsons Bay Heritage Study covers the following components:

- The refinery itself comprising various equipment, pipes, tanks and stacks, all set out on a rectilinear grid

between the railway, Millers Road and Kororoit Creek Road. It includes the 248 feet high Thermofor Catalytic

Cracking Plant (now decommissioned), which is thought to be the last vertical catalytic cracker in Australia.

- The auditorium, canteen and locker building, located at the north-east corner of Kororoit Creek Road and

Millers Road, which has a flat roof, is clad with cream bricks and has aluminium framed windows with green

glass panels. This is one of the buildings designed by Stephenson & Turner

- The former office/laboratory building (now the medical centre), which is a concrete block with a hip roof

building facing Millers Road.

- The former Administration buildings, designed by Stephenson & Turner, on the south west corner of the Millers-

Kororoit Creek Roads intersection. This building was pictured in the guide to architecture in Victoria, which was

85 Hobsons Bay - Hobsons Bay Heritage Study, Hobsons Bay City Council, 2006 Victorian Heritage Database place

details - 28/8/2015 Standard Vacuum Refining Co. Complex (Former) vhd.heritage.vic.gov.au/reports/report_place/15139


produced by the RVIA for the 1956 Olympics. This building has since been changed by a general renovation in

recent times.

- A tank farm on the south side of Kororoit Creek Road. The number of tanks has been greatly expanded since the

1940s.

The plant has also been expanded, with some additional land occupied to the east, but the original plant has not

been radically changed. An aerial view of the site titled "January 1955. The new refinery already looks complete"

shows little change from recent aerial views. (Priestley 1988:206)

5.2 Assessment against criteria

Assessment of significance has been undertaken in accordance with the practice note “Practice Note 01:

Applying the Heritage Overlay”, Published by the Victorian Government Department of Planning and

Community Development Melbourne, September 2012. This establishes the processes, criteria and

thresholds for determining significance of heritage places and the format for presentation of the statement of

significance. The following statement has been adapted from the existing Hobsons Bay Heritage Study

citation, and consideration of the Panel Report for amendment C17.

What is significant?

The Altona Refinery is a large industrial complex located on Millers Road and Kororoit Creek Road

Altona. It was constructed from1946-9 and substantially expanded in 1953-6. The complex includes

some buildings, storage tanks and plant from the original 1946 bitumen and lubricating oil refinery, the

remnant 1953 Thermoform Catalytic Cracker, former c1954 office building known as the Pegasus

building (demolished 2014) and the 1998 Fluidised Catalytic Cracker. The present layout, plant,

buildings and overall fabric of the site represent the progressive evolution of the refinery. Its continuing

operation is critical for the cultural significance of the place to continue to be maintained, and

decommissioning would inevitably lead to the removal of most of the fabric, as has occurred at other

closed refineries in recent decades.

How is it significant?

The Altona Refinery is significant for historical, technical, social and architectural reasons at the local

level to the City of Hobsons Bay.

Why is it significant?

The Altona Refinery is of significance as a rare and important petrochemical plant, which is the earliest

surviving and longest lived oil refinery in Australia.

Criterion A: Importance to the course or pattern of our cultural or natural history (historical significance).

The Altona Refinery is significant to the history of transport, industry and economic development in

Victoria, as the most prominent site reflecting the growth in importance of motor fuel and therefore

road transport, in the immediate post World War II period. It was also the first fully functional oil and

petroleum refinery in the state, which assisted in bringing about a substantial level of fuel and energy

self-sufficiency in Australia following a period before and during World War II in which the country was

highly reliant on petroleum based fuel imports.

The refinery plant and structures are also of historical significance as examples of a distinctive building

form which expresses the functional role in oil refinery technology and the introduction into Australia

of specialist technology, plant and skills which assisted the modernisation of industry and the creation

of an integrated petrochemical industry. The Altona refinery provided the raw materials and skill sets


necessary to develop the Altona Petrochemical Complex, which became one of the largest employers

in the Western Suburbs and Victoria.

Criterion B: Possession of uncommon rare or endangered aspects of our cultural or natural history (rarity).

With the changes in technology and economies of petroleum production, shipment and use, the Altona

Refinery is one of a diminishing number of plants of its type in Australia. Of a total of eleven refineries

that have operated in Australia, only four are continuing with future production. Modifications and

improvements to manufacturing processes are likely to see further replacement of original or early

fabric so that the heritage of the first phase of refining is likely to disappear in the future.

Criterion C: Potential to yield information that will contribute to an understanding of our cultural or natural

history (research potential).

Potential educational or research value is as yet unrealised, however, mid-twentieth century petroleum

refining technology and refinery design has not been extensively studied, and so the remaining

buildings and plant have potential to contribute to our understanding of the development and

importation of technologies.

Criterion D: Importance in demonstrating the principal characteristics of a class of cultural or natural places

or environments (representativeness).

The Altona Refinery is one of a very small group of very large integrated petrochemical plants in

Australia, and could be considered typical of the class.

Criterion E: Importance in exhibiting particular aesthetic characteristics (aesthetic significance).

The aesthetic qualities of the functional industrial design of refineries have been recognised both

within the Mobil Company and its precursors, and in the wider community. Artistic renderings of the

plant have been commissioned for company publications, commemorative plaques, the photographs

0f Wolfgang Sievers of the plant are held in many gallery collections, and the plant has been subject of

painting, photography and even needlepoint.86

Criterion F: Importance in demonstrating a high degree of creative or technical achievement at a particular

period (technical significance).

The development of refining technology in Australia was primarily due to importation of overseas

designs, plant and expertise. Altona Refinery was described as the most modern in the world when it

was upgraded in the 1950s. The Thermofor Catalytic Cracker is believed to the only plant of this specific

design in Australia.

Criterion G: Strong or special association with a particular community or cultural group for social, cultural or

spiritual reasons. This includes the significance of a place to Indigenous peoples as part of their continuing

and developing cultural traditions (social significance).

The refinery has played a significant role in the development of the local area and has had a strong

influence on the lives of local people, both as a source of employment and prosperity, and as a subject

of concern in relation of the dangers of proximity and pollution. As a result the site has figured strongly

as a social concern in the community.

86 See for example National Gallery collection http://www.ngv.vic.gov.au/col/work/13666; Mark Ogg's paintings of the

refinery a http://www.bindarri.com.au/mark-ogge/ and Jessie Dean's cross stich http://jessiedeane.com/?portfolio=altona-

refinery-view-from-kororoit-creek-road

http://www.ngv.vic.gov.au/col/work/13666

http://www.bindarri.com.au/mark-ogge/

http://jessiedeane.com/?portfolio=altona-refinery-view-from-kororoit-creek-road



Criterion H: Special association with the life or works of a person, or group of persons, of importance in our

history (associative significance).

While a number of Standard/Vacuum and Mobil personnel and managers have had strong associations

with the site, no specific person of historical interest has yet been identified.

5.3 Significant Elements

The major elements of the Altona Refinery, together with their assessed levels of significance, are described in

section 3 above. The locations of significant elements are shown in Figure 72.

Table 2: individual significant elements

Item Significance Significance level

Administrative building 1948 Represents original phase – material

shortage, first offices

Primary significance

Switch and Compressor House 1948 One of few original control buildings Primary significance

Storage tanks 1948 Number of earliest tanks in bitumen

and lubricant area


Distillery and bitumen plant 1948 Gantries, furnaces and piping reflects

original main production


Lubricating oil warehouse 1948 Reflects original main production Primary significance

Drum filling building 1948 Reflects original main production Primary significance

Thermofor Catalytic Cracker (TCC) 1953 Tallest structure in site – revolutionised

petrol production in Australia


Solutizer 1953 Secondary process plant related to

operation of TCC

Contributory

significance

Amenities (canteen and auditorium)

1953

Reflects high level of worker amenity

introduced under the 'American

system'' of industrial relations


No 3 Change room 1953 Reflects high level of worker amenity

introduced under the 'American

system'' of industrial relations


Laboratory 1956 Represents the process of research

and product improvement

Contributory

significance

Boiler House 1956 Adaptation to more efficient

technology in second phase of

operation

Contributory

significance

Mechanical Workshop 1950s Demonstrates role of on-going repair,

maintenance and improvement

Contributory

significance

Warehouse / Fire Station1950s Storage building of unusual

provenance (ex-hangar)



Item Significance Significance level

Cooling Towers 1953-6 Specialist structures with vast

quantities of timber employed

Primary and

secondary

significance

Horton Spheres 1954 – relocated 1970s Distinctive and unusual aesthetic

shaped storage tanks

Contributory

significance

Fluidised Catalytic Cracker(FCC) 1998 Reflects modernisation of works in

1990s.

Contributory

significance

No 2 Crude Unit

Solutizer

Cooling towers

Cooling towers

Venture Building

Werribee rail line

Alt

on

a ra

il lin

e

Kororoit Creek Road

Mill

ers

Road

Substation 3

No 3 Change Room

A StreetA Street

No 1 Crude Unit

TCC

Distilery & Bitumen Plant

Lubricating oil warehouse

Boiler House

Stores

Adm

inis

trat

ive

build

ing

Amenities

Mechanical Workshop

Warehouse/firestation

Pegasus building

FCC

#2 Reformer

#3 Reformer

#1 Reformer

Blowdown & Flare

Laboratory

Drum filling

CCB

Wagon filling

Lube oil blending

LPG

Switch & Compressor House

B Street

C StreetC Street

D Street

LPG

Main o!ce5th

Str

eet

5th

Str

eet

5th

Str

eet

7th

Str

eet

4th

Str

eet

4th

Str

eet

4th

Str

eet

3rd

Str

eet

2nd S

tree

t

Storage Tanks

Auditorium

Canteen

Horton spheres

Project 1870610/11/2014 drawn GV

N

Structures

Roadways

HO202 extent

Photo number &

direction

000

KEY

Figure 72: Locations of signi"cant elements and management actions


6 Conservation Policies Guidelines and Actions

6.1 Purpose of the conservation policy

The policies in this section provide direction and guidelines for the future use, conservation and possible

adaptation or redevelopment of the site and its component parts, in a manner that addresses the

significant elements in the context of an operating facility with considerable constraints on management

of fabric. Accordingly, the directions and guidelines included here should be considered in determining

future strategies and outcomes for the Altona Refinery.

The following conservation policy and management plan has been developed on the basis of the

preceding assessment of the cultural heritage significance of the place and the policies take into account

key issues and opportunities arising from the cultural significance of the Altona Refinery, the Burra

Charter guidelines, statutory requirements and the physical condition and integrity of major

components.

6.2 Terminology and Methods

This Conservation Management Policy has been prepared in accordance with the Australia ICOMOS

Burra Charter (Australia ICOMOS 1999 revision - see Appendix 2) and the methodology outlined in Kerr’s

The Conservation Plan. The assessment of cultural significance has been primarily compiled using these

documents.

The conservation terminology used in this report is of a specific nature, defined in the Australia ICOMOS

Charter for the Conservation of Places of Cultural Significance (the Burra Charter) as endorsed by the

Australian Heritage Commission. The terms most frequently referred to are: place, cultural significance,

fabric, conservation, preservation, restoration, reconstruction and adaptation. These terms are defined

in the charter as follows:

Place means site, area, land, landscape, building or other work, group of buildings or other works, and may

include components, contents, spaces and views.

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.

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

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

Maintenance means the continuous protective care of the fabric and setting of a place, and is to be distinguished

from repair. Repair involves restoration or reconstruction.

Preservation means maintaining the fabric of a place in its existing state by removing accretions or by

reassembling existing components without the introduction of new material.

Restoration means returning the existing fabric a place to a known earlier state and is distinguished from

restoration by the introduction of new material into the fabric.

Reconstruction means returning a place to a known earlier state and is distinguished from restoration by the

introduction of new material into the fabric.

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

Use means the functions of a place, as well as the activities and practices that may occur at the 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.

Setting means the area around a place, which may include the visual catchment.

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

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

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

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

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


6.3 Statutory Requirements

Statutory heritage requirements relating to any future works in the Altona Refinery include provisions

for permits for any works to places listed on the Hobsons Bay Heritage Overlay.

The panel report for Amendment C17 supported the extent of the exhibited HO149 (which

encompassed all of the refinery site on the north east of the Miller Road and Kororoit Creek Intersection,

and further recommended that:

The amendment should be modified to include an Incorporated Document that excludes all of the areas of

the site from any requirement for a planning permit for buildings and works pursuant to Clause 43.01.

The Statement of Significance should be amended to exclude reference to the office block across the

intersection (not in the Heritage Overlay) and to emphasis the value of the ongoing operation of the refinery

in support of the site’s heritage values.

The amendment of the statement of significance is proposed in section 5.2. As documented in Section

1.4, during preparation of the documents, Council advised that an incorporated document is not the

appropriate regulatory mechanism to have in place to manage the heritage value of the Refinery and

instead in agreement with Council, an application for a planning scheme amendment has been drafted

to remove the heritage overlay. This CMP provides a detailed historic record of the Refinery.

There are no requirements under any other statutory regulations relating to heritage of the site. It is not

included in the Victorian Heritage Inventory or Heritage Register under the Victorian Heritage Act 1995,

or in the Commonwealth, National or World Heritage Lists under the Commonwealth EPBC Act.

6.4 Opportunities and Constraints resulting from Significance

6.4.1 Need for the works

Mobil Refining Australia has prepared a letter to Hobsons Bay City Council explaining the nature of

works at the Refinery, the adverse impact the heritage overlay has on facilitating those works efficiently,

and why these works cannot be done without impacting on the heritage fabric (see Appendix B). The

main issues addressed include that "…decisions need to be made quickly in response to external market

factors as well as internal funding opportunities and health and safety requirements". Heritage

approvals through the planning permit process "…create uncertainty for the project approvals process

and reduce the Refinery's ability to respond in the necessary timeframes to capitalize on funding

opportunities." Funding for works at Mobil's Altona refinery is competitive within the wider ExxonMobil

Asia Pacific region operations, so that delays in decision making may result in priorities being directed

elsewhere and ultimately impact on the viability of the Altona Refinery. 87

Asbestos management is also identified as consideration for the need for removal of buildings no longer

fit for occupancy. Containment of operations within the existing site also makes it necessary for

decommissioned buildings and equipment to be demolished so that available space can be used for

new buildings and plant.

Complexity of staging and managing demolition operations are hindered by inability to take advantage

of timing and resource windows, with the example of the lost opportunity to gain efficiencies from an

existing demolition project due to time frames for the planning permit requirements.

Mobil also refers to the Authority’s decision guidelines and justifications (22-01-11) used to assess and

provide recent planning permits required under the heritage overlay, and considers that if the same

87 Letter from Murray Stanwix, Health and Environment Team Leader, Mobil Refining Australia, to Liza McColl,

Statutory Planner Hobsons Bay City Council 20 August 2015 (see Appendix B)


decision guidelines and justifications were applied to all future works on the remaining buildings or

plant regarded as having primary (heritage) significance, this work would also be permitted. The basis

for this is:

1) all works at the Refinery “support the viability of the historic industrial use carried out on the

site” or they would not proceed

2) where “there is an opportunity for redundant equipment to remain in-situ as historic evidence

or for interpretation”, it does, unless works (including demolition) on redundant equipment is

required to support the historic industrial use of the Refinery or there is a requirement to

remove it for occupational health and safety reasons.

3) interpretation in the form of this CMP (supplemented with photography) provides adequate

information about the historic use and development of the site

Mobil also explains that the completion of CMP, supplemented by the additional photography, meets

the recording requirements that have been included in recent planning permits and thus the proposed

planning scheme amendment does not result in the Refinery’s heritage record being diminished in

anyway.

6.4.2 Management

Mobil has current and future development programs which will impact on buildings and structures

within the refinery. These include, but are not limited to, the following:

Main Administration Building structural upgrade and refurbishment (completed late 2014)

Cooling Tower upgrade – (cooling tower No. 3 demolished and replaced 2014)

New boiler feed water tank installation (2015)

Pipeline surge mitigation projects and pipeline modifications

Various process unit capacity creep and debottleneck projects (2016-18)

Demolition of redundant buildings and plant to enable new facilities including:

– Old TCC

– Maintenance workshop

– Auditorium and canteen

New Crude truck receipt facilities

To keep pace with current technology, shifting market demands and to remain viable in the

manufacturing sector, other unspecified and presently unknown developments are also likely to be

required in the life of the refinery, which may include demolition and replacement of items identified as

having heritage value.

Current plans for future use of the buildings and structures listed as ‘primary significance’ are provided

in the following table.

Table 3: Management of primary significant buildings and structures

Elements of primary

significance

identified in CMP

Significance Planned use / justification

Administrative

building 1948

Represents original

phase – material


Currently used as a medical / nurse station, a gym room and as an office for the

Alliance contractor project team. Whilst the building is currently being

maintained, its condition is deteriorating and it will eventually reach a point

where it can no longer be maintained to an acceptable standard for occupancy.

The building contains asbestos that is not currently exposed or posing a hazard,

however if significant repairs are required it will require the building to be

rapidly de-occupied and major alterations and probably demolition to provide a


Elements of primary

significance

identified in CMP


structurally sound building.

Switch and

compressor house

1948

One of few original

control buildings

This building is currently used as a substation.

Storage tanks 1948 in

lube oil blending,

bitumen plant, rail

loading, near boiler

house and west of No.

2 cooling tower

Number of earliest

tanks in bitumen and

lubricant area

The tanks in the lube oil blending and bitumen plant are heavily corroded and

most are not fit for use. There is a shortage of storage tanks on site as well as a

shortage of space for new equipment and plant. These tanks vary in condition.

Some of the tanks are used to store caustic and acid, some are not in use and

require external and internal modifications if recommissioned, whilst others

would require demolition and replacement, in order to increase the tank storage

capacity onsite. During Turnarounds, when multiple units are shut for

maintenance, wash-water is generally stored in tankage pending testing to

determine if it can be reused / managed under the trade waste agreement on

site or requires offsite treatment and disposal. Managing the wash-water on-

site offers significant cost savings.

Tanks west of No. 2 cooling tower are currently in use.

Distillery and bitumen

plant 1948

Gantries, furnaces

and piping reflects

original main

production

This fabric is redundant, taking up valuable space on site that could be used for

new plant or equipment.

Lubricating oil

warehouse 1948

Reflects original main

production

No longer used as a lubricating oil warehouse or in original condition. Originally

clad in corrugated asbestos cement sheeting, it has recently been re-clad with

clear corrugated plastic skylights. It is now used as a stores area / workshop

and fire station. Workshop personnel will move into the main workshop on site

following its internal refurbishment.

Drum filling building

1948


production

Currently used as a construction workshop and store. This process is redundant

and there is no prospect of future adaptive reuse.

Thermofor Catalytic

Cracker 1953

Tallest structure in

site – revolutionised

petrol production in

Australia

Planning permit provided for demolition of the TCC. The demolition of the TCC,

as assessed by an industrial heritage expert, is not considered to diminish the

overall historical significance of the heritage place. While removal of the

structure is considered to have some visual impact at a landscape scale and will

result in loss of a major item of plant and evidence of a technology which was

unique in the oil refining industry in Australia, the expert recognised that the

refinery is an evolving industrial complex, and one where redundant plant is

regularly upgraded or replaced over time, in order to ensure the ongoing

viability of the operation.

No 3 Change rooms

1953

Reflects high level of

worker amenity

introduced under the

'American system'' of

industrial relations

This building has been de-manned and is locked to prevent entry. It is

redundant equipment that has been replaced with change rooms in the CCB and

adjacent to the CCB.

Amenities (canteen

and auditorium) 1953


worker amenity




Planning permit provided for its demolition in 2014 based on the fact that the

building is redundant, and there is no prospect of future adaptive reuse. All

office and ancillary functions are now accommodated elsewhere on the site and

the building is sited outside the refinery perimeter security fencing. In the

planning permit application, the

consultant accepted there is a level of significance and therefore an impact as

related to demolition, however considered the historical and social values and

associations of the place as a whole (HO202) would not be undermined in any

fundamental way by its demolition and commented this is the key consideration

from a heritage perspective.

The consultant also commented that the demolition of the building clearly

would not have any impact on the technical/technological significance of the

place.

Warehouse / Fire

Station 1950s

Storage building of

unusual provenance

(ex-hangar)

Currently in use as a warehouse and storage area. The building contains

asbestos that is not currently exposed or posing a hazard, however it will

eventually require safe removal of all hazardous material including structural

changes to the roof to provide a safe working environment.

No. 1 and No 2

Cooling Towers 1953-6

Specialist structures

with vast quantities

of timber employed

Integrity of the towers to be inspected in 2015 Turnaround (October) with view of

their demolition and replacement with smaller and more energy efficient cooling

towers constructed of fibre-reinforced plastic are proposed to replace the


Elements of primary

significance

identified in CMP


existing towers which will be demolished.

6.4.3 Community and Public Stakeholders

While there is a community interest in the refinery operation due to the proximity of residential areas to

the refinery in the Altona North area, and concerns for the potential risks associated with the refinery

operation, there are only limited public stakeholder interests in relation to the heritage of the site. The

National Trust, Engineering Heritage Victoria, Altona Historical Society and Chemical Engineers

association, may all have an interest in the future conservation of the site.

The refinery, as a highly prominent local landmark and distinctive visual feature, also attracts

considerable interest from photographers, artists and sightseers. For example, it has been the subject of

numerous paintings and other artwork.

Figure 73: Altona Refinery view from Kororoit Creek Road, Jessie Deane, 2013.88

6.4.4 Future operation of the refinery

It has been recognised in several documents (including the panel report to the C17 amendment and

correspondence with the Hobsons Bay Council) (see Appendix 1) that the continuing operation of the

refinery is critical to maintaining the cultural significance of the place. This is because of the limitations to

other uses of the site should it be decommissioned, and the potential costs and health and safety

requirements associated with the maintenance of redundant refinery infrastructure.

Social and cultural values are also demonstrated in the on-going provision of employment and relation

of the site to the local community. The conservation of the heritage values of the site are to some extent

dependent on the viability of its continuing operation.

88 Altona Refinery view from Kororoit Creek Road (297 x 210) Copyright © 2013 Jessie Deane



Therefore, to facilitate ongoing operation, maintenance and development of the refinery, an appropriate

record of significant fabric and of the historic use and development of the site in the form of a CMP and

photography is seen as an appropriate form of conservation management.

In the event that the refinery were to close, however, reconsideration of the heritage value of remaining

structures may provide opportunities for conservation of redundant items as part of interpretation of

the site in any future use. For example, non-industrial structures and buildings may have adaptive reuse

options, while even the industrial structures may potentially be recycled as public art, sculptural and

heritage conservation as has been done in sites such as the New York High Line 89 or the Duisburg

Nord Landschaftspark (landscape park) on the European Route of Industrial Heritage.90 Such reuse

would be consistent under the guidelines of the Burra Charter, the Nizhny Tagil Charter for the industrial

heritage and the Monterrey Charter for Industrial heritage conservation.

Figure 74: Example of industrial land reuse - Landschaftspark Duisburg-Nord.91

6.5 Conservation Policies

While the principal objectives of conservation policies are the maintenance and conservation of the

cultural heritage values, in the case of the Altona Refinery the C17 amendment planning panel has

determined that retention or conservation of the building fabric is not supported, and that the most

important aspect of the site's heritage significance, was in its continued operation as a petrol refinery.

The preceding section identifies the operational constraints which may impact on the ability to retain

and conserve buildings and plant in order to meet the objective of maintaining continuing operation of

the site as a petrol refinery. Therefore the following policies have been developed to form management

recommendations that strive to find a balance between facilitating the ongoing operation of the refinery

whilst conserving the heritage value of the Refinery.

89 http://www.thehighline.org/ 90 http://en.landschaftspark.de/startseite

91 http://home.fotocommunity.de/ubecker/index.php?id=1278272&d=28813980


6.5.1 Conservation Works

Normally, places identified as having heritage value would be conserved in a manner having regard for

the principles of the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance

(The Burra Charter) as amended. However, conservation of significant elements of the Altona Refinery

may be compromised by requirements for on-going operation, maintenance and reconstruction of plant

and buildings.

Conservation works are seen as appropriate where on-going operations facilitate retention of plant and

buildings. Where this is not possible, alternative mitigation in the form of photographic and archival

recording and documentation is to be provided.

The principles of the Burra Charter provide guidance on the conservation and adaptation of places and

elements of cultural heritage significance and form the basis of assessing the impacts of any proposed

works at the Altona Refinery. A copy of the charter is included as an Appendix to this report.

In formulating these policies, the following principles of the Burra Charter have been uppermost:

Article 5: Conservation of a place should take into consideration all aspects of its cultural significance

without unwarranted emphasis on any one at the expense of others.

Article 6: The conservation policy appropriate to a place must first be determined by an understanding of

its cultural significance and its physical condition.92

A major aspect of the cultural significance of the place, which has been identified in the C17 amendment

panel report as critical to the site, is its importance of maintaining on-going operation of the site.

6.5.2 Repairs & Maintenance

All future repairs and maintenance to the elements of primary significance should be carried out within the

principles established in the Burra Charter and in a manner consistent with the assessed significance of the

place and individual elements, and the conservation policy.

Management Action 1: Major maintenance or interventionist works to the primary significant

structures (for example the removal and /or replacement of plant, machinery and piping), which are

likely to remove substantial fabric, should also be subject to the photographic recording and archival

documentation condition above. Major maintenance or interventionist works should be defined as

the removal and/or replacement of a substantial portion of the item, or addition of substantial new

structure or fittings to an existing item. Any other day-to-day maintenance work can be carried out in

accordance with these conservation policies without reference to a conservation specialist.

6.5.3 Exteriors

Future works to the exteriors of the primary significant structures in the Altona refinery should have regard to

the identified significance of the buildings and plant, and where appropriate, should be carried out having

regard for the principles of the Australia ICOMOS Charter for the conservation of Places of Cultural Significance

(The Burra Charter) as amended.

Management Action 2: Unpainted concrete block and cream brick walls, and aluminium or silver or

white-painted pipework, storage tanks, vessels and other structures are the characteristic external

finishes of the refinery. Where alterations of demolition are proposed, impacts these features will be

managed through the photography recording as per other conditions.

92 See also Paragraphs 2.3 , 3.2.2 and 3.2.6 of the Guidelines to the Burra Charter: Conservation Policy

in J. S. Kerr. The Conservation Plan. pp. 32-33.


6.5.4 Interiors

No significant interiors were identified in respect of buildings at the Altona Refinery.

6.5.5 Setting & Curtilage

Management of the Altona Refinery in the future should have regard for the site being an important local

landmark and landscape element.

The extent of the refinery has been subject to changes over time. The curtilage under consideration in

this CMP comprises the area within the heritage overlay.

6.5.6 Views, Vistas and Visual relationships

Important views and vistas are key considerations in the conservation and management of heritage values.

There are several important views and vistas associated with the Altona Refinery including the views

from Millers road from the north and Kororoit Creek Road from the west. These views should be

considered with any future redevelopment.

Management Action 3: Where possible and practical, recognition and maintenance of viewing

locations on adjacent roads and public areas, and provision for safe stopping by vehicles and

pedestrians is encouraged. Visual impacts may also need to consider the need for screening the

refinery from some directions, such as nearby houses, or habitat areas to the south.

6.5.7 New Buildings & Works

Any new development and works in the Altona Refinery should have regard for the utilitarian character of the

existing buildings and structures, and the industrial character of the place, including the historical form of

development, the orientation of buildings, etc.

Health, safety and environment and process efficiency are key determinants in the design of new

buildings and structures.

Management Action 4: Where possible, however, in considering potential new buildings, additions

or works in the Altona Refinery, the bulk, scale and location of works should be considered in any

new design. Given current proposals for demolition of the canteen and auditorium, consideration for

future buildings which reflect the form, materials and design of these is encouraged.

6.5.8 Landscaping

The character of the landscaped areas of the Altona Refinery has historically been that of formal lawns and

decorative borders (for example around the Pegasus building) including planted specimen trees, formal edged

roads, paths, lawn areas, etc., along with utilitarian and functional buildings and structures and hardstand.

Management Action 5: Future landscaping should have regard for this character.

6.5.9 Archival recording and documentation

Before any demolition or new construction, which may impact buildings or structures of primary significance

occurs, an archival record should be made.

Management Action 6: Prior to the demolition or alteration of buildings or any associated part of

the buildings, plant and structures designated as "Primary Significance" on the site plan in Figure 72,

historic archival records must be submitted to the Responsible Authority prior to the works

occurring. The historic archival records must include the following:

a) Archival standard professional quality black and white, and a digital or video record of

buildings, structures, features or landscape elements, including significant details and/or


interiors. This record is to be accompanied by a plan specifying the location and aspect of all

photographs.

b) A report detailing the history, description and operation of the item and a concise

description and a report detailing the history, description and operation of the item (to the

extent that it can be identified).

c) Where available, copies of original design and construction drawings should be included in

the archival documents. Process diagrams showing the way that relevant plant and

machinery operated and its place in the overall production should also be included where

available.

d) Where multiple items of a similar type, such as steel storage tanks of the same capacity, are

to be demolished, photography and archival recording need only be undertaken for a typical

example of the type.

N.B. Items a. b) &c) have been partly achieved through the preparation of this Conservation

Management Plan, and apart from the potential for further original plans, documents or historic

photographs to be found, the CMP should be considered a sufficient standard to meet these

requirements.

While the CMP process has compiled available historical records, if additional original design and

construction drawings are identified in the future, these should also be included in the archival

documents. Process diagrams showing the way that relevant plant and machinery operated and its

place in the overall production should also be included where available.

Six copies of the completed package of archival photos and report must be lodged with the Responsible

Authority for inclusion in the Council’s local history collection and other suitable repositories. Copies

should be submitted to Council's Records Management System (2 copies), the Hobsons Bay Library, the

Public Records Office Victoria, State Library of Victoria and Altona Historical Society.

The documentation should be prepared to Heritage Victoria standards for recording for heritage places

and objects93 or other appropriate standards set by responsible authority.

N.B. Items 1. b) &c) have been partly achieved through the preparation of this Conservation

Management Plan, and apart from the potential for further original plans, documents or historic

photographs to be found, the CMP should be considered a sufficient standard to meet these

requirements.

6.5.10 Interpretation

An interpretation plan is recommended as part of the recording process where significant buildings or

structures are demolished or substantially altered.

Management Action 7: The interpretation plan is intended to communicate information recorded

for items that are demolished, and should take the form of publically accessible material such as

publications in the form of a booklet or brochure, display or exhibition material, describing the

history and operation of the refinery, and explaining the changes to the refinery over time. This

would also document the demolition of any buildings and plant. Material might be made available to

the public through the City of Hobson's Bay and local libraries.

93 'Photographic Recording for Heritage Places and objects', Technical Note prepared by Renée Gardiner for

Heritage Victoria, Department of Planning and Community Development.

http://www.dpcd.vic.gov.au/__data/assets/pdf_file/0011/133769/Photographic_Recording_Tech_Note.pdf


This CMP and existing archival recording of recently demolished buildings in part satisfies this

requirement. Additional photography proposed as part of managing demolition and alteration of

primary significant elements will fulfil this requirement.

6.5.11 Archaeological investigation

It is unlikely that significant archaeological remains would be present on the site.

6.5.12 Updating Heritage Listings

Heritage listings for the precinct need to reflect the nature and extent of significant features and buildings,

along with a suitable curtilage.

Existing Archival recording photography and the CMP adequately records the primary significant

buildings and structures and therefore listing is not required.

6.5.13 Implementation and Review of the Conservation Policy

Exxon Mobil or any other future managers of the site should be responsible for the implementation of the

Conservation Plan.

Exxon Mobil, as the managers of the site, should have overall responsibility for the implementation of

the conservation plan.


7 Bibliography

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C17, Submission to the Panel and Advisory Committee on the proposed inclusion of Mobil’s Yarraville

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Behalf of Mobil Refining Australia

Allom Lovell & Associates. Submission on the Proposed Inclusion of Six Storage Tanks and the

Packaging Store Building at Shell Australia Newport Terminal Newport in Amendment L14 to the

Hobsons Bay Planning Scheme. 1999.

Australian Stats: Special Article, ‘Clothing, Food and Petrol Rationing during World War 2’.

Austehc , Technology in Australia 1977-1988, 1988 Print Edition page 702, Online Edition 2000, Published

by Australian Science and Technology Heritage Centre,

http://www.austehc.unimelb.edu.au/tia/669_image.html

City of Footscray and Braybrook, Forging Ahead, Melbourne, 1947.

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Exxon Mobil University - Altona Refinery History. Document provided by Mobil.

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english/pa/about_what_rs_anniversary_60.aspx

Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study Stage One.

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Physical Development of the City of Hobsons Bay. Prepared for the Hobsons Bay City Council.

Melbourne. 1999.

Graeme Butler & Associates. Altona, Laverton & Newport Districts Heritage Study Stage Two.

Hobsons Bay Planning Scheme Amendment L14: Report of the Panel & Advisory Committee.

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Kerr, James Semple, The Conservation Plan: a guide to the preparation of conservation plans for places

of European cultural significance, 7th

Addition, Australia ICOMOS, 2013.

Lovell Chen, 2002, Hobsons Bay Planning Scheme Amendment C17, Submission to the Panel and

Advisory Committee on the Proposed Inclusion of Mobil’s Yarraville Terminal & Altona Refinery in the

Schedule to the Heritage Overlay. prepared for URS AUSTRALIA on behalf of MOBIL REFINING

AUSTRALIA

Marioli, F. (1993). Mow Mobile is Mobil: A case study of the modernization of Mobil's Altona refinery,

Mobil's threat of relocation and its effect on the State Government's decision making process.

Melbourne: University of Melbourne.


Marquis-Kyle, P., & Walker, M. (1992). The Illustrated Burra Charter: Making Good Decisions about the

Care of Important Places. Brisbane: Australia ICOMOS.

Melbourne Harbour Trust Commissioners Jubilee Report, 1877-1927. The Commissioners,

Melbourne, 1927.

Mobil Oil Australia Limited / Kinhill Engineers Pty Ltd. Altona Refinery Modernization Programme:

Environmental Management Plan.

Mobil. Archival material relating to both sites, including architectural and plant drawings and

photographs. - access assisted by Exxon Mobil archivists Debbie Dodd and Sonazi Sallay.

Pearson, M., & Sullivan, S. (1995). Looking after Heritage Places: the Basics of Heritage Planning for

Managers, Landowners and Administrators. Carlton: Melbourne University Press.

Pratt, Ambrose (ed.). National Handbook of Australia’s Industries. Specialty Press, Melbourne, 1934.

Priestley, Susan. Altona: A Long View. Hargreen. Melbourne. 1988.

Priestley, Susan. Making Their Mark. Fairfaix, Syme and Weldon. Sydney. 1984.

Sands and McDougall Melbourne Directories (various years)

Shell Company of Australia. Eighty Years at Newport, 1916-1996. Melbourne. 1996.

Standard-Vacuum Refining Company (Australia). Altona Story. [Melbourne, c. 1955?].

Standard-Vacuum Refining Company (Australia, Refinery Operations Manual, Chapter III, Process

Operations at the Altona Refinery of Standard-Vacuum Refining Company Limited. n.d. [c. 1955?].

Strahan, Lynne. At the Edge of the Centre: A History of Williamstown. North Melbourne. 1994.

Vacuum Oil Co Pty Ltd, A Refinery is Built, Vacuum Oil 1950.

Vines, Gary (Melbourne’s Living Museum of the West) with Ward, Andrew (Andrew Ward and

Associates). Western Region Industrial Heritage Study. Prepared for the Ministry for Planning and

Environment. Melbourne. 1989.

Vines, Gary. Assessment of Early Oil Company Installations, Newport and Spotswood. Melbourne's

Living Museum of the West Inc. October 1999.

Wilkinson, Rick. A Thirst for Burning: The Story of Australia’s Oil Industry. David Ell Press. Sydney.

Year Book Australia. 1945. www.pandora.nla.gov.au.

http://www.pandora.nla.gov.au/


Appendices

Appendix A Hobsons Bay Council Letter from Council 15.07.14 Alternative

mechanisms to permits


Page 1 of 11

Appendix B Draft Letter from Council 10 August 2014 Planning scheme

Amendment

Mobil Refining Australia Pty Ltd

ABN 48 004 300 163 Altona Refinery Cnr Millers & Kororoit Creek Roads Altona, Victoria 3018 PO Box 40 Altona, Victoria 3018 61 3 9286 5666 Telephone

20 August, 2015

Attention: Liza McColl – Statutory Planner; Ben Hynes – Statutory Planning Coordinator Hobsons Bay City Council PO Box 21 Altona 3018

Dear Liza and Ben,

Altona Refinery – Planning Scheme Amendment to remove permit trigger for heritage overlay

This letter, requested by Council at a meeting held on 24 June 2015, is provided to support the ‘Conservation Management Plan’ (CMP) and ‘Incorporated Plan’ drafted by Industrial Heritage Consultant Gary Vines, and recently submitted with C107 planning scheme amendment application by Tract Consulting (21 May 2015).

As discussed, Mobil’s position is that removing the Heritage Overlay via the Planning Scheme Amendment will provide significant benefits to both Altona Refinery and Hobsons Bay Council, by removing the time, resources, energy and costs in managing individual planning applications for the site on an ad-hoc basis. The planning controls detailed under Special Use Zone 2 will be unaffected by the proposed amendment.

The Planning Scheme Amendment to remove the heritage overlay reflects that Altona Refinery is an important and dynamic local business that should be afforded the operational flexibility possessed by other businesses in Victoria. The refinery’s opportunities to grow and change to support our ongoing operation and local employment, should not be constrained by our long and proud history in Altona.

Purpose of CMP and Planning Scheme Amendment

The CMP provides a detailed historic record of the Refinery and identifies its ‘significant fabric’, including buildings and structures of ‘primary significance’. Compilation of a historic record provides a balance between achieving the conservation objectives by appropriately recording the site’s history while recognising that the facility’s economic viability and compliance with occupational health and safety requirements is contingent on the Refinery being able to regularly maintain and upgrade plant and equipment. The historic record provides information that would otherwise be provided to meet planning permit requirements and is thus proposed to take the place of the information otherwise provided to meet permit requirements with view of completely removing the heritage overlay (HO202).

Background

The Refinery is recognised for its significant contribution to the economy since its first production in 1949 until today. It remains one of the States most important industrial facilities, supplying around half of Victoria’s fuel needs, providing hundreds of jobs on site and indirectly supporting thousands of additional jobs in the community, while contributing millions of dollars in taxes and rates to the government each year. In order to ensure the ongoing viability of the facility and to maintain a safe working environment, as required under the Occupational Health and Safety Act 2004, the Refinery must continue to regularly upgrade, maintain and replace redundant plant and buildings.

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The Refinery is a complex industrial site, where at times decisions need to be made quickly in response to external market factors as well as internal funding opportunities and health and safety requirements. The planning permit process is overly restrictive, provides uncertainty in the project approvals process and reduces the Refinery’s ability to respond in the necessary timeframes to capitalise on funding opportunities.

Each year, the Refinery presents its business plan to its shareholder that reviews and funds Refinery and Supply projects in the Asia Pacific region and applies for Capital Expenditure (CAPEX) and Operational Expenditure (OPEX) funding to achieve its business plan objectives. Mobil’s shareholder (ExxonMobil Global Directors) prioritises funding in the region and allocates funds to the ExxonMobil refineries operating in the Asia Pacific region based on a range of considerations, such as the likely return on investment and regulatory compliance drivers. This funding process is incredibly competitive and requires the Altona Refinery to continually scrutinise spending and budgets. In addition, funding decisions take into account timing and the ability of refineries to execute CAPEX and OPEX plans. As is the case with many businesses, a delay in meeting these plans does not automatically imply that funds are transferred to outer years. To that end, an ability to develop plans and then execute within an appropriate time frame is what helps Altona Refinery maintain a competitive edge in a challenging business environment. One of the ways that Altona Refinery can sustain this advantage is to operate in an environment where regulatory controls are clear, unambiguous and easy to navigate. Another way to consider this is Altona Refinery seeks to operate in an environment where regulations don’t place an undue burden on the site when compared to its competitors.

The difficulties faced by the manufacturing sites, and particularly refineries, in Australia are well documented. The Altona Refinery is one of the smallest refineries operating in the Asia Pacific region and it must compete for funding with much larger sites which benefit from an economy of scale, lower salaries and lower currency. Altona must offset these disadvantages by innovating and continually upgrading and adopting new technology to meet market demands. Maintaining redundant plant and buildings that are no longer fit for occupancy or purpose is an additional pressure and obstacle for Mobil to overcome to remain competitive. Asbestos is present in many of the older ‘primary significant’ buildings and structures on site. These buildings and structures are being maintained and the asbestos is being managed to ensure there is no risk of exposure, however they will deteriorate to a point where they can no longer be maintained and are no longer fit for occupancy or to remain on site, requiring eventual removal.

To contain operations within the perimeter of the site, and to avoid expansion beyond the current site boundaries, it is also necessary for decommissioned buildings and equipment to be demolished so that available space can be used for new buildings and plant.

Case Study 1

In 2014 the Refinery had an opportunity in late November to demolish the redundant Solutizer, Canteen and Auditorium with some surplus funds. A demolition contractor was on-site completing works on another demolition project, so there were additional efficiencies associated with using this same contractor for the additional demolition. The demolition of the Solutizer did not proceed because the required planning permit, even if provided within the statutory timeframe, added time (and uncertainty as to the timing) to the schedule that did not allow for the works to be completed within the refinery’s budget year. A permit was received to demolish the Canteen and Auditorium, however due to the time taken to prepare an application and receive a permit, the work could not be completed within the necessary timeframe to secure funding. The budget and these opportunities were thus lost. The work has been postponed until funding can be secured (cost estimate to demolish canteen and auditorium is $400,000 with no return on investment; demolition of the Solutizer has not yet been costed).

Refinery Project Approval Process

Projects are nominated based on an assessment of opportunities consistent with business strategies, plans and objectives. Projects require approval at multiple stages as they are developed from 1) project nomination, 2) option evaluation; 3) option selection and development; 4) detailed design/construct to, 5) operate. Funding is approved by different ExxonMobil locations and levels of authority depending on the level of funding required.

To be approved, each project must have a sound business case or is required by law (regulatory or safety requirement). For this reason, projects are generally fast-tracked to capitalise on the business opportunity and minimise the time taken for a return on investment or in order to meet regulatory / safety requirements as soon as reasonably practical.

Preparation of a basic planning permit application and completion of conditions (recording) can cost

Page 3 of 11

$10,000 – $15,000 and take 2 - 3 months to complete or for a more complex project such as the TCC, the total permit costs are up to $90,000 and take much longer to complete.

Information required to support planning permit applications is generally not available until late in the project approval process (detailed design/construct). At this stage there has been a significant investment in the project, yet the Project Manager must submit the planning permit application without any assurance that the permit will be granted, and if granted what conditions must be met. Often the permit conditions must be met prior to project construction which without knowing the conditions is impossible to accurately schedule.

Resources required for the construction stage (including scheduling people, materials and equipment) cannot be secured until the approvals process is certain. At stage 4 (detailed design), any prior delays in the project schedule cannot be recovered and therefore any delays in the permitting process can impact on the final project deadline. There are some projects that have no flexibility in their schedule and delay could result in cancellation of a project or significant financial penalties.

Case Study 2

Delays to the Condensate Truck Facilities Unloading project, designed to enable the Refinery to receive condensate from land-locked gas fields in Victoria, would have resulted in significant financial penalties because of the contract structure which provided Origin with unilateral ability to trigger Phase II construction and commissioning. This was necessary to secure the contract with Origin whom required certainty that a) the condensate could be received when drilling commenced and; b) for Origin’s gas drilling schedule. The Truck Condensate Unloading Facility is thankfully not within the area covered by the heritage overlay and as such a planning permit was not required for heritage reasons, nevertheless it is a recent example of a project that if delayed by the planning permit process, would result in severe financial penalties and a significant impact on the Refinery.

Consistency with Council’s Industrial Heritage Places Policy – 22.01-11

Mobil recognises the Refinery’s heritage significance and has made a significant contribution in both time and money to preserve this heritage value through the CMP and other recording work (an estimated $100,000 over a 12 month period thus far).

Council provided planning permits for demolition of primary significant buildings/structures at the Refinery in 2014. The recording requirements in the planning permits are mirrored in the Incorporated Plan and thus the proposed planning scheme amendment does not result in the Refinery’s heritage record being diminished in anyway. The structures of primary significance and the Refinery in general have never been open for general public access. While operational and if closed, during decommissioning and remediation works, the Refinery will not be publically accessible for health and safety reasons, therefore recording the heritage value in the form of a CMP is a better tool to increase awareness about the importance of industrial heritage in the municipality. Further, Mobil believes that providing the recording work as one complete package rather than piece-meal as permits are provided over time, will ensure a higher quality and more complete recording package is more readily accessible and available to interested parties.

The decision guidelines for permits required by the Heritage Overlay specify considerations for the Responsible Authority to consider, as appropriate before deciding on a planning permit application.

Justification for the recent permits provided with regards to these decision guidelines is provided in Table 1. This justification applies to all proposed works or demolition on site and demonstrates that the CMP, in place of a permit, would satisfy the Council’s policy requirements.

Page 4 of 11

Table 1: Justification for provision of planning permit required by the Heritage overlay

Decision guideline (22-01-11) Justification that the CMP meets permit requirements

Whether the proposed buildings, works or demolition will support the viability of the historic industrial use carried out on the site.

1) The permitted works and all proposed buildings, works or demolition undertaken onsite ‘support the viability of the historic industrial use carried out on the site’ or they would not receive funding.

Whether there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation.

2) Where there is an opportunity for redundant equipment to remain in-situ, it does, unless the works will support the historic industrial use carried out on the site as per 1). This is simply because it would not get funding unless its removal ‘would support the viability of the historical industrial use carried out on the site’ or is a requirement for occupational health and safety reasons.

Whether the proposed interpretation will provide adequate information about the historic use and development of the site.

3) Gary Vines, Industrial Heritage Consultant, considers the CMP meets the conditions recommended in the Incorporated Plan with the exception of the photographs (“archive standard professional quality black and white, and/or a digital or video record of buildings, structures, features or landscape elements, including significant details and/or interiors. This record is to be accompanied by a plan specifying the location and aspect of all photographs”).

Mobil has agreed to commission the photography.

Case Study 3

Recently Mobil has received planning permits to demolish the TCC and the Canteen and Auditorium, both listed as ‘primary significant’ structures/buildings. The conditions included in the planning permits relating to recording the heritage significance are copied into the table below with the conditions included in the incorporated plan to demonstrate that the CMP and associated recording work does not in any way diminish the heritage controls currently being placed on the Refinery’s significant buildings/structures via the permitting process.

Incorporated Plan conditions 1. b), c) & d) have been achieved through the preparation of the Conservation Management Plan commissioned by Mobil Australia, prepared by Gary Vines of Biosis Pty Ltd in 2015, and apart from the potential for further original plans, documents or historic photographs to be found, the CMP should be considered a sufficient standard to meet these requirements. Mobil has agreed to commission the photography as required under condition 1a) to facilitate complete removal of the heritage overlay.

Elements of primary

significance

identified in CMP


Administrative

building 1948

Represents original

phase – material


Currently used as a medical / nurse station, a gym room and as an office for

the Alliance contractor project team. Whilst the building is currently being

maintained, its condition is deteriorating and it will eventually reach a point

where it can no longer be maintained to an acceptable standard for

occupancy. The building contains asbestos that is not currently exposed or

posing a hazard, however if significant repairs are required it will require the

building to be rapidly de-occupied and major alterations and probably

demolition to provide a structurally sound building.

Switch and

compressor house

1948

One of few original

control buildings

This building is currently used as a substation.

Storage tanks 1948 in

lube oil blending,

bitumen plant, rail

Number of earliest

tanks in bitumen and

lubricant area

The tanks in the lube oil blending and bitumen plant are heavily corroded and

most are not fit for use. There is a shortage of storage tanks on site as well as

a shortage of space for new equipment and plant. These tanks vary in

Page 5 of 11

Elements of primary

significance

identified in CMP


loading, near boiler

house and west of No.

2 cooling tower

condition. Some of the tanks are used to store caustic and acid, some are not

in use and require external and internal modifications if recommissioned,

whilst others would require demolition and replacement, in order to increase

the tank storage capacity onsite. During Turnarounds, when multiple units are

shut for maintenance, wash-water is generally stored in tankage pending

testing to determine if it can be reused / managed under the trade waste

agreement on site or requires offsite treatment and disposal. Managing the

wash-water onsite offers significant cost savings.

Tanks west of No. 2 cooling tower are currently in use.

Distillery and bitumen

plant 1948

Gantries, furnaces

and piping reflects

original main

production

This fabric is redundant, taking up valuable space on site that could be used

for new plant or equipment.

Lubricating oil

warehouse 1948


production

No longer used as a lubricating oil warehouse or in original condition.

Originally clad in corrugated asbestos cement sheeting, it has recently been re-

clad with clear corrugated plastic skylights. It is now used as a stores area /

workshop and fire station. Workshop personnel will move into the main

workshop on site following its internal refurbishment.

Drum filling building

1948


production

Currently used as a construction workshop and store. This process is

redundant and there is no prospect of future adaptive reuse.

Thermofor Catalytic

Cracker 1953

Tallest structure in

site – revolutionised

petrol production in

Australia

Planning permit provided for demolition of the TCC. The demolition of the

TCC, as assessed by an industrial heritage expert, is not considered to

diminish the overall historical significance of the heritage place. While

removal of the structure is considered to have some visual impact at a

landscape scale and will result in loss of a major item of plant and evidence of

a technology which was unique in the oil refining industry in Australia, the

expert recognised that the refinery is an evolving industrial complex, and one

where redundant plant is regularly upgraded or replaced over time, in order to

ensure the ongoing viability of the operation.

No 3 Change rooms

1953


worker amenity




This building has been de-manned and is locked to prevent entry. It is

redundant equipment that has been replaced with change rooms in the CCB

and adjacent to the CCB.

Amenities (canteen

and auditorium) 1953


worker amenity




Planning permit provided for its demolition in 2014 based on the fact that the

building is redundant, and there is no prospect of future adaptive reuse. All

office and ancillary functions are now accommodated elsewhere on the site

and the building is sited outside the refinery perimeter security fencing. In the

planning permit application, the

consultant accepted there is a level of significance and therefore an impact as

related to demolition, however considered the historical and social values and

associations of the place as a whole (HO202) would not be undermined in any

fundamental way by its demolition and commented this is the key

consideration from a heritage perspective.

The consultant also commented that the demolition of the building clearly

would not have any impact on the technical/technological significance of the

place.

Warehouse / Fire

Station 1950s

Storage building of

unusual provenance

(ex-hangar)

Currently in use as a warehouse and storage area. The building contains

asbestos that is not currently exposed or posing a hazard, however it will

eventually require safe removal of all hazardous material including structural

changes to the roof to provide a safe working environment.

No. 1 and No 2

Cooling Towers 1953-6

Specialist structures

with vast quantities

of timber employed

Integrity of the towers to be inspected in 2015 Turnaround (October) with view

of their demolition and replacement with smaller and more energy efficient

cooling towers constructed of fibre-reinforced plastic are proposed to replace

the existing towers which will be demolished.

Page 6 of 11

Table 2: Conditions included in recent planning permits for ‘primary significant’ buildings/ structures and conditions included in the Incorporated Plan.

Thermofor Catalytic Cracker (TCC) PA 1430364 Canteen and Auditorium PA1430387 Biosis ‘Incorporated Plan’ Conditions (prepared by Gary Vines March 2015)

Condition 2: Prior to the commencement of any works associated with the demolition of the facility hereby approved, the owner must prepare an archive standard professional quality black and white photographic record of the Thermofor Catalytic Cracker tower, to the Satisfaction of the Responsible Authority.

An electronic copy of these photos must be submitted to and approved by Council.

This record is to be accompanied by a plan specifying the location and aspect of all photographs and by a data sheet for each element detailing its history (to the extent that it can be identified) and a concise description.

Condition 2: Prior to the commencement of any works associated with the demolition of the building hereby approved, the owner must document the canteen/auditorium building.

Black and white, and colour photos must be provided prepared (sic) by a professional photographer, who specialises in the documentation of buildings.

An electronic copy of these photos must be submitted to and approved by Council.

This record is to be accompanied by a plan specifying the location and aspect of all photographs, and by a data sheet for each element detailing its history (to the extent that it can be identified) and a concise description.

Prior to the demolition or alteration of buildings or any associated part of the buildings, plant and structures designated as "Primary Significance" on the site plan attached, historic archival records must be submitted to the Responsible Authority prior to the works occurring. The historic archival records must include the following:

a) Archival standard professional quality black and white, and/or a digital or video record of buildings, structures, features or landscape elements, including significant details and/or interiors.

This record is to be accompanied by a plan specifying the location and aspect of all photographs.

Page 7 of 11


Condition 3: Within 12 months of the commencement of any demolition of the facility hereby approved, the owner must prepare an interpretation / recording package of the Thermofor Catalytic Cracker tower, to the satisfaction of the Responsible Authority.

The record should also provide a record of the visual and cultural prominence, and social significance of the TCC in the context of Altona and surrounding area.

An attempt should be made to include interview material from the works who were involved in the construction of the TCC tower.

This package must be prepared in accordance with the standards required by Heritage Victoria.

It must include an archive standard professional quality black and white photographic record of the facility submitted to the Responsible Authority in accordance with Condition 2.

Six copies of the completed package and report must be lodged with the Responsible Authority for inclusion in the Council’s local history collection and other suitable repositories (i.e. State Library of Victoria/Public Records Office).

Condition 3: Within 6 months of the date of issue of this permit, the owner must prepare an interpretation / recording package of the canteen/auditorium building, to the satisfaction of the Responsible Authority.

This package must be prepared in accordance with the standards required by Heritage Victoria.

It must include an archive standard professional quality black and white and colour photographic record of the building.

Six copies of the completed package and report must be lodged with the Responsible Authority for inclusion in the Councils local history collection and other suitable repositories (i.e. State Library of Victoria/Public Records Office).

b) A report detailing the history, description and operation of the item (to the extent that it can be identified).

c) Where available, copies of original design and construction drawings should be included in the archival documents. Process diagrams showing the way that relevant plant and machinery operated and its place in the overall production should also be included where available.

d) Where multiple items of a similar type, such as steel storage tanks of the same capacity, are to be demolished, photography and archival recording need only be undertaken for a typical example of the type.

Six copies of the completed package of archival photos and report must be lodged with the Responsible Authority for inclusion in the Council’s local history collection and other suitable repositories (i.e. State Library of Victoria/Public Records Office) at the council's discretion.

Page 8 of 11


Condition 4: Within 6 months of the data of issue of this permit (or other timeframe agreed to by the Responsible Authority upon receipt of a written request from the owner), the owner must prepare a comprehensive site history which includes the following information:

A well documented history of the site; A well documented history of the functions of each

section of the site; A history of all the existing towers and buildings

with reference to their construction dates and recommendations/options from a heritage viewpoint;

Methodologies available for the recording of the structures and the site

A collation of historic plans Relevant operating procedures Oral history interviews with workers and the like Any other information which will assist with this

assessment

The site history must be prepared by a heritage consultant with an industrial heritage background. The report may take the form of a Conservation Management plan which will assist with the future development of the refinery site and facilitate any future planning permit applications and expediting any future works.

Six copies of the site history must be lodged with the Responsible Authority.

Condition 4: Within 6 months of the data of issue of this permit (or other timeframe agreed to by the Responsible Authority upon receipt of a written request from the owner), the owner must prepare a comprehensive site history which includes the following information:

A well documented history of the site; A well documented history of the functions of each

section of the site; A history of all the existing towers and buildings

with reference to their construction dates and recommendations/options from a heritage viewpoint;

Methodologies available for the recording of the structures and the site

A collation of historic plans Relevant operating procedures Oral history interviews with workers and the like Any other information which will assist with this

assessment

The site history must be prepared by a heritage consultant with an industrial heritage background. The report may take the form of a Conservation Management plan which will assist with the future development of the refinery site and facilitate any future planning permit applications and expediting any future works.

Six copies of the site history must be lodged with the Responsible Authority.

CMP and the actions above provide for this.

Page 9 of 11

Current and future plans that may Impact on heritage values

Current plans for future use of the buildings and structures listed as 'primary significance' are provided in Attachment A. Funding is only approved for projects that have a sound business case, or if It is required for regulatory or occupational health and safety reasons (i.e. projects only get approval If they support the continued viability of the historic use of the site.)

With so many external factors at play, it is difficult to forecast projects into the medium and long-term, however Mobil's Indicative plans are to invest over $60 million in current and planned projects in 2014- 15, and more than $30 million from 2016-18. Planned projects include "de-bottlenecking" projects seeking to increase the sites processing and throughput capacity, reliability projects to reduce vulnerability to power dips, and demolition projects to address safety risks to personnel, reduce maintenance costs of redundant facilities and make space available for new equipment and plant.

Conclusion

As previously mentioned, removing the Heritage Overlay via the Planning Scheme Amendment will provide significant benefits to both the refinery and Hobsons Bay Council, by removing the time, resources, energy and cost in managing individual planning applications for the site on an ad-hoc basis. In accordance with the Councils industrial heritage policy, the CMP and associated information is provided as a package to provide for the:

The continued viability of the historic use of the site;

The balance between achievement of conservation objectives and economic viability, and occupational health and safety;

The conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment;

The retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it;

Keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority.

The CMP and Incorporated Plan have been completed in good faith, as agreed with Council at meeting of 7 July 2014 (see attachment B for meeting minutes, as accepted by Council), however Mobil accepts Council's recent advice that an incorporated document is not the appropriate mechanism to have in place if the Heritage overlay is to be removed entirely. On this basis and as agreed with Council, the current documentation prepared by Gary Vines (Industrial Heritage Consultant) will be re-packaged as a heritage report and submitted with the planning scheme amendment application for removal of the heritage overlay. Mobil trusts this provides sufficient justification to entirely remove the heritage overlay (H0202) in accordance with the planning scheme amendment.

Regards,

Murray Stanwix

Health and Environment Team Lead

Mobil Refining Australia

Page 10 of 11

Appendix C: Burra Charter

The Australia ICOMOS Charter for Places of Cultural Significance

Australia ICOMOS Incorporated International Council on Monuments and Sites

2013

ICOMOS

ICOMOS (International Council on Monuments and Sites) is a non-governmental professional organisation formed in 1965, with headquarters in Paris. ICOMOS is primarily concerned with the philosophy, terminology, methodology and techniques of cultural heritage conservation. It is closely linked to UNESCO, particularly in its role under the World Heritage Convention 1972 as UNESCO’s principal adviser on cultural matters related to World Heritage. The 11,000 members of ICOMOS include architects, town planners, demographers, archaeologists, geographers, historians, conservators, anthropologists, scientists, engineers and heritage administrators. Members in the 103 countries belonging to ICOMOS are formed into National Committees and participate in a range of conservation projects, research work, intercultural exchanges and cooperative activities. ICOMOS also has 27 International Scientific Committees that focus on particular aspects of the conservation field. ICOMOS members meet triennially in a General Assembly.

Australia ICOMOS

The Australian National Committee of ICOMOS (Australia ICOMOS) was formed in 1976. It elects an Executive Committee of 15 members, which is responsible for carrying out national programs and participating in decisions of ICOMOS as an international organisation. It provides expert advice as required by ICOMOS, especially in its relationship with the World Heritage Committee. Australia ICOMOS acts as a national and international link between public authorities, institutions and individuals involved in the study and conservation of all places of cultural significance. Australia ICOMOS members participate in a range of conservation activities including site visits, training, conferences and meetings.

Revision of the Burra Charter

The Burra Charter was first adopted in 1979 at the historic South Australian mining town of Burra. Minor revisions were made in 1981 and 1988, with more substantial changes in 1999.

Following a review this version was adopted by Australia ICOMOS in October 2013.

The review process included replacement of the 1988 Guidelines to the Burra Charter with Practice Notes which are available at: australia.icomos.org

Australia ICOMOS documents are periodically reviewed and we welcome any comments.

Citing the Burra Charter

The full reference is The Burra Charter: The Australia ICOMOS Charter for Places of Cultural Significance, 2013. Initial textual references should be in the form of the Australia ICOMOS Burra Charter, 2013 and later references in the short form (Burra Charter).

© Australia ICOMOS Incorporated 2013

The Burra Charter consists of the Preamble, Articles, Explanatory Notes and the flow chart.

This publication may be reproduced, but only in its entirety including the front cover and this page. Formatting must remain unaltered. Parts of the Burra Charter may be quoted with appropriate citing and acknowledgement.

Cover photograph by Ian Stapleton.

Australia ICOMOS Incorporated [ARBN 155 731 025]

Secretariat: c/o Faculty of Arts Deakin University Burwood, VIC 3125 Australia

http://australia.icomos.org/

ISBN 0 9578528 4 3

The Burra Charter, 2013 Australia ICOMOS Incorporated — 1

The Burra Charter (The Australia ICOMOS Charter for Places of Cultural Significance, 2013)

Preamble Considering the International Charter for the Conservation and Restoration of Monuments and Sites (Venice 1964), and the Resolutions of the 5th General Assembly of the International Council on Monuments and Sites (ICOMOS) (Moscow 1978), the Burra Charter was adopted by Australia ICOMOS (the Australian National Committee of ICOMOS) on 19 August 1979 at Burra, South Australia. Revisions were adopted on 23 February 1981, 23 April 1988, 26 November 1999 and 31 October 2013.

The Burra Charter provides guidance for the conservation and management of places of cultural significance (cultural heritage places), and is based on the knowledge and experience of Australia ICOMOS members.

Conservation is an integral part of the management of places of cultural significance and is an ongoing responsibility.

Who is the Charter for?

The Charter sets a standard of practice for those who provide advice, make decisions about, or undertake works to places of cultural significance, including owners, managers and custodians.

Using the Charter

The Charter should be read as a whole. Many articles are interdependent.

The Charter consists of:

• Definitions Article 1 • Conservation Principles Articles 2–13 • Conservation Processes Articles 14–25 • Conservation Practices Articles 26–34 • The Burra Charter Process flow chart.

The key concepts are included in the Conservation Principles section and these are further developed in the Conservation Processes and Conservation Practice sections. The flow chart explains the Burra Charter Process (Article 6) and is an integral part of

the Charter. Explanatory Notes also form part of the Charter.

The Charter is self-contained, but aspects of its use and application are further explained, in a series of Australia ICOMOS Practice Notes, in The Illustrated Burra Charter, and in other guiding documents available from the Australia ICOMOS web site: australia.icomos.org.

What places does the Charter apply to?

The Charter can be applied to all types of places of cultural significance including natural, Indigenous and historic places with cultural values.

The standards of other organisations may also be relevant. These include the Australian Natural Heritage Charter, Ask First: a guide to respecting Indigenous heritage places and values and Significance 2.0: a guide to assessing the significance of collections.

National and international charters and other doctrine may be relevant. See australia.icomos.org.

Why conserve?

Places of cultural significance enrich people’s lives, often providing a deep and inspirational sense of connection to community and landscape, to the past and to lived experiences. They are historical records, that are important expressions of Australian identity and experience. Places of cultural significance reflect the diversity of our communities, telling us about who we are and the past that has formed us and the Australian landscape. They are irreplaceable and precious.

These places of cultural significance must be conserved for present and future generations in accordance with the principle of inter-generational equity.

The Burra Charter advocates a cautious approach to change: do as much as necessary to care for the place and to make it useable, but otherwise change it as little as possible so that its cultural significance is retained.

2 — Australia ICOMOS Incorporated The Burra Charter, 2013

Articles Explanatory Notes

Article 1. Definitions

For the purposes of this Charter:

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

Place has a broad scope and includes natural and cultural features. Place can be large or small: for example, a memorial, a tree, an individual building or group of buildings, the location of an historical event, an urban area or town, a cultural landscape, a garden, an industrial plant, a shipwreck, a site with in situ remains, a stone arrangement, a road or travel route, a community meeting place, a site with spiritual or religious connections.

1.2 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.

The term cultural significance is synonymous with cultural heritage significance and cultural heritage value.

Cultural significance may change over time and with use.

Understanding of cultural significance may change as a result of new information.

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

Fabric includes building interiors and sub-‐‑surface remains, as well as excavated material.

Natural elements of a place may also constitute fabric. For example the rocks that signify a Dreaming place.

Fabric may define spaces and views and these may be part of the significance of the place.

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

See also Article 14.

1.5 Maintenance means the continuous protective care of a place, and its setting.

Maintenance is to be distinguished from repair which involves restoration or reconstruction.

Examples of protective care include: • maintenance — regular inspection and cleaning of a place, e.g. mowing and pruning in a garden;

• repair involving restoration — returning dislodged or relocated fabric to its original location e.g. loose roof gutters on a building or displaced rocks in a stone bora ring;

• repair involving reconstruction — replacing decayed fabric with new fabric

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

It is recognised that all places and their elements change over time at varying rates.

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

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

New material may include recycled material salvaged from other places. This should not be to the detriment of any place of cultural significance.

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

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

Use includes for example cultural practices commonly associated with Indigenous peoples such as ceremonies, hunting and fishing, and fulfillment of traditional obligations. Exercising a right of access may be a use.



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

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

Setting may include: structures, spaces, land, water and sky; the visual setting including views to and from the place, and along a cultural route; and other sensory aspects of the setting such as smells and sounds. Setting may also include historical and contemporary relationships, such as use and activities, social and spiritual practices, and relationships with other places, both tangible and intangible.

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

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

Objects at a place are encompassed by the definition of place, and may or may not contribute to its cultural significance.

1.15 Associations mean the connections that exist between people and a place.

Associations may include social or spiritual values and cultural responsibilities for a place.

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

Meanings generally relate to intangible dimensions such as symbolic qualities and memories.

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

Interpretation may be a combination of the treatment of the fabric (e.g. maintenance, restoration, reconstruction); the use of and activities at the place; and the use of introduced explanatory material.

Conservation Principles

Article 2. Conservation and management

2.1 Places of cultural significance should be conserved.

2.2 The aim of conservation is to retain the cultural significance of a place.

2.3 Conservation is an integral part of good management of places of cultural significance.

2.4 Places of cultural significance should be safeguarded and not put at risk or left in a vulnerable state.

Article 3. Cautious approach

3.1 Conservation is based on a respect for the existing fabric, use, associations and meanings. It requires a cautious approach of changing as much as necessary but as little as possible.

The traces of additions, alterations and earlier treatments to the fabric of a place are evidence of its history and uses which may be part of its significance. Conservation action should assist and not impede their understanding.

3.2 Changes to a place should not distort the physical or other evidence it provides, nor be based on conjecture.

Article 4. Knowledge, skills and techniques

4.1 Conservation should make use of all the knowledge, skills and disciplines which can contribute to the study and care of the place.



4.2 Traditional techniques and materials are preferred for the conservation of significant fabric. In some circumstances modern techniques and materials which offer substantial conservation benefits may be appropriate.

The use of modern materials and techniques must be supported by firm scientific evidence or by a body of experience.

Article 5. Values

5.1 Conservation of a place should identify and take into consideration all aspects of cultural and natural significance without unwarranted emphasis on any one value at the expense of others.

Conservation of places with natural significance is explained in the Australian Natural Heritage Charter. This Charter defines natural significance to mean the importance of ecosystems, biodiversity and geodiversity for their existence value or for present or future generations, in terms of their scientific, social, aesthetic and life-‐‑support value.

In some cultures, natural and cultural values are indivisible.

5.2 Relative degrees of cultural significance may lead to different conservation actions at a place.

A cautious approach is needed, as understanding of cultural significance may change. This article should not be used to justify actions which do not retain cultural significance.

Article 6. Burra Charter Process

6.1 The cultural significance of a place and other issues affecting its future are best understood by a sequence of collecting and analysing information before making decisions. Understanding cultural significance comes first, then development of policy and finally management of the place in accordance with the policy. This is the Burra Charter Process.

6.2 Policy for managing a place must be based on an understanding of its cultural significance.

6.3 Policy development should also include consideration of other factors affecting the future of a place such as the owner’s needs, resources, external constraints and its physical condition.

The Burra Charter Process, or sequence of investigations, decisions and actions, is illustrated below and in more detail in the accompanying flow chart which forms part of the Charter.

Understand Significance

ê

Develop Policy

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Manage in Accordance with Policy

6.4 In developing an effective policy, different ways to retain cultural significance and address other factors may need to be explored.

6.5 Changes in circumstances, or new information or perspectives, may require reiteration of part or all of the Burra Charter Process.

Options considered may include a range of uses and changes (e.g. adaptation) to a place.

Article 7. Use

7.1 Where the use of a place is of cultural significance it should be retained.

7.2 A place should have a compatible use. The policy should identify a use or combination of uses or constraints on uses that retain the cultural significance of the place. New use of a place should involve minimal change to significant fabric and use; should respect associations and meanings; and where appropriate should provide for continuation of activities and practices which contribute to the cultural significance of the place.



Article 8. Setting

Conservation requires the retention of an appropriate setting. This includes retention of the visual and sensory setting, as well as the retention of spiritual and other cultural relationships that contribute to the cultural significance of the place.

New construction, demolition, intrusions or other changes which would adversely affect the setting or relationships are not appropriate.

Setting is explained in Article 1.12.

Article 9. Location

9.1 The physical location of a place is part of its cultural significance. A building, work or other element of a place should remain in its historical location. Relocation is generally unacceptable unless this is the sole practical means of ensuring its survival.

9.2 Some buildings, works or other elements of places were designed to be readily removable or already have a history of relocation. Provided such buildings, works or other elements do not have significant links with their present location, removal may be appropriate.

9.3 If any building, work or other element is moved, it should be moved to an appropriate location and given an appropriate use. Such action should not be to the detriment of any place of cultural significance.

Article 10. Contents

Contents, fixtures and objects which contribute to the cultural significance of a place should be retained at that place. Their removal is unacceptable unless it is: the sole means of ensuring their security and preservation; on a temporary basis for treatment or exhibition; for cultural reasons; for health and safety; or to protect the place. Such contents, fixtures and objects should be returned where circumstances permit and it is culturally appropriate.

For example, the repatriation (returning) of an object or element to a place may be important to Indigenous cultures, and may be essential to the retention of its cultural significance.

Article 28 covers the circumstances where significant fabric might be disturbed, for example, during archaeological excavation.

Article 33 deals with significant fabric that has been removed from a place.

Article 11. Related places and objects

The contribution which related places and related objects make to the cultural significance of the place should be retained.

Article 12. Participation

Conservation, interpretation and management of a place should provide for the participation of people for whom the place has significant associations and meanings, or who have social, spiritual or other cultural responsibilities for the place.

Article 13. Co-existence of cultural values

Co-existence of cultural values should always be recognised, respected and encouraged. This is especially important in cases where they conflict.

For some places, conflicting cultural values may affect policy development and management decisions. In Article 13, the term cultural values refers to those beliefs which are important to a cultural group, including but not limited to political, religious, spiritual and moral beliefs. This is broader than values associated with cultural significance.



Conservation Processes

Article 14. Conservation processes

Conservation may, according to circumstance, include the processes of: retention or reintroduction of a use; retention of associations and meanings; maintenance, preservation, restoration, reconstruction, adaptation and interpretation; and will commonly include a combination of more than one of these. Conservation may also include retention of the contribution that related places and related objects make to the cultural significance of a place.

Conservation normally seeks to slow deterioration unless the significance of the place dictates otherwise. There may be circumstances where no action is required to achieve conservation.

Article 15. Change

15.1 Change may be necessary to retain cultural significance, but is undesirable where it reduces cultural significance. The amount of change to a place and its use should be guided by the cultural significance of the place and its appropriate interpretation.

When change is being considered, including for a temporary use, a range of options should be explored to seek the option which minimises any reduction to its cultural significance.

It may be appropriate to change a place where this reflects a change in cultural meanings or practices at the place, but the significance of the place should always be respected.

15.2 Changes which reduce cultural significance should be reversible, and be reversed when circumstances permit.

Reversible changes should be considered temporary. Non-‐‑reversible change should only be used as a last resort and should not prevent future conservation action.

15.3 Demolition of significant fabric of a place is generally not acceptable. However, in some cases minor demolition may be appropriate as part of conservation. Removed significant fabric should be reinstated when circumstances permit.

15.4 The contributions of all aspects of cultural significance of a place should be respected. If a place includes fabric, uses, associations or meanings of different periods, or different aspects of cultural significance, emphasising or interpreting one period or aspect at the expense of another can only be justified when what is left out, removed or diminished is of slight cultural significance and that which is emphasised or interpreted is of much greater cultural significance.

Article 16. Maintenance

Maintenance is fundamental to conservation. Maintenance should be undertaken where fabric is of cultural significance and its maintenance is necessary to retain that cultural significance.

Maintaining a place may be important to the fulfilment of traditional laws and customs in some Indigenous communities and other cultural groups.

Article 17. Preservation

Preservation is appropriate where the existing fabric or its condition constitutes evidence of cultural significance, or where insufficient evidence is available to allow other conservation processes to be carried out.

Preservation protects fabric without obscuring evidence of its construction and use. The process should always be applied: • where the evidence of the fabric is of such significance that it should not be altered; or

• where insufficient investigation has been carried out to permit policy decisions to be taken in accord with Articles 26 to 28.

New work (e.g. stabilisation) may be carried out in association with preservation when its purpose is the physical protection of the fabric and when it is consistent with Article 22.



Article 18. Restoration and reconstruction

Restoration and reconstruction should reveal culturally significant aspects of the place.

Article 19. Restoration

Restoration is appropriate only if there is sufficient evidence of an earlier state of the fabric.

Article 20. Reconstruction

20.1 Reconstruction is appropriate only where a place is incomplete through damage or alteration, and only where there is sufficient evidence to reproduce an earlier state of the fabric. In some cases, reconstruction may also be appropriate as part of a use or practice that retains the cultural significance of the place.

Places with social or spiritual value may warrant reconstruction, even though very little may remain (e.g. only building footings or tree stumps following fire, flood or storm). The requirement for sufficient evidence to reproduce an earlier state still applies.

20.2 Reconstruction should be identifiable on close inspection or through additional interpretation.

Article 21. Adaptation

21.1 Adaptation is acceptable only where the adaptation has minimal impact on the cultural significance of the place.

Adaptation may involve additions to the place, the introduction of new services, or a new use, or changes to safeguard the place. Adaptation of a place for a new use is often referred to as ‘adaptive re-‐‑use’ and should be consistent with Article 7.2.

21.2 Adaptation should involve minimal change to significant fabric, achieved only after considering alternatives.

Article 22. New work

22.1 New work such as additions or other changes to the place may be acceptable where it respects and does not distort or obscure the cultural significance of the place, or detract from its interpretation and appreciation.

New work should respect the significance of a place through consideration of its siting, bulk, form, scale, character, colour, texture and material. Imitation should generally be avoided.

22.2 New work should be readily identifiable as such, but must respect and have minimal impact on the cultural significance of the place.

New work should be consistent with Articles 3, 5, 8, 15, 21 and 22.1.

Article 23. Retaining or reintroducing use

Retaining, modifying or reintroducing a significant use may be appropriate and preferred forms of conservation.

These may require changes to significant fabric but they should be minimised. In some cases, continuing a significant use, activity or practice may involve substantial new work.

Article 24. Retaining associations and meanings

24.1 Significant associations between people and a place should be respected, retained and not obscured. Opportunities for the interpretation, commemoration and celebration of these associations should be investigated and implemented.

For many places associations will be linked to aspects of use, including activities and practices.

Some associations and meanings may not be apparent and will require research.

24.2 Significant meanings, including spiritual values, of a place should be respected. Opportunities for the continuation or revival of these meanings should be investigated and implemented.



Article 25. Interpretation

The cultural significance of many places is not readily apparent, and should be explained by interpretation. Interpretation should enhance understanding and engagement, and be culturally appropriate.

In some circumstances any form of interpretation may be culturally inappropriate.

Conservation Practice

Article 26. Applying the Burra Charter Process

26.1 Work on a place should be preceded by studies to understand the place which should include analysis of physical, documentary, oral and other evidence, drawing on appropriate knowledge, skills and disciplines.

The results of studies should be kept up to date, regularly reviewed and revised as necessary.

26.2 Written statements of cultural significance and policy for the place should be prepared, justified and accompanied by supporting evidence. The statements of significance and policy should be incorporated into a management plan for the place.

Policy should address all relevant issues, e.g. use, interpretation, management and change.

A management plan is a useful document for recording the Burra Charter Process, i.e. the steps in planning for and managing a place of cultural significance (Article 6.1 and flow chart). Such plans are often called conservation management plans and sometimes have other names.

The management plan may deal with other matters related to the management of the place.

26.3 Groups and individuals with associations with the place as well as those involved in its management should be provided with opportunities to contribute to and participate in identifying and understanding the cultural significance of the place. Where appropriate they should also have opportunities to participate in its conservation and management.

26.4 Statements of cultural significance and policy for the place should be periodically reviewed, and actions and their consequences monitored to ensure continuing appropriateness and effectiveness.

Monitor actions taken in case there are also unintended consequences.

Article 27. Managing change

27.1 The impact of proposed changes, including incremental changes, on the cultural significance of a place should be assessed with reference to the statement of significance and the policy for managing the place. It may be necessary to modify proposed changes to better retain cultural significance.

27.2 Existing fabric, use, associations and meanings should be adequately recorded before and after any changes are made to the place.

Article 28. Disturbance of fabric

28.1 Disturbance of significant fabric for study, or to obtain evidence, should be minimised. Study of a place by any disturbance of the fabric, including archaeological excavation, should only be undertaken to provide data essential for decisions on the conservation of the place, or to obtain important evidence about to be lost or made inaccessible.



28.2 Investigation of a place which requires disturbance of the fabric, apart from that necessary to make decisions, may be appropriate provided that it is consistent with the policy for the place. Such investigation should be based on important research questions which have potential to substantially add to knowledge, which cannot be answered in other ways and which minimises disturbance of significant fabric.

Article 29. Responsibility

The organisations and individuals responsible for management and decisions should be named and specific responsibility taken for each decision.

Article 30. Direction, supervision and implementation

Competent direction and supervision should be maintained at all stages, and any changes should be implemented by people with appropriate knowledge and skills.

Article 31. Keeping a log

New evidence may come to light while implementing policy or a plan for a place. Other factors may arise and require new decisions. A log of new evidence and additional decisions should be kept.

New decisions should respect and have minimal impact on the cultural significance of the place.

Article 32. Records

32.1 The records associated with the conservation of a place should be placed in a permanent archive and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate.

32.2 Records about the history of a place should be protected and made publicly available, subject to requirements of security and privacy, and where this is culturally appropriate.

Article 33. Removed fabric

Significant fabric which has been removed from a place including contents, fixtures and objects, should be catalogued, and protected in accordance with its cultural significance.

Where possible and culturally appropriate, removed significant fabric including contents, fixtures and objects, should be kept at the place.

Article 34. Resources

Adequate resources should be provided for conservation. The best conservation often involves the least work and can be inexpensive.

Words in italics are defined in Article 1.


The Burra Charter Process Steps in planning for and managing a place of cultural significance

The Burra Charter should be read as a whole.

Key articles relevant to each step are shown in the boxes. Article 6 summarises the Burra Charter Process.

No 2 Crude Unit

SolutizerCooling towers

Cooling towers

Venture Building

Werribee rail line

Alto

na ra

il lin

e

Kororoit Creek Road

Mill

ers

Road

Substation 3

No 3 Change Room

1883

A Street

B Street

C Street

D Street

No 1 Crude Unit

TCC

Buitumen Plant

Lube oil packing

Boiler House

Stores

Office

Amenities

Workshop

Warehouse

Pegasus building

FCC

LPG#2 Reformer

#3 Reformer

#1 Reformer

Blowdown & Flare

Laboratory

Drum filling

Main officeCCB

Wagon filling

5th

Stre

et

7th

Stre

et

4th

Stre

et

3rd

Stre

et

2nd

Stre

et

Lube oil blending

LPG

Switch & CNo 3 Changeroomompressor House

General LayoutGeneral LayoutProject 1870610/11/2014 drawn GVProject 1870610/11/2014 drawn GV

Biosis Pty LtdBallarat, Brisbane, Canberra, Melbourne, Sydney, Wangaratta, Wollongong

Metres N

0 50 100

1960s & later structures

Buildings, plant and tanks, 1946-50

Buildings, plant and tanks, 1951-9

Demolished structures

Main overhead pipe gantrys

Primary Significance

Contributorysignificance

Roadways

HO202 extent

Figure 72: Locations of signi"cant elements and management actions

Planning and Environment Act 1987

HOBSONS BAY PLANNING SCHEME

AMENDMENT C107

EXPLANATORY REPORT

Who is the planning authority?

This amendment has been prepared by the Hobsons Bay City Council, which is the planning authority for this amendment.

The Amendment has been made at the request of Mobil Refining Australia Pty Ltd, C/Tract Consultants.

Land affected by the Amendment

The Amendment applies to land recognised as the Mobil Refinery in Altona. This amendment applies only to part of the land situated north of Kororoit Creek Road, bounded by Millers Road to the west, and the industrial rail line to the north and east.

The title particulars are Lot 5 TP850733, Lot 1 TP534082 and the eastern portion of Lot 9 TP850733.

Figure 1- Land affected by the amendment

Mobil Southern Tank Farm

Mobil Eastern Tank Farm

Railway Reserve

Former Mobil administration site

Mobil Refinery

What the amendment does

1. Amends the Schedule to the Heritage Overlay at Clause 43.01-1 to delete HO202 from the Altona Refinery.

2. Amends Clauses 21.06 (Built Environment and Heritage) and 22.01 (Heritage Policy) to replace the reference to the Hobsons Bay Heritage Study Amended 2014 to the Hobsons Bay Heritage Study Amended 2016.

3. Amends Schedule 2 to clause 37.01 (Petroleum Refinery Area) of the Hobsons Bay Planning Scheme to delete reference to clause 62.01 of the Hobsons Bay Planning Scheme.

Strategic assessment of the Amendment

Why is the Amendment required?

Over the past ten years, Mobil has been granted permits to remove heritage fabric including the Thermofor Catalytic Cracking Unit and two administration buildings. The removal of further heritage fabric at the Refinery in the future is likely, as Mobil continue to modernise the Refinery. The Refinery is an industry of State significance and a major employer in the City of Hobsons Bay.

The Mobil Altona Refinery must regularly invest in, upgrade and replace new plant and equipment to maintain best practice in terms of operational, technological and environmental efficiencies, meet market demands and comply with increased health and safety regulations to ensure the long term viability of the refinery and provide job security for personnel. Buildings and major equipment may also need to be demolished so that available space can be used and to contain operations within the perimeter of the site and avoid expansion beyond the current site boundaries.

This amendment is required to introduce a new planning policy framework for the Mobil Altona Refinery that implements Clause 22.01-11 of the Hobsons Bay Planning Scheme (Industrial Heritage Places Policy) and the Altona Refinery Conservation Management Plan 2015 (Biosis Pty Ltd 2015). The main conservation policy objective for the Altona Refinery is the continued operation of the current petroleum refining processes. The removal of heritage fabric is considered a necessary and appropriate part of the operation and modernisation of the Altona Refinery. Photographic archive records are to be produced before the heritage overlay and heritage fabric is removed.

The Special Use 2 Zone provides an efficient and adequate framework and level of statutory control to ensure that the conservation objectives are considered in future works, without the need for the heritage overlay and the trigger for permits for all buildings and works.

In addition, the buildings and works exemptions under Clause 4.0 in Schedule 2 to the Special Use Zone incorrectly references ‘other exemptions are listed in Clause 62.01.’ This clause relates to uses not requiring a permit rather than buildings and works not requiring a permit. Reference to this clause has been deleted from the schedule as clause 62.01 applied irrespectively.

How does the Amendment implement the objectives of planning in Victoria?

The amendment implements the objectives of planning in Victoria, contained in Section 4 of the Planning and Environment Act 1987, in the following way:

Objective A: the amendment provides for the fair, orderly, economic and sustainable use and development of land as it facilitates the continued operation of this state significant economically important site and corrects an error in the schedule.

Objective C: the amendment provides for a pleasant, efficient and safe working, living and recreational environment for all Victorians and visitors to Victoria by allowing for advances in safer and more efficient refining technologies.

Objective D: the amendment recognises the importance of conserving and enhancing those buildings, areas or other places which are of scientific, aesthetic, architectural or historical interest or otherwise of special cultural value by recording the heritage fabric on the site whilst also allowing for an important industry to continue viable operations at this site.

Objective G: the amendment appropriately balances the present and future interests of all Victorians, through recognising the present heritage value of the site but also ensuring the ongoing operational functionality of the site.

How does the Amendment address any environmental, social and economic effects?

Environmental

The amendment ensures that the Refinery will be able to continue planned works and improvements to maintain best practice in terms of operational, technological and environmental efficiencies.

Social

The amendment provides for a number of positive social impacts including the ongoing provision of employment and improved documentation and records of the heritage values at the Refinery, accessible to the community. The amendment supports continued investment in this industry and improvements to the facility as an iconic landmark in Hobsons Bay.

Economic

The amendment makes a positive contribution to the State and local economies by supporting the continued operation of the Refinery. The Refinery supplies a full range of petroleum products, including 50 per cent of Victoria’s fuel needs. The Refinery currently employs 350 people, of which approximately 40 per cent live in the local area.

Does the Amendment address relevant bushfire risk?

The site is not subject to a Wildfire Management Overlay and is not located on land designated as a ‘Bushfire Prone Area’ under the Victorian Planning Provisions. A local policy for bushfire risk management is not required to support this amendment.

Does the Amendment comply with the requirements of any Minister’s Direction applicable to the amendment?

The amendment is consistent with all relevant Ministerial Directions including the Form and Content of Planning and Ministerial Direction No.9- Metropolitan Strategy. The Metropolitan Strategy (Plan Melbourne) identifies The Altona Refinery as being located in the Western Industrial Precinct, a core industrial area to be protected and promoted for economic development and employment.

The Amendment is also consistent with Ministerial Direction Section 7(5): Form and Content of Planning Schemes

How does the Amendment support or implement the State Planning Policy Framework and any adopted State policy? The amendment supports and implements Clause 15.03-1 (Heritage) of the State Planning Policy (SPPF) by ensuring the conservation of places of heritage significance.

The amendment supports and implements Clause 17.02-3 (State Significant Industrial Land) by protecting industrial land of state significance.

How does the Amendment support or implement the Local Planning Policy Framework, and specifically the Municipal Strategic Statement?

The amendment supports and implements Clause 21 (Strategic Vision) of the Hobsons Bay Municipal Strategic Statement (MSS) whereby the City aims to be a community that

recognises the contribution of its National and State significant and major industrial enterprises and protects and supports their continued operations.

The amendment supports and implements Clause 21.06-2 (Heritage) of the MSS by encouraging the conservation of elements that contribute to the significance of the Altona Refinery, as a heritage place, in accordance with the principles and procedures recommended by the Australian ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter). The following principles of the Burra Charter have been uppermost in the preparation of this amendment:

Article 5: Conservation of a place should take into consideration all aspects of its cultural significance without unwarranted emphasis on any one at the expense of others.

Article 6: The conservation policy appropriate to a place must first be determined by an understanding of its cultural significance and its physical condition.

The amendment supports and implements Clause 21.08 (Economic Development) of the MSS and Clause 22.02 (Industry) by its responsibility to the State and the region to ensure the continuing viability of major industries within its borders by supporting the petroleum refining industry and the growth and development of industry in Core Industrial Areas. The Altona Refinery is designated as Core Industrial Area 10 in the Hobsons Bay Industrial Land Management Strategy 2008.

The amendment implements Clause 21.08 (Economic Development) by enhancing and protecting the petroleum refining industry in a core industrial area.

The amendment implements the Industrial Heritage Places Policy at Clause 22.01-11. This policy identifies ‘conservation by use’ as an important heritage principle and there may be circumstances where it may be appropriate to permit the removal or alteration of fabric if it will facilitate the historic use of a site and ensure its future viability. The purpose of the Industry Places Policy and objectives of the Special Use 2 Zone are consistent and aim to support the ongoing and modernisation of the petroleum refining industry.

Does the Amendment make proper use of the Victoria Planning Provisions?

The amendment makes proper use of the Victorian Planning Provisions.

How does the Amendment address the views of any relevant agency?

The amendment is consistent with the overriding objectives of the Department of Environment, Land, Water and Planning in relation to Plan Melbourne and economic development. The proposal supports economic development objectives by streamlining the planning process and ensuring the efficient operations at this important industrial site.

Does the Amendment address relevant requirements of the Transport Integration Act 2010?

The amendment supports the ongoing operation of Victoria’s transport system. The Altona Refinery is an important part of the transport system, supplying 50 per cent of Victoria’s fuel needs.

Resource and administrative costs

What impact will the new planning provisions have on the resource and administrative costs of the responsible authority?

The amendment changes the requirement for Mobil to obtain a permit for ‘all buildings and works’ at the Altona Refinery to a permit to ‘construct a building and works’. This has the potential to reduce Council’s administrative resource and costs.

Where you may inspect this Amendment

The Amendment is available for public inspection, free of charge, during office hours at the following places:

Hobsons Bay City Council Civic Centre

115 Civic Parade

Altona VIC 3018

Altona Library

123 Queen Street

Altona VIC 3018

Altona North Library

180 Millers Rd

Altona North VIC 3025

Altona Meadows Library

1-23 Central Avenue

Altona Meadows VIC 3028

The Substation

1 Market Street

Newport VIC 3015

Williamstown Library

104 Ferguson Street,

Williamstown VIC 3016

The Amendment can also be inspected free of charge at the Department of Environment, Land, Water and Planning website at www.dtpli.vic.gov.au/publicinspection.

Submissions

Any person who may be affected by the Amendment may make a submission to the planning authority. Submissions about the Amendment must be received by [date to be inserted. Amendment to be on exhibition for a six week period].

A submission must be sent to: Kathleen McClusky Manager Strategy and Advocacy Hobsons Bay City Council PO Box 21 Altona VIC 3018

Panel hearing dates

In accordance with clause 4(2) of Ministerial Direction No.15 the following panel hearing dates have been set for this amendment:

directions hearing: [date to be inserted]

panel hearing: [date to be inserted]

PlanningandEnvironmentAct1987


AMENDMENT C107

INSTRUCTION SHEET

The planning authority for this amendment is the Hobsons Bay City Council.

The Hobsons Bay Planning Scheme is amended as follows:

Planning Scheme Maps

The Planning Scheme Maps are amended by a total of one attached map sheet.

Overlay Maps

1. Amend Planning Scheme Map No.9HO in the manner shown on the one attached map marked “Hobsons Bay Planning Scheme, Amendment C107”.

Planning Scheme Ordinance

The Planning Scheme Ordinance is amended as follows:

2. In Local Planning Policy Framework – replace Clause 21.06 with a new Clause 21.06 in the form of the attached document.

3. In Local Planning Policy Framework – replace Clause 22.01 with a new Clause 22.01 in the form of the attached document.

4. In Zones – Clause 37.01, replace Schedule 2 with a new Schedule 2 in the form of the attached document.

5. In Overlays – Clause 43.01, replace Schedule 1 with a new Schedule 1 in the form of the attached document.

End of document


MUNICIPAL STRATEGIC STATEMENT - CLAUSE 21.06 PAGE 1 OF 6

21.06 BUILT ENVIRONMENT AND HERITAGE

Overview

Hobsons Bay is a municipality where the residential areas have their own special character. A high standard of design is encouraged in the municipality and gardens and trees in private areas complement green streetscapes. The amenity of residential areas will be protected from the effects of noise, air, water and land pollution.

In established residential areas, dwelling styles and designs contribute to a preferred neighbourhood character in accordance with Neighbourhood Character policies. A new residential character in Strategic Redevelopment Areas will consider and respect the character of the existing surrounding area.

21.06-1 Built Environment

Objective 1

To ensure that new development respects and enhances the preferred neighbourhood character of the existing residential areas of Hobsons Bay.

Strategies

Work with development proponents to achieve outcomes that enhance the preferred neighbourhood character.

Ensure that a sense of openness in backyards is retained in precincts where this is an important character element.

Encourage high quality contemporary and innovative architectural responses and avoid period reproduction styles, especially in Heritage Overlay areas.

Minimise the loss of front garden space by discouraging additional vehicular crossings and encouraging car access from rear laneways if available.

Discourage the use of basement garages where they lead to the loss of effective landscaping or where it has the effect of increasing the height of buildings, particularly in coastal areas.

Encourage energy efficient design of new dwelling construction.

Promote innovative designs, which promote the concepts of environmentally sustainable development through energy efficient design.

Promote innovative designs which are functional, aesthetically pleasing and pleasant to live in.

Objective 2

To protect and enhance the amenity of residential areas.

Strategies

Encourage applicants to exceed minimum compliance with the requirements of Clause 54 and Clause 55 in the preparation of applications, to ensure the protection and enhancement of the amenity of residential areas.

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Encourage a high standard of site analysis and design response to facilitate innovation and creativity in design and planning for medium density housing and residential areas.

Encourage the establishment of a landscape and streetscape urban setting for new development which reflects the local and wider landscape character.

Minimise the dominance of car parking structures by setting such structures behind the main building line of the dwelling.

Protect and improve streetscapes by minimising the effects of development on street trees and nature strips, requiring the reinstatement of footpaths, kerbs and channels with appropriate materials and through the use of underground power and telecommunication lines.

Protect and improve streetscapes by minimising high solid front fences.

Objective 3

To protect the amenity of residential areas adjacent to land uses with off-site amenity impacts and protect industry and sensitive open space from constraints and adverse impacts caused by the encroachment of residential development.

Strategies

Ensure that future residential development which has an interface with an existing industry implements appropriate mitigation measures to protect the amenity of future residents and the continued operation of the existing industry.

Facilitate appropriate forms of residential development at the interface between residential and other land uses. For example:

· Residential areas adjacent to industrial land use.

· Residential areas adjacent to the coast, creeks, wetlands and grasslands.

· Residential areas adjacent to parks and open space reserves.

· Other urban/non urban interface areas.

Ensure that development adjacent to open space and along watercourses addresses, but does not dominate, the waterway or open space.

Objective 4

To provide landscaping that enhances open space areas and surrounding amenity.

Strategies

Encourage and undertake landscaping that:

· Emphasises areas of high visibility such as gateways, major boulevards and creeks.

· Uses indigenous vegetation in natural areas and introduces a wider range of species, particularly trees in the developed areas of the municipality.

· Integrates all existing planting in public areas.

· Takes into account the traffic calming effects of street tree planting.

Encourage improvements to the nature and quality of the landscaping along VicRoads declared roads.

Give careful consideration to the landscaping of sites as a condition of the approval of applications for all types of land uses and development.



Reflect streetscape character through fencing, planting style and pavement types.

Consider views worthy of protection or screening in the design of landscaping.

Consider adjacent land uses and buildings to ascertain how these should influence landscape design.

Encourage open, well landscaped industrial precincts that enhance the appearance and amenity of the site and public areas.

Choose plantings appropriate to the architectural era in heritage areas.

Encourage private landscaping that enhances the streetscapes of the municipality and complements the landscaping of public areas.

Encourage landscaping that provides shade but does not damage buildings and pavements and is designed to take into account public safety.

Promote landscape design, particularly key focal points, in proximity to areas of nature conservation and large industrial developments.

Implementation

These objectives and strategies will be implemented by:

Policy Guidance (criteria for the exercise of discretion)

Use local policy at Clause 22.04 to ensure site responsive and well designed residential development that enhances and protects the strong neighbourhood character of the residential area of Altona Meadows bounded by Central Avenue, and Queen Street to the north, Victoria Street to the east, South Avenue Merton Street and the southern boundary of properties abutting Spicer Boulevard/May Avenue to the south, and Henry Drive and Skehan Boulevard to the west.

Use local policy at Clause 22.07 – Clause 22.10 to retain and enhance identified elements that contribute to the character of Hobsons Bay and ensure that new development responds appropriately to the character of the precinct in which it is located.

Use local policy at Clause 22.11 to ensure that signs respond to the character and amenity of sensitive areas and do not detract from the character of a locality, building or site.

Application of zones and overlays

Apply the Residential 1 Zone and Residential 2 Zone in established residential areas to protect and enhance existing neighbourhood character.

Apply the Mixed Use Zone in the Altona Beach activity centres to facilitate a range of residential, commercial, office limited industrial and other uses which complement the mixed-use function of the locality.

Further Strategic Work

Consider applying a Schedule to the Residential 1 Zone to express local values.

Review the Hobsons Bay Neighbourhood Character Study to ensure it is delivering Council and community objectives.

Reference documents

Hobsons Bay Neighbourhood Character Study, December 2002, including Neighbourhood Character Precinct Brochures

Hobsons Bay Landscape Design Guidelines 1999



Hobsons Bay Advertising Signs Guidelines 1999

Hobsons Bay Industrial Land Management Strategy 2008

Health and Wellbeing Plan. Hobsons Bay Municipal Public Health Plan 2007-2011

Ageing Well Strategy 2007-2017

Disability Action Plan 2008-2012

21.06-2 Heritage

Overview

Hobsons Bay has a rich and diverse cultural heritage which is reflected in the heritage places and precincts identified in the Hobsons Bay Heritage Study Amended 2016. It is a community where we value our heritage and the important role it plays in helping us to understand and interpret our past and enhance our future prosperity and way of life. There is strong support for the protection and conservation of heritage places and precincts. All places of heritage significance including a site, area, building, group of buildings, structure, archaeological site, tree, garden, geological formation, fossil site, habitat or other place of natural or cultural significance and its associated land are identified, protected and conserved.

Objective 1

To protect and conserve places and precincts of heritage significance in Hobsons Bay.

Strategies

Avoid the demolition of buildings, or works that contribute to the value of a heritage place or precinct, particularly the incremental loss of contributory heritage places within heritage precincts which will erode heritage character and adversely affect the integrity of these places.

Encourage the conservation of elements that contribute to the significance of a heritage place or precinct in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (the Burra Charter).

Ensure that new buildings or works do not visually dominate or cause detriment to the heritage significance of the broader heritage place.

Support the replacement of non-contributory buildings and public infrastructure with new development that responds positively to the historic context provided by surrounding heritage places.

Ensure that new development reflects the existing road layout and subdivision pattern that defines and characterises the broader heritage place.

Objective 2

To ensure that new development responds positively and enhances the unique and valued character of heritage places and precincts within Hobsons Bay.

Strategies

Discourage the demolition of heritage places unless it can be demonstrated that, as appropriate:

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· The fabric to be removed is not significant.

· The fabric to be removed is not of primary significance and its removal will not adversely affect the significance of the place.

· It will assist in the long term conservation of the place.

· In the case of an industrial heritage place, it will facilitate the historic use of the place and will not result in the loss of fabric considered to be of primary significance.

Discourage inappropriately designed infill development.

Assess the contribution of new development to the heritage place within the immediate context of the buildings or works, being the same street, across the road and on the next couple of allotments adjacent to the subject site.

Ensure that new buildings or works do not visually dominate or cause detriment to the heritage values of heritage places that are situated in the locality.

Give preference to infill buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006.

Discourage poorly designed additions and alterations to heritage places that are unrelated in terms of design, scale, form and materials.

Give preference to alterations or additions to existing buildings that are visually recessive and compatible in terms of their scale, siting, design, form and materials with the historic character of the heritage place or precinct in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006.

Ensure that new development does not distort the historic evidence provided by the heritage place by simply copying or reproducing historic styles or detailing.

Objective 3

To improve awareness, understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places.

Strategies

Ensure places of cultural heritage are conserved and where appropriate, are interpreted and have appropriate settings.

Maintain appropriate settings for heritage places.

Where redundant heritage buildings such as former industrial buildings and hotels cannot be retained, encourage and support their adaptive use to recognise and protect the physical and cultural heritage significance of the building and its contribution to development of Hobsons Bay.

Implementation

These strategies will be implemented by:

Policy Guidance (criteria for the exercise of discretion)

Use local policy at Clause 22.01 when considering to use or develop heritage places to protect and enhance the heritage character of Hobsons Bay and in the assessment of applications to ensure new development responds positively to special features such as



views, vistas, significant vegetation and landmarks and enhances the historic cultural landscape character found in a street or precinct.

Use local policy at Clause 22.11 in the consideration of signage applications to ensure that signs respect the period and style of the host building and do not dominate or obscure its architectural form or features and use relevant materials, fonts and colours.

Require a photographic record of the building where approval has been granted for its demolition, where appropriate.

Assess applications for infill development in accordance with the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006.

Assess applications for alterations and additions in accordance with the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006.

Use the Aboriginal cultural resource map and guidelines provided by Aboriginal Affairs Victoria when considering an application to develop or rezone land.

Other

Promote awareness and appreciation of the importance and value of the cultural heritage of Hobsons Bay to improve understanding and appreciation of the value of heritage places and the significance of twentieth century heritage, including significant industrial places.

Lead by example in the management of Council’s own heritage assets.

Application of zones and overlays

Apply the Heritage Overlay to heritage places identified in the Hobsons Bay Heritage Study Amended 2016, by Heritage Victoria, or other relevant heritage studies.

Further Strategic Work

Finalise and adopt the comprehensive Heritage Conservation Study for coastal areas.

Undertake a Significant Tree Study.

Undertake a Port of Williamstown Heritage Study in conjunction with other relevant statutory authorities.

Undertake a Post-war Heritage Study.

Prepare Conservation Management Plans or management guidelines for other Council-owned or managed heritage assets as required, including:

· Historic public infrastructure and street trees.

· Historic sporting pavilions.

· Dennis Reserve, Williamstown and Logan Reserve, Altona.

· Review and update the Hobsons Bay Heritage Study Amended 2016 as appropriate.

Reference Documents

Hobsons Bay Heritage Study Amended 2016

Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006

Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006

The Burra Charter (The Australian ICOMOS Charter for Places of Cultural Significance)

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LOCAL PLANNING POLICIES – CLAUSE 22.01 PAGE 1 OF 21

22 LOCAL PLANNING POLICIES

22.01 Heritage Policy

This Local Planning Policy affects areas included in the Heritage Overlay and comprises the following:

22.01-1: General Heritage Policy

22.01-2: Government Survey Heritage Precinct Policy

22.01-3: Private Survey Heritage Precinct Policy

22.01-4: Hannan’s Farm (Ramsgate Estate) and Williamstown Beach Heritage Precincts Policy

22.01-5: Ferguson Street Civic and Commercial Heritage Precinct Policy

22.01-6: Nelson Place Heritage Precinct Policy

22.01-7: Cox’s Garden Heritage Precinct Policy

22.01-8: Housing Commission of Victoria Estates Heritage Precincts Policy

22.01-9: Newport and Spotswood Residential Heritage Precincts Policy

22.01-10: Newport Civic and Commercial Heritage Precinct Policy

22.01-11: Industrial Heritage Places Policy

Using this Policy

This policy comprises an overall heritage policy, which applies to all heritage precincts and places within the City of Hobsons Bay. There are also additional sub-policies for specific heritage precincts and places within the municipality and a sub-policy on Industrial Heritage Places. Each individual sub-policy has its own policy basis, objectives, and policy statements that should be considered in conjunction with the overall policy.

The Hobsons Bay Heritage Study Amended 2016 informs this policy and should be referred to in identifying the significance of the heritage precincts.

A ‘heritage precinct’ is a group of heritage places identified by the Hobsons Bay Heritage Study Amended 2016.

The term ‘heritage place’ refers to:

A place that is individually cited in the Hobsons Bay Heritage Study Amended2016.

A place that is contributory to the significance of a heritage precinct.

Application requirements

Where a permit is required for development in a Heritage Overlay, an application must be accompanied by information that adequately responds to the relevant sections of the Hobsons Bay Heritage Study Amended2016, the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 and the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006.

22.01-1 General Heritage Policy

This policy applies to all land included within a Heritage Overlay.

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Policy basis

The Hobsons Bay Municipal Strategic Statement identifies the need for a local policy to ensure that the cultural heritage of Hobsons Bay is conserved and enhanced.

The communities of Hobsons Bay have played an important role in the historic development of Victoria and the unique history of Hobsons Bay is illustrated by a wide variety of heritage places that include buildings, neighbourhood precincts, trees and landscapes, and urban forms. The heritage places of Hobsons Bay reflect the key themes that have shaped the development of the city since the establishment of Williamstown in the 1840s as the first port of Melbourne, through the development of Newport and Spotswood during the Federation and Interwar periods associated with the growth of railways and related industries, to the post-war industrial and residential expansion that transformed Altona and Laverton.

These heritage places are important for the reasons described in the Hobsons Bay Heritage Study Amended2016, as well as the broader social, cultural and economic benefits they bring by:

Providing historic continuity, which enables the complex layering of the history of Hobsons Bay to be understood and interpreted.

Enhancing the character and amenity of the city by contributing to the unique identity of each neighbourhood.

The heritage of Hobsons Bay is highly valued by the community and there is strong support for controls and policy to protect and conserve places of identified heritage significance.

This policy implements the recommendations of the Hobsons Bay Heritage Study Amended2016.

Objectives

To conserve characteristics that contribute to the individual identity of heritage places and precincts within Hobsons Bay and ensure that their cultural significance is not diminished by:

The loss of any fabric which contributes to the significance of the heritage place or precinct;

Inappropriate new development;

To conserve heritage places in accordance with the principles and procedures recommended by the Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (Burra Charter).

To ensure new development is of a high quality design that creatively interprets and responds positively to the historic context provided by the heritage place or precinct.

To support the replacement of non-contributory buildings with new development that responds positively to the historic context provided by surrounding heritage places.

To ensure new development becomes a valued addition, which complements the aesthetic qualities of a heritage place or precinct.

To ensure new development does not distort historic evidence of heritage places by copying or reproducing historic styles or detailing.

To encourage the viable use of buildings as part of their conservation.

To ensure a consistent approach to the conservation of heritage places.

To conserve heritage places and precincts based on the statement of significance for the place or precinct.

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To improve community awareness of the importance and value of heritage places and precincts.

To ensure new development responds positively to special features such as views, vistas, significant vegetation and landmarks.

To ensure landscaping enhances the historic cultural landscape character found in a street or precinct.

To ensure new development does not visually dominate a heritage place or precinct.

Policy

Exercising discretion

It is policy to conserve heritage places and precincts by:

Ensuring the maintenance and preservation of heritage places;

Ensuring the restoration or reconstruction of fabric where opportunities arise.

Discouraging the demolition of heritage places unless the demolition is only part of the heritage place and it can be demonstrated to the satisfaction of the Responsible Authority that, as appropriate:

Ensuring the fabric to be removed is not significant;

Ensure the fabric to be removed will not adversely affect the significance of the heritage place;

Ensuring development will assist in the long term conservation of the heritage place;

In the case of an industrial heritage place, ensuring development will facilitate the historic use of the heritage place and will not result in the loss of fabric of primary significance;

Discouraging the demolition of heritage places unless it can be demonstrated to the satisfaction of the Responsible Authority that the structural integrity of the heritage place has been lost;

Generally not accepting the poor condition or low integrity of a heritage place as justification for its demolition, particularly if in the opinion of the Responsible Authority the condition of the heritage place has deliberately been allowed to deteriorate;

Maintaining and enhancing the setting of heritage places and precincts by the removal of non-significant fabric and by ensuring that infill buildings or additions to existing buildings are visually recessive. This includes views and vistas to a heritage place from public places;

Encourage the removal of alterations and additions except where they contribute to the significance of the heritage place;

Ensure new infill buildings, alterations and additions to existing buildings are visually recessive and compatible in scale, siting, design, form and materials with the character of the heritage place or precinct;

Ensure new infill buildings have regard to the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006;

Ensure alterations and additions to contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006;

Ensure alterations and additions to non-contributory dwellings have regard to the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006;



Conserve early public realm infrastructure such as basalt gutters, unmade roadside verges, bluestone and concrete kerbs, channels, footpaths and laneways are conserved and reconstructed as appropriate;

Discourage vehicle crossovers and off-street parking provision at the front of heritage places, unless it can be demonstrated to the satisfaction of the Responsible Authority that these features were historically found in the street where the property is located and that no suitable alternative exists;

Significant street trees should not be removed unless they die or in the opinion of the Responsible Authority become a safety risk. If a significant street tree is removed, it should be replaced with a semi-advanced species to the satisfaction of the Responsible Authority;

Original front fences and related features such as lynch gates and pergolas should be retained;

If a front fence is not significant, low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling should be provided, unless historic evidence to the satisfaction of the Responsible Authority can be provided for an alternative design;

Ensure subdivision is compatible with the original subdivision layout and character of the heritage place or precinct;

Ensure advertising signs have regard to the Hobsons Bay Advertising Sign Guidelines 1999 and are traditional in form and location;

Encourage historical research of heritage places and precincts and promote their physical link with history.

Decision Guidelines

It is policy that before deciding on an application the Responsible Authority must consider, as appropriate:

The significance of the heritage place or precinct as described in the Hobsons Bay Heritage Study Amended 2016 and whether the proposed buildings or works will adversely affect the cultural significance of the heritage place or precinct;

Whether the application has responded appropriately to the relevant design guidelines in the Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006 or the Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006.

Whether the proposed buildings or works will assist in the conservation of the place by:

Maintaining, protecting, restoring, repairing or stabilising significant fabric;

Supporting the continued original use of the building by enabling it to be upgraded to meet present day requirements and standards;

Implementing works in accordance with a Conservation Management Plan that has been prepared to the satisfaction of the Responsible Authority;

Allowing an alternative use (where this is permitted by the Planning Scheme) when the original use of the building is no longer viable, or in accordance with a Conservation Management Plan;

Whether the proposed buildings or works will have an adverse effect on a significant tree identified by the Hobsons Bay Heritage Study Amended2016, or any tree that contributes to the setting of a heritage place or precinct.

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Policy references

Hobsons Bay Heritage Study Amended2016.

Guidelines for Alterations and Additions to Dwellings in Heritage Areas in Hobsons Bay 2006

Guidelines for Infill Development in Heritage Areas in Hobsons Bay 2006

Australia ICOMOS Charter for the Conservation of Places of Cultural Significance (The Burra Charter).

Hobsons Bay Advertising Sign Guidelines 1999 (or any subsequent version).

22.01-2 Government Survey Heritage Precinct Policy

This policy applies to all land and heritage places within the Government Survey Heritage Precinct, (HO8), the Cecil Street Heritage Precinct, (HO1), Electra Street Heritage Precinct (HO4), Esplanade Residential Heritage Precinct (HO6), Hanmer Street Heritage Precinct (HO12), Pasco Street Heritage Precinct (HO24), part of the Railway Crescent Heritage Precinct east of Giffard Street (HO28), Verdon Street Heritage Precinct (HO32), and places individually listed in the Schedule to the Heritage Overlay in the area generally bounded by Ferguson Street, Nelson Place, Kanowna Street, Morris Street, Esplanade, Giffard Street, and Railway Place in Williamstown.

Policy basis

The Government Survey Heritage Precinct comprises the parts of “Williams Town” originally surveyed by Robert Hoddle and later extended by the Victorian Colonial Government between 1837 and 1855. Historically, the precinct demonstrates the most important and prosperous phases in the development of Williamstown, from the mid-nineteenth to early twentieth centuries associated with the development of the port and later influenced by the development of railways and related industries. The early settlement of Williamstown and its importance as a port and defence facility, also contributes to a broader understanding of the history of Victoria.

This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016 relating to this precinct.

Objectives

To retain the distinctive cultural heritage significance of this precinct which is derived from:

The strong associations with the maritime and railway industries that were key influences in the early historic development of Williamstown;

The strong associations with the formative civic, public and commercial development that occurred in Williamstown during the nineteenth century;

The setting and visual prominence of the civic, public and commercial buildings on key sites throughout the precinct, and in particular the grouping of related basalt public buildings in Cecil Street and public buildings in Electra Street;

The strong and distinctive urban form created by the regular grid subdivisions, separated by areas of open space, which exemplifies nineteenth century town planning;

The pre-1860 buildings, which demonstrate the very early origins of this precinct and comprise one of the most significant collections of buildings from this period within Victoria;

The Williamstown railway line corridor;

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The generally uniform scale (predominantly single storey), siting (generally detached, parallel to frontage), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on rectangular regular shaped allotments) of residential buildings, which provide a unifying element throughout the precinct. Typically, car parking is not provided on site;

Regular shaped lots with frontages predominantly between 6-9 metres, which create a distinctive pattern of development;

The rare surviving examples of early housing construction such as pre-fabricated timber dwellings, basalt houses, and attached row houses with undivided roofs;

The unique nineteenth century road layout in key streets, and other historic public infrastructure;

Significant trees on public and private land, which contribute to the cultural landscape character.

Policy

It is policy to encourage infill development that has:

Respect for the single storey scale of the precinct generally with detached siting;

Simple single or double fronted building forms;

Horizontal weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided;

Simple hipped corrugated iron or slate roof forms;

Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped;

Eaves and verandahs in street elevations.

It is policy that alterations and additions to existing dwellings should:

Be single storey scale when viewed from a street (not including a right-of-way);

Be sited to the rear of the existing building;

Be setback from side boundaries to reflect the existing pattern of development;

Be the same, or a contemporary interpretation of the wall cladding of the existing dwelling for walls visible from the street;

Be compatible with the heritage place’s roof form and material as visible from the street;

Be the same as the significant fabric of the facade or profile of the main roofline as viewed from the street;

Retain contributory features such as chimneys and bluestone foundations;

Avoid windows in upper floor elevations facing the street;

Be ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank, if grouped.

22.01-3 Private Survey Heritage Precinct Policy

This policy applies to all land and heritage places within the Private Survey Heritage Precinct (HO27), the Power Street Heritage Precinct (HO26), Lenore Crescent Heritage Precinct (HO18), Macquarie Street Heritage Precinct (HO19), James Street Heritage Precinct (HO17), The Strand Heritage Precinct (HO31), Dover Road and John Street Heritage Precinct (HO3), and places individually listed in the Schedule to the Heritage

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Overlay in the area generally bounded by North Road, The Strand, Ferguson Street, Power Street, and Melbourne Road in Williamston and Newport.

Policy basis

Historically, the Private Survey Heritage Precinct is significant for its ability to illustrate the two main development phases of the city during the Victorian (port rise and decline) and Edwardian to Interwar periods (railway and manufacturing industry). This has created a distinctive layering of history, which illustrates how this part of Williamstown and Newport developed quite differently to the Government Survey Heritage Precinct to the south of Ferguson Street. Compared to other precincts in Hobsons Bay, it is more heterogeneous in character and is aesthetically significant for the groups of predominantly late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as James and Macquarie Streets, to almost exclusively Interwar enclaves such as Federal Street, Chandler Street and Lenore Crescent. Housing in other streets, although stylistically different, share common elements of scale, siting, materials and roof forms, which create cohesive groups. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character. Another notable element is the Victorian and Interwar commercial buildings and hotels, which are typically located on prominent corner sites and sited on the frontage throughout the precinct.


Objectives


The extent of speculative subdivision within Williamstown during the nineteenth century, which created a less regular street pattern compared to other parts of Williamstown and Newport;

The ability to illustrate, often within the same street, two key periods in the development of Williamstown from maritime to railway and other industries;

The commercial development scattered throughout the precinct that illustrates how self-contained communities developed in the era before the use of cars became widespread;

The pre-1860 buildings, which demonstrate the early origins of parts of this precinct closer to Ferguson Street. The contrast between streets that are relatively homogeneous in character with streets that are more heterogeneous in character;

The architectural diversity of the residential buildings comprising villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hip or gable roof), and a regular subdivision pattern (single dwellings on regular allotments), which provide a unifying element throughout the precinct. Typically, car parking was not provided on site until later in the Interwar period;

Regular shaped lots with wide frontages predominantly between 10-15 metres, which create a distinctive pattern of development;

Landmark hotels and commercial buildings which are typically sited on prominent street corners.

Policy


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Respect for the single storey scale of the precinct with double storey elements setback to minimise visibility from the street;

Detached siting parallel to the frontage, unless angled siting is a characteristic of the street or group of houses where a property is located;

Simple single or double fronted building forms with symmetrical plans in streets or groups of houses that have predominantly Victorian character, or asymmetrically designed plans in streets or groups of houses with predominantly Edwardian or Interwar character;

Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided;

Hipped corrugated iron or slate roof forms, except in streets or groups of houses, which have predominantly Edwardian or Interwar character, where terracotta tiles may be provided;

Windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped;

Eaves and verandahs in street elevations.


Be single storey scale when viewed from the street, (not including a right-of-way);


Include side setbacks that reflect the existing street pattern;


Be compatible with the roof form and material of the heritage place when visible from the street;

Not significantly alter the fabric of the facade or profile of the main roofline as viewed from the street;



Promote ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-4 Hannan’s Farm (Ramsgate Estate) And Williamstown Beach Heritage Precincts Policy

This policy applies to all land and heritage places within Hannan’s Farm Heritage Precinct (HO13), Victoria Street Heritage Precinct (HO33), Williamstown Beach Heritage Precinct (HO34), part of Railway Crescent Heritage Precinct west of Giffard Street (HO28), including places individually listed in the Schedule to the Heritage Overlay with frontage to Castle Street, Collins Street, Esplanade (part), Forster Street, Garden Street, Giffard Street (part), Gellibrand Street, Hannan Street, Knight Street, Langford Street, Laverton Street, Osborne Street (part), Railway Crescent (part), Stewart Street, Vera Street, Victoria Street and Winifred Street in Williamstown.

Policy basis

This precinct includes those parts of South Williamstown generally to the west of the Giffard Street that were subdivided during the late nineteenth century. It includes Victoria and Hannan Streets which were part of the Ramsgate Estate created in the late 1880’s by

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the subdivision of Hannan’s Farm by two well-known Williamstown figures, AT Clark and John Morgan. This precinct is significant as an intact late nineteenth and early twentieth century residential area comprising predominantly Victorian and Edwardian era houses with common or similar characteristics of design, siting and scale that create cohesive and relatively homogeneous streetscapes. Many are externally intact and others, although altered, still retain their distinctive form and siting and hence contribute to the precinct. Many also have mature gardens that complement the mature street trees in Victoria and Osborne Streets. Victoria Street is particularly notable for its many fine examples of Edwardian and interwar villas and bungalows.


Objectives


The strong associations with individuals who were prominent in civic and social life in Williamstown in the late nineteenth and early twentieth century;

The Victorian-era dwellings, which illustrate the late nineteenth century origins of this area, and include some of the best examples of Italianate architecture in Williamstown;

The generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regular shaped allotments) of dwellings, which create cohesive streetscapes. Typically, there is no provision for on-site car parking;

Regular shaped lots with wide frontages of predominantly 10-15 metres, which create a distinctive street pattern;

The fine collection of Edwardian and interwar ‘picturesque’ villas and bungalows in Victoria Street;

Mature trees on public and private land that provides an appropriate cultural landscape, which is related to the main period of development;

The Rifle Club Hotel and the Williamstown Croquet Club pavilion, which are notable landmarks at the northern entrance to Victoria Street;

The original street layout in Osborne Street, which includes unmade road verges and street trees;

Views along Victoria and Hannan Streets to the Bay;

The Williamstown Botanic Gardens.

Policy


Respect for the single storey scale of the precinct with detached siting parallel to the frontage;

Simple single or double fronted building forms, except in Victoria Street where more complex asymmetrically designed forms may be appropriate;

Horizontal timber weatherboard cladding for walls visible from the street. Alternatively, smooth render brick or masonry or a combination of these may be provided;

Hipped corrugated iron or slate roof forms, except in Victoria Street where more complex hipped and gable roof forms in terracotta tiles may be provided;

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Rectangular, timber-framed and vertically orientated window style if single, or in a horizontal bank if grouped windows are visible from the street;

Eaves and verandahs or porches in street elevations.


Be single storey in scale when viewed from a street, not including a right-of-way;

Be sited to the rear of the existing dwelling;

Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings;


Be compatible with the roof form and material of the heritage place when visible from the street;

Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street;



Promote ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-5 Ferguson Street Civic and Commercial Heritage Precinct Policy

This policy applies to all land and heritage places within the Ferguson Street Civic and Commercial precinct (HO7) including places individually listed in the Schedule to the Heritage Overlay in Ferguson Street in Williamstown.

Policy basis

Historically, Ferguson Street formed the northern boundary of Williamstown as originally surveyed by Hoddle in 1837 and is significant for its ability to illustrate key phases in its development as a city from the mid-nineteenth to the mid-twentieth century.


Objectives

To conserve and enhance the historic character and amenity of Ferguson Street that is an important part of its identity and enhances its appeal as a retail centre.

To retain the distinctive cultural heritage significance of this precinct, which distinguishes it from other precincts in Hobsons Bay and is derived from:

The commercial buildings that demonstrate the later development of Ferguson Street, which replaced Nelson Place as the main commercial and civic centre of Williamstown between the late nineteenth and mid-twentieth century;

The setting and visual prominence of landmark civic and commercial buildings on key sites throughout the precinct such as the former Williamstown Town Hall and Municipal Offices and the former Punshon’s Federal Stores;

The strong associations with the maritime industries and professions that were key influences in the early historic development of Williamstown;

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The predominant two storey scale, siting (attached and constructed to the property line), construction (face or rendered brick), roofs concealed behind parapets, and subdivision pattern (narrow frontages) of surviving commercial heritage places, which provide a consistent element throughout the precinct;

The rare surviving original shopfronts, awnings and other early detailing on some buildings.

Policy


Respect for the double storey scale of the precinct with vertical proportions. Development above two storeys may be appropriate if the upper level is setback to minimise visibility from Ferguson Street;

Attached siting with no front setback;

Face pressed brick, smooth rendered brick or masonry style for walls that are visible from Ferguson Street or from streets and lanes that intersect Ferguson Street;

Hipped roof form concealed behind parapets;

Timber framed rectangular windows in upper elevations with vertical proportions if single or a horizontal bank if grouped. Large unbroken expanses of glass on upper facades are generally not supported;


Be single storey scale or not exceeding the height of the existing building on the site;


Be the same, or a contemporary interpretation of the wall cladding of the existing building on the site, for walls visible from the street;

Be compatible with the roof form and material visible of the heritage place from the street;

Avoid alterations to significant fabric of the principal façade, or the profile of the main roofline as viewed from the street;



Promote ground floor windows that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped when visible from the street.

It is policy that:

Early examples of painted or other types of advertising signage are conserved.

22.01-6 Nelson Place Heritage Precinct Policy

This policy applies to all land and heritage places within the Nelson Place Heritage Precinct (HO21) including places individually listed in the Schedule to the Heritage Overlay in Nelson Place (part) and Cole Street (part) and 1 Parker Street in Williamstown.

Policy basis

The Nelson Place Heritage Precinct is historically significant as it was the major commercial centre of Williamstown in the nineteenth century, and is the area that perhaps best demonstrates the strong relationship between the development of the city and the development of the port. It includes some of the earliest commercial development in




Williamstown and is important for its strong and long-standing associations with maritime activities that defines the essential character of Williamstown and distinguishes it within the metropolitan area. It also illustrates how self-sufficient close-knit communities were established during the nineteenth century.

The Nelson Place Heritage Precinct is also significant as a remarkably intact and cohesive nineteenth century commercial precinct, which is distinguished by its intact and fine examples of nineteenth century commercial architecture from the mid-to-late Victorian period, which illustrate the prosperity of the port at that time. It is also notable for its direct visual relationship with the port and the related cultural landscape provided by the Commonwealth Reserve.


Objectives

To conserve and enhance the historic character and amenity of Nelson Place that is an integral part of its identity and enhances its appeal as a cultural tourism precinct in a metropolitan context.

To retain the cultural heritage significance of this precinct which is derived from:

The pre-1860 buildings, which comprise one of the most significant collections of commercial buildings from this period within Victoria;

The strong associations with the maritime industry and development of the Port of Williamstown during the nineteenth century;

The almost continuous and intact group of two-storey Victorian buildings which are harmonious in scale and siting and display a variety of architectural detail typical of late nineteenth century commercial development;

The presence of a number of substantial nineteenth century commercial buildings, especially banks, designed by noted Melbourne architects;

The unique visual and landscape relationship between the two-storey commercial development in Nelson Place, Commonwealth Reserve and Hobsons Bay, which is not found elsewhere in Melbourne;

The unusual geometry of the intersection between Parker and Cole Streets with Nelson Place, which is emphasised by the placement of the former Williamstown Post Office on the apex of Parker and Cole Streets, and framed by the banks on either corner;

Sections of the roadway that retain basic early century layouts which highlight the period of the precinct, including asphalt and some stone footpaths and basalt kerb and channel with verandah fixings evident in the kerb;

Rare wrought-iron balustrades to open drain inlets and stone paved carriageways at the rear of some sites;

Regular shaped lots with frontages typically between 7-11 metres, which create a distinctive pattern of development;

The mature planting, rotunda, and trees in the Commonwealth Reserve, and the mature street trees in Nelson Place that provide a related cultural landscape setting for the architecture;

Policy


Respect for the double storey scale of the precinct.

Attached siting with no front setbacks.

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Face or rendered brick for walls visible from Nelson Place, Cole Street, Parker Street or Thompson Street.

Hipped roof forms concealed behind parapets.

Upper floor elevations in windows visible from the street should be rectangular with vertical proportions if single. Large unbroken expanses of glass on upper facades are not permitted.


Avoid alterations to significant fabric of the facade or profile of the main roofline as viewed from the street.

Promote the use external colours and materials that compatible with the original colours and materials of the heritage place.

Promote roof forms visible from the street that relate to that of the heritage place.

Promote windows and other building openings visible from the street that relate to those of the heritage place.

It is policy that:


Reconstruction of verandahs should be in accordance with the Nelson Place Verandahs Guidelines, Helen Lardner Conservation & Design, 2002.

22.01-7 Cox’s Garden Heritage Precinct Policy

This policy applies to all land and heritage places within the Cox’s Garden Heritage Precinct (HO2) including places individually listed in the Schedule to the Heritage Overlay in Cox’s Garden.

Policy basis

The Cox’s Garden Heritage Precinct was one of the first private subdivisions created just north of the original government subdivision of Williamstown and illustrates the optimistic early speculative subdivision that occurred in anticipation of the future development of the port and the township. It contains at least two rare examples of small pre-1860 timber houses, which are amongst the oldest group of houses in Williamstown and the oldest group of timber houses in the metropolitan area. It is also important for the historical associations of early residents of Cox's Garden with the early maritime pursuits that distinguish Williamstown in the metropolitan area.

The Cox’s Garden Heritage Precinct is now a rare surviving example of the small private subdivisions that were created in the area to the north of Ferguson Street with their distinctive “cheek by jowl” character of modest, cheaply constructed and often prefabricated housing erected for working class people during the earliest period of settlement.

The historic character of this precinct, so different to the spacious streets in the Government Survey to the south of Ferguson Street, may still be understood and interpreted despite the loss of all but one house on the west side and the development of a public car park. Few other streets, either in Williamstown or the metropolitan area, have retained this distinctive early character.

This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016relating to this precinct.

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Objectives

To support the reconstruction of buildings on the west-side of the street.


The rare pre-1860 timber cottages, which illustrate the early development of Cox’s Garden and are part of one of the most significant collections of buildings from this period within any municipality in Victoria;

The strong association with maritime industries that is an integral part of the character of Williamstown;

The uniform single storey scale, siting (detached, parallel and close to the frontage), construction (predominantly horizontal weatherboard with simple hip roof) and subdivision pattern (single dwellings on narrow rectangular allotments) of the heritage places. Typically, there is no provision for car parking on site;

Regular shaped lots with average frontages of 10 metres, which creates a distinctive pattern of development.

Policy


Respect for the single storey scale of the precinct with detached siting parallel to the frontage;

Minimal frontage setbacks and small side setbacks;

Horizontal weatherboards of walls visible from Cox’s Garden;

Simple hipped roof forms of corrugated iron;

Symmetrical facade composition with centrally located doorways flanked by rectangular double hung timber-framed windows that are vertically orientated;

Narrow eaves and verandahs in street elevation.


Be single storey in scale when viewed from a street;


Promote side setbacks, which reflect the rhythm of the existing spacing between dwellings;

Promote the conservation of original or significant fabric, and missing fabric reconstructed where opportunities arise;

Promote horizontal weatherboard cladding for walls visible from Cox’s Garden;

Promote roof forms and material visible from the street that is compatible with that of the heritage place;



Promote ground floor windows visible from the street that are rectangular, timber-framed and vertically orientated if single, or in a horizontal bank, if grouped.



It is policy to:

Encourage construction of the original street detailing including basalt kerb and channel and asphalt footpaths;

Discourage vehicle crossovers at the frontage of sites;

Encourage low timber picket fencing or other styles that are historically appropriate for the stylistic period of the dwelling, unless historic evidence to the satisfaction of the Responsible Authority can be given for an alternative design.

22.01-8 Housing Commission of Victoria Estates Heritage Precincts Policy

This policy applies to all land and heritage places within Housing Commission of Victoria - Champion Road Estate Heritage Precinct (HO15) and Housing Commission of Victoria - West Newport Estate Heritage Precinct (HO16) including places individually listed in the Schedule to the Heritage Overlay.

Policy basis

The Housing Commission of Victoria (HCV) developed the Champion Road and West Newport estates during the mid to late 1940s. These estates represented a new approach to housing provision to address criticism of the poor quality of earlier HCV estates and respond to criticism of the HCV’s policy of slum reclamation in the Interwar period. Each estate comprises semi-detached, gabled houses arranged in mirror-image pairs with near identical siting, orientation and setbacks. Some retain original low front fencing, typically wire and steel posts. Houses in the Champion Road Estate were constructed of red or clinker brick or stuccoed concrete walls. The West Newport Estate was the first to use the “Fowler” method of prefabricated concrete construction using panels made at the HCV’s plant at Holmesglen.

The homogeneous Interwar character of both precincts is enhanced by original concrete roads and footpaths, mature trees in some streets, and centrally located areas of open space to which some of the houses are orientated. These features demonstrate the efforts made by the HCV to promote these areas as model housing estates.


Objectives

To support the upgrading of these dwellings to meet modern lifestyles in a manner that is compatible with their significance.

To retain the distinctive cultural heritage significance of these precincts which is derived from:

The homogeneous Interwar character that is demonstrated by uniform single storey scale, semi-detached siting with identical front and side setbacks, brick (Champion Road) or concrete (West Newport) construction, tiled gable roofs, and regular subdivision pattern single dwellings) of the contributory heritage places;

The strong associations with the Housing Commission of Victoria as early examples of new responses to public housing in the post-war period;

The original public realm elements including the concrete streets and footpaths, parkland, which enhance the Interwar character of the estates;

Regular shaped lots with average frontages of 12 metres, which create a distinctive pattern of development.

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Policy


Respect for the single storey scale of the precinct;

Identical building footprints that mirror the adjoining attached dwelling for the parts of the dwelling visible from the street;

Red or clinker style brick in Gem Street or Cerberus Crescent, or smooth rendered brick or masonry construction in other streets for walls visible from the street;

Simple gable roof forms of corrugated iron or terracotta tiles that mirror the adjoining attached dwellings;

Similar regular fenestration to the original houses in walls visible from the street;

The provision of eaves.


Be single storey in scale however, double storey scale may be permitted if it is setback behind the main ridgeline of the dwelling to minimise visibility from the street;

Be sited at the rear of the existing building;

Smooth rendered brick or masonry construction for walls visible from the street;

Promote roof forms and material visible from the street that is compatible with the heritage place;



Promote ground floor windows visible from the street that are timber framed with the same proportions as original windows.

22.01-9 Newport And Spotswood Residential Heritage Precincts Policy

This policy applies to all land and heritage places within the Spotswood Residential Heritage Precinct (HO30), Halls Farm Heritage Estate (HO11) Newport Estate Heritage Precinct (HO23), and Grindlay’s Estate Heritage Precinct (HO10) including places individually listed in the Schedule to the Heritage Overlay.

Policy basis

Speculators subdivided large areas of Newport and Spotswood in the late nineteenth century. In contrast to the haphazard small-scale subdivision that occurred in North Williamstown, the subdivisions in Newport and Spotswood were orderly grid subdivisions. However, like many other speculative subdivisions of the time, they were not developed until industrial expansion in the late nineteenth and early twentieth centuries transformed farmland in the area and created a demand for housing for its workforce. The historic pattern of development demonstrates the influence of the stations at Spotswood and Newport with earlier development generally located in close proximity to the stations.

The streets include groups of late nineteenth and early twentieth century houses that range from predominantly Victorian-era precincts such as Hope, Robert and George Streets in Spotswood, to more predominantly Edwardian and Interwar enclaves in Newport. The houses share common elements of scale, siting, materials and roof forms, which create cohesive groups that are an important part of the historic character of this precinct. Some streets retain early street detailing such as basalt kerb and channel and mature street trees, which enhance and reinforce the historic character.





Objectives

To retain the distinctive cultural heritage significance of these precincts, which is derived from:

The traditional grid street layout, Victorian-era dwellings, and other elements such as basalt kerb and channels and rear laneways that illustrate the nineteenth century origins of these precincts;

The strong associations of many early residents with the major industries in this area that were key influences in the historic development of Newport and Spotswood during the early twentieth century;

The architectural diversity, which comprises villas and bungalows from the Victorian to Interwar periods of generally uniform scale (predominantly single storey), siting (detached), construction (predominantly horizontal weatherboard with pitched hipped or gable roof) and subdivision pattern (single dwellings on regularly shaped similar sized allotments) of residential buildings, which provide a unifying element throughout the precincts;

Regular shaped lots with frontages predominantly between 12-15 metres interspersed with some narrower lots, which creates a distinctive pattern of development.

Policy


Respect for the single storey scale of the precinct. Double storeys may be appropriate if it is setback to minimise visibility from the street;

Detached siting parallel to the frontage;

Symmetrical or asymmetrically designed double fronted forms;

Contemporary interpretation of the wall materials found on heritage places in the same street for walls visible from the street;

Simple hipped corrugated iron roof form, except in streets with predominantly Edwardian or Interwar character where more complex hipped and gable roof forms are appropriate. Alternative roof materials may include slate in predominantly Victorian streets or terracotta in predominantly Edwardian or Interwar streets;

Rectangular, timber-framed and vertically orientated if single, or in a horizontal bank if grouped, windows when visible from the street;

Eaves and verandahs or porches in street elevations.


Be single storey scale when viewed from the street;


Promote side setbacks that reflect the existing spacing between dwellings;


Promote roof forms and materials compatible with the heritage place;


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Retain contributory features such as chimneys;


Promote ground floor windows visible from the street that are rectangular, timber framed and vertically orientated if single, or in a horizontal bank if grouped.

22.01-10 Newport Civic and Commercial Heritage Precinct Policy

This policy applies to all land included within Newport Civic & Commercial Heritage Precinct (HO22) and Melbourne Road Commercial Heritage Precinct (HO20) including places individually listed in the Schedule to the Heritage Overlay in the Melbourne Road Commercial Heritage Precinct (HO20).

Policy basis

Newport shopping centre developed because of its proximity to the railway station, originally known variously as ‘Geelong Junction’, ‘Greenwich’ or ‘Newport Junction’. The 1880’s was an era of speculative development and grand Victorian buildings including the former Newport Hotel erected in 1887, the former Commercial Bank erected in 1888 and the two storey Italianate shop at 15-17 Mason Street, erected in 1891 illustrate the optimism for the future development of this area.

The recession of the 1890’s meant that development temporarily ceased, until expansion of industries in the early part of the twentieth century led to increased residential development and consequently, expansion of this shopping centre. Most of the development of the centre therefore occurred within the Edwardian and Interwar period, which included the construction of the Edwardian brick station complex in 1912 to cater for the growing population.

The Newport Civic and Commercial precinct today comprises a number of individually notable Victorian-era buildings interspersed amongst groups of Edwardian and Interwar-era shops, which share common siting, scale, and use of materials, which create cohesive groupings that contribute to the character and identity of this centre.


Objectives

To conserve and enhance the historic character and amenity of Newport that is an integral part of its identity and enhances its appeal as an important local retail centre.


The strong associations between the historic development of this precinct and the development of the railway, and later, the expansion of major industries in the area during the early twentieth century;

The uniform Interwar era shops of single storey scale, attached siting with roofs concealed behind parapets in Melbourne Road (north of Mason Street);

The fine examples of predominantly Edwardian and Interwar commercial buildings of similar scale, face brick or rendered masonry construction, attached siting, and roofs concealed behind decorative parapets that give this centre its unique historic character and identity;

The rare surviving examples of early shopfronts and other detailing such as early or original signage;

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The visual prominence and setting of historic landmark buildings such as the Former Masonic Temple, Newport Station complex, Newport Hotel, and the former Bank of Australasia. Significant vistas along Melbourne Road to the Masonic Temple and the Newport Hotel remain.

Policy


Respect for the double storey scale fronting Hall Street and Melbourne Road (south of North Road). Development above two storeys should be setback from the main facade to minimise visibility from Hall Street;

Respect for the single storey scale fronting Melbourne Road (north of Mason Street). Upper storeys should be setback to minimise visibility from Melbourne Road and protect the vista to the Masonic Temple;

Attached siting with zero frontage setbacks;

Face or rendered brick to the facade facing Hall Street or Melbourne Road, and a contemporary interpretation of traditional building materials and forms at the rear of properties;

Hipped roof forms concealed behind parapets, with hipped or skillion roofs at the rear;

Upper floor windows in facades facing Hall Street or Melbourne Road should be rectangular with vertical proportions if single or a horizontal bank, if grouped;

Upper floor facade articulation should incorporate contemporary interpretations of traditional building forms in the precinct such as projecting window bays, or recessed balconies;


Incorporate contemporary interpretations of building styles and forms found in the precinct in facades facing Hall Street or Melbourne Road;

Promote upper floor additions that are setback to minimise the visual impact upon Hall Street and Melbourne Road;

Avoid separations between buildings at the front;

Incorporate the traditional use of buildings as retail or commercial at the street frontage and residential above or behind.

It is policy that:


22.01-11 Industrial Heritage Places Policy

This policy applies to all land zoned Industrial 1, Industrial 3 or Special Use that is included within the Heritage Overlay.

Policy basis

Since the mid-nineteenth century, a dominant theme in the development of Hobsons Bay has been the growth of industry. Some of Victoria’s most significant industrial heritage is now found within the city. Industries associated with meat and meat processing, engineering and fuels including coal, gas, electricity and petroleum have been dominant in Hobsons Bay over a long period of time. Many industries have been important not only locally, but also to the Victorian and national economy. Significantly, early industries such as the railway workshop and shipyard provided plentiful and steady employment for local

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residents. While many large industries have disappeared, industry in Altona, particularly at the petro-chemical complex, continues to employ a significant proportion of the labour force resident in the area.

The Hobsons Bay Heritage Study Amended 2016 has identified a wealth of industrial heritage in the area, including places such as the former Commonwealth Oil Refinery complex in Altona North, that are no longer used for their original purpose and have been redeveloped, to complexes such as the former Melbourne Glass Bottle works (now ACI) that continue processes commenced more than a century ago.

The conservation of industrial heritage places presents specific management issues, as it is often the use of the site that is of primary historical significance. While fabric such as buildings or plant contributes to the significance of industrial heritage places by illustrating development over time, the on-going replacement and upgrading of this fabric is often an integral part of the operation of the use. .

This policy implements the recommendations of the Hobsons Bay Heritage Study Amended 2016relating to this precinct.

Objectives

To ensure the continued viability of industrial heritage places for the uses and processes historically carried out on the site as an essential part of their significance and conservation.

To increase awareness about the importance of industrial heritage in the municipality.

To ensure that heritage issues are given appropriate consideration at an early stage when making decisions about the future use and development of industrial sites.

To retain the distinctive cultural heritage significance of industrial heritage places which is derived from:

The traditional and on-going use of industrial heritage places over a long period;

The important influence of the industrial heritage places on the economic and social development of the city;

The sheer size and extent of nineteenth century industries in Newport and Spotswood, which demonstrates not only their local economic importance, but also their importance to the economy of Victoria;

The probable national significance of the Newport, Spotswood and North Altona region as one of the most historically important centres in relation to the development of the petroleum and petrochemical industries in Australia;

The surviving examples of early industrial building types, plant and equipment;

The associated infrastructure such as railways, pipe-lines, roads and wharves that are essential in understanding the complex historical interrelationships that occurred in the development of industries (particularly the petroleum and petrochemical industries) in the area.

Policy

Where a permit is required by the Heritage Overlay, it is policy that applications for development should have regard to:

The continued viability of the historic use of the site;

The balance between achievement of conservation objectives and economic viability, and occupational health and safety;

The conservation of fabric of primary significance unless the fabric has been made redundant and is to be replaced by new buildings, plant or equipment;

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The retention of fabric of primary significance that is longer used in-situ if there is not an immediate need to remove or relocate it;

Keeping an appropriate record of any significant fabric that is removed or demolished and is made to the satisfaction of the Responsible Authority.

When a use is discontinued and a site is redeveloped, new development including subdivision should have regard to:

The retention of as much significant fabric as possible;

The creative interpretation of the history of the heritage place through the design or layout of new development including buildings, subdivision, landscaping, movement systems and public art;

The incorporation of a publicly visible historic marker, which provides the history of the site and may include text, images or maps to the satisfaction of the Responsible Authority.

Decision Guidelines

It is policy that before deciding on an application the Responsible Authority consider, as appropriate:

Whether the proposed buildings, works or demolition will support the viability of the historic industrial use carried out on the site;

Whether there is an opportunity for redundant equipment to remain in-situ as historic evidence or for interpretation;

Whether the proposed interpretation will provide adequate information about the historic use and development of the site.


SPECIAL USE ZONE - SCHEDULE 2 PAGE 1 OF 5

SCHEDULE 2 TO THE SPECIAL USE ZONE

Shown on the planning scheme map as SUZ2

PETROLEUM REFINERY AREA

Purpose

To provide for the operation and modernisation of the petroleum refining industry in a manner that does not affect the safety and amenity of nearby residential areas.

To provide for the orderly and proper development of the area and for adequate landscaping to reduce the visual impact of the refinery.

1.0 Table of uses

Section 1 - Permit not required

USE CONDITION

Apiculture Must meet the requirements of the Apiary Code of Practice, May 1997.

Car park

Industry Must be a petroleum refinery in accordance with Clause 2.0 of this schedule.

Mineral exploration

Mining Must meet the requirements of Clause 52.08-2.

Minor utility installation

Natural systems

Railway

Road

Search for stone Must not be costeaning or bulk sampling

Service station

Section 2 - Permit required

USE CONDITION

Mail centre

Utility installation (other than Minor utility installation)

Animal keeping

Intensive animal husbandry

Must meet the requirements listed in the Code of Practice for the Welfare of Horses

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Section 3 - Prohibited

USE

Dry cleaner

Laundromat

Rural industry

Any use not in Section 1 or 2

2.0 Use of land

For the purpose of this schedule a petroleum refinery is defined as an industry using plant, equipment and facilities for the conversion of crude oil and other feed stocks into finished and intermediate petroleum products and by-products. This includes facilities for the receipt of crude oil and other feed stocks, facilities for the storage of crude oils, intermediate and finished products and by-products, pumping, pipeline and distribution facilities, units for the removal and control of impurities and by-products, waste treatment facilities, utilities including steam raising and electrical generating equipment, control rooms, laboratories, research facilities, administration, warehousing, maintenance, training and amenity buildings and facilities and other associated works.

Land may be used as a petroleum refinery provided that the land south of Kororoit Creek Road and to the west of the 3 metre contour (Australian Height Datum) is maintained as a conservation area to the satisfaction of the responsible authority.

The use of the land for a petroleum refinery is exempt from the standard and reduced parking requirements of Clause 52.06 if parking is provided on the site to the satisfaction of the responsible authority.


An application to use land must be accompanied by the following information, as appropriate:

The purpose of the use and the types of processes to be utilised.

The type and quantity of goods to be stored, processed or produced.

How land not required for immediate use is to be maintained.

Whether a Works Approval or Waste Discharge Licence is required from the Environment Protection Authority.

Whether a licence under the Dangerous Goods Act 1985 is required.

The likely effects, if any, on the neighbourhood, including:

Noise levels.

Air-borne emissions.

Emissions to land or water.

Traffic, including the hours of delivery and despatch.

Light spill or glare.

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Decision guidelines

Before deciding on an application to use land, the responsible authority must consider, as appropriate:

The State Planning Policy Framework and the Local Planning Policy Framework, including the Municipal Strategic Statement and local planning policies.

The effect that the use may have on nearby existing or proposed residential areas or other uses which are sensitive to industrial off-site effects, having regard to any comments or directions of the referral authorities.

The effect that nearby industries may have on the proposed use.

The drainage of the land.

The availability of and connection to services.

The effect of traffic to be generated on roads.

The interim use of those parts of the land not required for the proposed use.

3.0 Subdivision

Exemptions

An application is exempt from the notice requirements of Section 52(1)(a), (b) and (d), the decision requirements of Section 64(1), (2) and (3) and the appeal rights of Section 82(1) of the Act. This exemption does not apply to land within 30 metres of land (not a road) which is in a residential zone or Business 5 Zone, land used for a hospital or school or land in a Public Acquisition Overlay to be acquired for a hospital or school.

Decision guidelines

Before deciding on an application to subdivide land, the responsible authority must consider, as appropriate:


Any natural or cultural values on or near the land.

Streetscape character.

Landscape treatment.

Interface with non-industrial areas.

Whether the development would prejudice the continued operation of the petroleum refinery.

4.0 Buildings and works

Permit requirement

A permit is required to construct a building or construct or carry out works.

This does not apply to a building or works which:

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Provide or alter plumbing and electrical services.

Involve the minor rearrangement of car parking areas and landscaping provided that these areas are not diminished.

Rearrange, alter or renew plant if the areas of plant external to existing buildings is not increased.

Are a temporary shed or structure, not exceeding 100 square metres in floor area, which is outside driveway, car parking, loading or landscaping areas.

Any works carried out by a public authority or a municipal council in association with the development of new plant or buildings.

Comply with a direction or licence under the Dangerous Goods Act 1985 or a Waste Discharge Licence, Works Approval or Pollution Abatement Notice under the Environment Protection Act 1970.


An application to construct a building or construct or carry out works must be accompanied by the following information, as appropriate:

A plan drawn to scale which shows:

The boundaries and dimensions of the site.

Adjoining roads.

Relevant ground levels.

The layout of existing and proposed buildings and works.

Driveways and vehicle parking and loading areas.

Proposed landscape areas.

External storage and waste treatment areas.

Elevation drawings to scale which show the colour and materials of all buildings and works.

Construction details of all drainage works, driveways and vehicle parking and loading areas.

A landscape layout which includes the description of vegetation to be planted, the surfaces to be constructed, a site works specification and the method of preparing, draining, watering and maintaining the landscape area. The layout is to include landscape buffers along Millers Road and Kororoit Creek Road frontages and all other boundaries of the refinery.

The type of use and the process to be employed.

Dust control, drainage and maintenance of areas not required for immediate use.

The type and quantity of goods to be stored and whether a licence is required under the Dangerous Goods Act 1985.

Exemptions

An application is exempt from the notice requirements of Section 52(1)(a), (b) and (d), the decision requirements of Section 64(1), (2) and (3) and the appeal rights of Section 82(1) of the Act. This exemption does not apply to land within 30 metres of land (not a road) which is in a residential zone or Business 5 Zone, land used for a hospital or school or land in a Public Acquisition Overlay to be acquired for a hospital or school.

Deleted: Other exemptions are listed in Clause 62.01¶



Decision guidelines

Before deciding on an application to construct a building or construct or carry out works, the responsible authority must consider, as appropriate:


The views of the Environment Protection Authority, the Department of Natural Resources and Environment and the Minister administering the Dangerous Goods Act.

The adequacy of information supplied on the type of use and the processes to be employed.

Drainage of the land

The views of a relevant waterway management authority constituted under the Water Act 1989 or any other Act about any proposed development within the flood plain of the Kororoit Creek.

Availability of services.

Effect of traffic on surrounding roads.

Layout of the site and design of buildings including methods of minimising the visual impact of the refinery on:

nearby residential areas.

Kororoit Creek Road.

Millers Road.

Kororoit Creek.

Altona Coastal Park.

Cherry Lake.

Layout of the site and design of buildings including:

The relationship of the buildings and works to the street and adjoining properties.

The set backs from Millers Road and Kororoit Creek Road.

Access and egress, car parking, access roads and loading bay layout.

5.0 Advertising signs

This zone is in Category 2.

19/01/2006VC37


HERITAGE OVERLAY – SCHEDULE PAGE 1 OF 1

SCHEDULE TO THE HERITAGE OVERLAY

The requirements of this overlay apply to both the heritage place and its associated land.

PS Map Ref

Heritage Place External Paint Controls Apply?

Internal Alteration Controls Apply?

Tree Controls Apply?

Outbuildings or fences which are not exempt under Clause 43.01-3

Included on the Victorian Heritage Register under the Heritage Act 1995?

Prohibited uses may be permitted?

Name of Incorporated Plan under Clause 43.01-2

Aboriginal heritage place?

Heritage Precincts listed alphabetically by name of precinct note - precincts generally contain a mix of contributory and non-contributory buildings –refer to Citation in Hobsons Bay Heritage Study for details.

HO201 Melbourne-Geelong Railway Bridge and Stone Ford over the Laverton Creek

intersection Merton Street and Railway Avenue, Altona Meadows

No No No No No No No

There is no HO202

HO203 Main Outfall Sewer (Hobsons Bay Section)

Millers Road to Princes Highway, Brooklyn - - - - Yes

Ref No H1932

No No

14/03/2013 Proposed C107

Deleted: HO202

Deleted: Standard Vacuum Refining Company Complex (former)¶351- 381 Millers Road, Altona

Deleted: No

Deleted: No

Deleted: No

Deleted: No

Deleted: No

Deleted: No

Deleted: No

Deleted: VC85¶


LIST OF AMENDMENTS PAGE 1 OF 1

LIST OF AMENDMENTS

Amendment number

In operation from

Brief description

C96 5 NOV 2015 The amendment rezones lots 222-238 and 240-258 Koroit Creek Road, Williamstown North from Industrial 3 Zone to General Residential Zone, Schedule 3, apply the Environmental Audit Overlay and a new schedule to the Design and Development Overlay.

C107 Deletes the Heritage Overlay (HO202) on the Mobil Altona Refinery at 350 Millers Road, Altona. Amends Schedule 2 to Clause 37.01 to delete the reference to incorrect reference to Clause 62.01. Amends the date of the Hobsons Bay Heritage Study referred to throughout the Planning Scheme from 2014 to 2016.

001

| Planning Mapping Services |

| Planning Information Services |

| Planning |

0 100 200

metres

LEGENDArea to be deleted from a Heritage Overlay (D-HO202)

Part of Planning Scheme Map 9HO

AMENDMENT C107

H O B S O N S B A Y P L A N N I N G S C H E M E

KOROROIT

CREEK

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ROSS

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Paisley Station

McINTOSHM

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RD

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BERKELEYC

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BRYANAV

PAPROTH

GV

HA

THE

RLE

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GV

WINDSOR

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Hobsons Bay Heritage Study Amended - 2016- Volume 3 – Heritage Precinct and Place Citations Part 2 – Heritage Places – 351-381 Millers Road, Altona North

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Heritage Place Name Standard Vacuum Refining Co. Complex (Former)

Address 351-381 Millers Road, Altona North

Heritage Overlay No. Not applicable

Heritage Precinct(s) Not applicable

Significance

Local

Style & Type

Industry - Oil Refinery

Significant Dates

1949-53

Designer

Stephenson & Turner

Builder

Braun Transworld

Statement of Significance

What is Significant?

The Standard Vacuum Refining Co complex (former), now Mobil Oil Refinery, comprising the buildings and plant generally constructed between 1949-60, at 351-381 Millers Road, Altona North.

How is it Significant?

The Standard Vacuum Refining Co complex is of local historic, social, technical and aesthetic significance to the City of Hobsons Bay.

Why is it Significant?

Historically, it is significant for its strong associations with the development of the oil industry in Australia as one of the oldest continuously operating oil refineries in the country. It is also significant as a major refinery and office complex that illustrates the immense industrial expansion of the City and Victoria in the post World War 2 period. The size of the complex had a significant impact on the economy of the State of Victoria and led to the establishment of a petro-chemical complex within this area with a number of associated firms such as Australian Carbon Black by the 1960s. The complex has associations with Standard-Vacuum Oil and later Mobil Oil who have played important roles in the development of the petrochemical industry in Victoria. Parts of the complex have associations with the important architectural firm of Stephenson & Turner. (AHC criteria A4 and H1)

Socially, it significant for its strong associations with the local community as one of the first major industries in the Altona area and one of the largest employers over a long period. It is also significant for its associations with the development of the labour movement in Australia through the introduction of the concept of collective bargaining techniques, which were first used at this site. (AHC criteria D2 and G1)

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Technically, it is significant for early plant and equipment such as the Thermofor Catalytic Cracking Plant, which is unique in the State. (AHC criterion F1)

Aesthetically, although altered, the c.1955 office block is significant as a good example of modernist design that illustrates the progressive nature of the Standard-Vacuum company and investment made in the establishment of the complex at the time. (AHC criterion E1)

History

Specific history

Construction of the Standard-Vacuum refinery complex at Altona North was commenced in 1946 and production commenced by July 1949. The 1950s was a boom time in the oil industry. In 1953 the total market for refined projects was around 43 million barrels, of which only 7 million were refined locally. By 1958, this figure had jumped to 71 million barrels, of which 63 million were refined locally. Consequently, Standard Vacuum made plans to extend the refinery soon after it came on stream. (Allom Lovell 2002:25-26)

A Californian corporation, Braun Transworld, was contracted to build the new plant along with its engineering techniques. Early in 1953, it negotiated agreements with twenty unions and 1700 workers, which entitled employees to a weekly wage of £1 higher than award rates. Bonuses were also paid. Consequently, work began on the enlarged refinery in 1952 and was completed in a remarkable 22 months.

The area covered by the new facility was 340 acres and at the same time the company also reclaimed four and a half acres of land and rebuilt the Breakwater Pier at Williamstown for delivery of crude oil to be piped to the refinery. Four huge transit tanks were also erected at Williamstown.

The expanded refinery was opened on 4 April 1955 in ‘lavish style’ at a ceremony attended by over 1200 guest presided over by the Prime Minister, RG Menzies. Originally estimated at £7.5 million, the final cost of the expansion was subsequently increased to a massive £20 million. In telling comparison, Menzies pointed out that not long before the war, that had been the size of the total federal budget. (Priestly 1988:218)

Although the refinery included 'a million feet of pipe with 60,000 welded joints, ... 300 miles of electrical wiring, six miles of paved roads, five acres of concrete paving and 19 buildings' in pride of place was the Thermofor Catalytic Cracking Plant, a towering landmark, 268 feet high.

A number of new office and administration buildings designed by Stephenson & Turner, were constructed facing Millers Road and Kororoit Creek Road. The striking modern design of the two storey administration building (now the Pegasus Centre) at the south west corner of Millers Road and Kororoit Creek Road was cited in the RVIA 1956 Olympics guide to the State's architecture as an example of the industrial expansion of the post WW2 era. The new amenities block included a full cafeteria and an auditorium seating four hundred which was suitable for plays, concerts and film (Priestly 1988:217)

The Williamstown Chronicle described the ‘dream standards’ of accommodation in the new administration block, which was air-conditioned and heated with natural light filtered by tinted glass, visor shade and outside aluminium louvers. Priestly (1988:217) observes that:

It was Collins Street comfort set in sweeping plains, amoung the best mushrooming country near Melbourne.

The noted landscape gardener, John Stevens, was involved with the landscape design of this complex, as well as the Shell Oil Refinery in Geelong. (Hendry, 2000)

The expansion of the plant allow Standard-Vacuum to vastly extend the refinery's product range into motor vehicle fuels and, in 1956, it produced Australia's first locally made aviation gasoline.

The size of the complex and its workforce led to the opening in 1953 of a dedicated railway station at a location, quite near to the old Williamstown Racecourse station, which was dismantled in 1951. The Standard Vacuum Platform as it was originally known was built initially for the use of employees of the new refinery. Its name was soon changed to Mobiltown and it was available to general passengers from 1958.

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Other key periods in the development of the plant include:

In 1958, Mobil announced the construction of a major petrochemical plant next to the Altona Refinery in Melbourne that produced its first products for sale in June 1961.

The discovery of vast reserves of crude oil and gas in the Bass Strait in the early 1960s changed the Australian refining industry dramatically, as all companies changed to processing the locally produced oil instead of importing their raw materials. In 1970 further expansion and modification of the Altona Refinery near Melbourne was completed, making it possible for Bass Strait crude to be processed in the plant.

The refinery attracted the beginnings of Australia's most significant petro-chemical conglomerate. First came Australian Carbon-Black (now occupied largely by Cabot Australasia), which soon became noted for the carefully landscaped and maintained gardens in its grounds. The following year the Altona Petro-Chemical Company commenced producing ethylene and butadiene, materials used in the production of plastics and rubber. Other major companies followed: Australian Synthetic Rubber, BASF Australia, Commercial Polymers, Dow Chemical, BF Goodrich Chemical and Hoechst Australia, forming the Altona Petrochemical Complex. The companies operated independently, but were able to take advantage of being located close to each other in terms of using raw materials and sharing some services. The complex expanded over the next 20 years to meet increases in local and export demand.

The complex now makes a vital contribution to Victoria's economy. It is one of Australia's largest industrial centres and is the biggest single employer in the Western suburbs, representing 1.3% to 2.2% of the state's manufacturing industry labour force. The complex accounts for 44% of the output of the basic chemicals sector of the Victorian economy and 3.3% of the total Victorian manufacturing industry input.1 Beyond those directly employed by the complex, many other jobs in the state stem from its activities. For every job provided in the complex, another 1.6 jobs are made available throughout the Victorian economy. 2Employment opportunities directly provided by the Altona Chemical Complex amount to about 9% of the western region's total labour force and about 23% of the manufacturing employment in the region. 3

After 1960 the refinery became known as PRA (Petrol Refineries Australia) and is now referred to as the Mobil Altona North Refinery. Mobil has now embarked on a long term program to modernise the Altona Refinery, including the installation of a new catalytic cracking unit, to help make the refinery among Australia's most efficient. The modernisation will equip the refinery with new, ultra-modern process equipment designed to meet increasingly stringent environmental and product quality requirements and providing the flexibility to handle a wide range of crude oil feedstocks' { Mobil Australia}.

History of Mobil Oil Australia

Mobil was the first oil company in Australia. It began as Vacuum Oil, opening the Queen Street, Melbourne, branch in February 1895, less than 30 years after Vacuum first started operations in the United States. Vacuum Oil's first salesman in Australia, Mr David Clarke, sold the company's first barrel of lubricating oil to a gold mining operation at Eaglehawk, near Bendigo, on his first day in the job.

In March 1904, Vacuum Oil was officially incorporated under Victorian Law as a proprietary company, and in 1906 the company issued Australia's first ever chart of "Recommendations to Motorists" covering about 200 makes of car. By 1908, Vacuum was growing rapidly and merged with the Colonial Oil Co, a company marketing kerosene and motor spirit, adding to Vacuum's specialty lubricant products. In 1916, Vacuum introduced its "Plume" and "Laurel" brands to the Australian market and a year later brought its first 100 gallon, horse drawn tank wagon into service.

As motor vehicles became more popular in Australia, Vacuum expanded its operations. In 1924 Vacuum opened its first bulk petroleum products terminal at Pulpit Point in Sydney and took delivery of its first imported bulk oil products cargo, a 1.5 million gallon shipment carried from the United States by the tanker "HT Harper". A decade later, Vacuum introduced "Ethyl", Australia's first Super

1Shire of Altona (1965) Altona, A Good Place to Live and Work (pamphlet) 2Thomas Mandeville (1985) The Impact of the Altona Chemical Complex on the Victorian Economy (pamphlet) 3Mandeville, op cit.

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grade motor spirit. Around the same time in the US, Vacuum's parent company, Vacuum Oil Inc, merged with the Standard Oil Company of New York to become Socony Vacuum, then Socony Mobil that ultimately became Mobil Corporation.

Socony Mobil introduced the Flying Red Horse (Pegasus) logo. It appeared in Australia in 1939 and became one of Australia's best recognised corporate symbols. In October 1946, Mobil began constructing the Altona oil refinery. The refinery commenced operations in June 1949, initially making lubricating oil and bitumen from imported crude oil.

In 1973 Mobil Oil Australia announced its return to the production of lubricating oils in Australia and commenced construction of a lubricating oil refinery alongside the existing Adelaide fuels product refinery. The lubricating oil refinery, the most modern one in Australia, opened in 1976.

In 1985, Mobil Oil Australia negotiated a major asset swap with BP Australia in which Mobil vacated the Perth retail market in exchange for acquiring a large portion of BP's South Australian, Victorian and New South Wales retail market.

Two years later, Mobil completed a major upgrade of its Yarraville bulk fuels terminal in Melbourne to create the most efficient and technologically advanced petroleum products terminal in Australia.

In late 1990, MOA announced the purchase of Esso Australia's refining and marketing operations. This gave MOA 100 per cent ownership of Petroleum Refineries (Australia) Pty Ltd, the company that operated both the Altona and Adelaide refineries. Completed in January 1991, the acquisition lifted Mobil to second place among the petroleum marketing and refining companies in Australia.

In December 1995 Mobil re-entered the West Australian market when it purchased the service station network and wholesale business of Amgas. A program of investment and expansion in Western Australia will take place over the next few years through upgrading the chain and building new sites.

Description

The complex includes the following buildings:

The refinery itself comprising various equipment, pipes, tanks and stacks, all set out on a rectilinear grid between the railway, Millers Road and Kororoit Creek Road. It includes the 248 feet high Thermofor Catalytic Cracking Plant (now decommissioned), which is thought to be the last vertical catalytic cracker in Australia.

The auditorium, canteen and locker building, located at the north-east corner of Kororoit Creek Road and Millers Road, which has a flat roof, is clad with cream bricks and has aluminium framed windows with green glass panels. This is one of the buildings designed by Stephenson & Turner.

The former office/laboratory building (now the medical centre), which is a concrete block with a hip roof building facing Millers Road.

The former Administration buildings, designed by Stephenson & Turner, on the south west corner of the Millers-Kororoit Creek Roads intersection. This building was pictured in the guide to architecture in Victoria, which was produced by the RVIA for the 1956 Olympics. This building has since been changed by a general renovation in recent times.

A tank farm on the south side of Kororoit Creek Road. The number of tanks has been greatly expanded since the 1940s.

The plant has also been expanded, with some additional land occupied to the east, but the original plant has not been radically changed. An aerial view of the site titled “January 1955 The new refinery already looks complete” shows little change from recent aerial views. (Priestley 1988:206)

External Condition

Good

External Integrity

Substantially intact/some intrusions, with the exception of the administration and cafeteria.

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Context

Set in an open industrial landscape which is complemented by the Kemcor Australia (now Qenos) plant further to the west, separated by Cherry Lake.

Comparative Analysis

The integrity of the plant is high to its 1940s-50s development stages and thus it is perhaps the most complete complex of its kind in the region from this key era. Another example is the Kemcor Australia (now Qenos) plant which has many new elements.

Thematic Context

Principal Australian Historical Theme(s) Utilising mineral resources, Extracting oil & gas

Associations Standard-Vacuum Refining Company (Australia) Ltd., Mobil Refining Australia Pty Ltd, Stephenson & Turner

Recommendations

Statutory protection Hobsons Bay Planning Scheme: No

Heritage Victoria Register: No

Register of the National Estate: No

National Trust Register: Recommended

Management objectives Conserve elements that contribute to the significance of the place and ensure that new development is sympathetic to the historic character of the place in accordance with the relevant articles and conservation principles, processes and practice set out in the Burra Charter. Refer to the relevant Heritage local policy at Clause 22.01 of the Hobsons Bay Planning Scheme.

References

Hobsons Bay City Council, Hobsons Bay Thematic Environmental History, 2003

Graeme Butler & Associates (2001) Altona, Laverton and Newport Districts Heritage Study

Strahan, L 1994 At the Edge of the Centre. The History of Williamstown. p.378

Priestley, S (1998) Altona. A Long View pp.206-07, 216-19

Standard Vacuum Refining Company (Australia) Ltd. 1955. Altona Story (SVRC)

Mobil Australia web site history, www.mobil.com.au.

Hendry, M in Australian Garden History V.12 N.1 (July/August 2000) p.19

Vines, G. (Biosis Pty Ltd), 2015, Altona Refinery Conservation Management Plan

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Additional Images

The image on the cover is an overall view of the complex. Additional images are provided below.

Above: c.1955 view showing Thermofor Catalytic Cracker in centre. Below: Cafeteria

Administrative building (Pegasus Centre) designed by Stephenson & Turner and constructed c.1955

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